(Cth) Define ‘Building Resilience’ in the National Construction Code

Author: Akhila Biju | Publish date: 29/08/2025

Problem Identification: 

In Australia, the National Construction Code (NCC) does not have a definition of ‘building resilience’.

Schedule 1 of the National Construction Code (NCC) 2022 (Cth) (the Code) defines key terms used throughout the Code, such as ‘building complexity criteria’ and ‘primary building element’. However, it does not include a definition for 'building resilience’.

According to the Insurance Council of Australia (ICA), this means there is no standard way to assess or develop building rules that are designed to ensure structures can withstand natural disasters or extreme weather events (e.g. floods or bushfires). The ICA has warned that without stronger standards, Australia could continue to put communities at risk.

Context: 

Building or architectural resilience refers to a building’s ability to prevent or recover from damage caused by both sudden shocks (like natural disasters) and ongoing stressors (such as economic or environmental pressures). 

The National Construction Code (NCC) sets mandatory minimum standards for building design and construction across Australia. This code is maintained by the Australian Building Codes Board (ABCB) and is legally enforced through state and territory laws. Failure to meet NCC requirements can lead to fines, orders to fix or remove non-compliant work, and other penalties. 

According to the ABC and the ICA, current building standards focus mainly on life safety (i.e. they can survive in their home) during disasters; however, they don't guarantee homes remain liveable afterwards. The Centre for International Economics (CIE) has highlighted that when houses become uninhabitable, families face displacement, long recovery periods, mental health impacts, and disruption to daily life. Homelessness Australia (HA) has found that over 23,000 Australians are displaced by disasters every year. Further, HA has said that millions of homes remain at ongoing risk, including 5.6 million at bushfire risk and almost 1 million facing flood risk. 

The ICA has stressed that, as climate-driven extreme weather events are becoming more frequent, more destructive, and more costly, Australia needs to embed resilience into its building standards. The Insurance Catastrophe Resilience Report 2023-24 examined ‘a catastrophe season that was marked by four major weather events: a cyclone, and three storms with significant flooding; collectively these events led to almost 157,000 claims and $2.2 billion in insured losses.’ Further, the Australia Institute reported that, in 2022, 1 in 20 Australians experienced damage or destruction to their homes from weather-related disasters. The ICA highlighted that without urgent action, homeowners will face increasing challenges. They have stated that stronger building standards and resilience measures would ‘create a more resilient Australia, lessening the impact when disaster strikes and ensuring we don’t continue to put communities in harm’s way.’ 

The ICA’s economic analysis has estimated that strengthening the resilience of new residential buildings could save around $4 billion annually by 2050. They have said that these savings would come from reduced repair and rebuilding costs, as well as avoiding the social and economic impacts of displacement after disasters. Andrew Hall, CEO of ICA, has echoed this sentiment, stating, ‘“De-risking is the only sustainable way to reduce the pressure on premiums and close the protection gap: improved planning so no more homes are built in harm’s way [and] stronger buildings that are better able to withstand extreme weather”.’

The ICA has stated that a shared definition is the first step in helping experts create specific criteria and standards of assessment. According to the ICA, such assessments intend to ensure that building regulations address not only life safety but also measurable and enforceable resilience standards that reflect evolving climate risks, aiming to better protect buildings and communities.

Advice/Legal Change:

The Minister for Housing and Building and the ABCB Board should amend Schedule 1 of the National Construction Code to introduce a definition for 'building resilience' as the capacity of a building to anticipate, withstand, adapt to, and recover from disaster events and extreme climate conditions to ensure occupant safety and structural performance.

The ICA, the Australian Business Roundtable, the Australian Institute of Architects, and the Royal Commission into National Natural Disaster Arrangements have called for this. The Royal Commission has argued that this change could help ensure new buildings and communities can better withstand natural disasters. Andrew Hall has stated: 

Our homes should be built to last a lifetime, so they need to be able to withstand intensifying cyclones, more severe bushfires, and worsening flooding. The economic benefits are clear, and stronger homes that are future-proofed against disaster will also enable communities to recover faster after an event.

Precedent:

If Australia were to enact this reform, it would be world-leading as far as the author knows.

Download the 1-Page Brief Here - (Cth) Define ‘Building Resilience’ in the National Constr.

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Public Support: 

1. Australian Roundtable for Disaster Resilience & Safer Communities

2. Australian Institute of Architects (AIA)

3. Insurance Council of Australia         

News Coverage:

• ABC News - “Push for improved building standards as increased risk of extreme weather events wreaks havoc on Australia's housing stock”. The article highlighted the growing concerns about climate-related damage to homes and the call for stronger construction regulations to enhance resilience. By: Antonia O’Flaherty & Ellen Fanning | Wed 1 Mar 2023 - Read the article here.

• Yahoo News Australia - “Warning to Aussies over destructive weather trend impacting cars and homes”. The media release quoted lead author Dr. Tim Raupach, who warned that building standards in Australia do not currently consider hail resilience and that updates are needed to better protect homes and new technologies like rooftop solar panels. By: Joe Attanasio | Wed 30 Jul 2025 - Read the article here.

• Insurance Business - “ICA backs new focus on building resilience in the National Construction Code”. The Insurance Council of Australia welcomed building ministers’ decision to include resilience objectives aimed at future-proofing Australian homes and reducing insurance risks. By: Roxanne Libatique | 25 June 2024 - Read the article here. 

  
  

Where to go to learn more: 

• Australian Business Roundtable for Disaster Resilience & Safer Communities (ABR) – Building Resilience to Natural Disasters in Our States and Territories (2017) - The report projected natural disaster costs could reach $39 billion by 2050 and recommended updating the NCC to include resilience standards. It supported the brief’s case for amending Schedule 1. Access their full report here.

• Insurance Council of Australia (ICA) - The ICA provided reports and policy advocacy on building resilience standards, including a detailed economic analysis of strengthening the NCC to better protect homes from floods, bushfires, and cyclones. For more details, see the full report here.

• National Construction Code (NCC) Regulations - For comprehensive, official information on building regulations and access to the latest versions of the NCC,including the three volumes of the NCC, relevant amendments, resource guides, and details on recent updates to national building standards. Visit the Australian Building Codes Board’s NCC here. 

• Australian Building Codes Board (ABCB) - The ABCB oversees the NCC and offers discussion papers, technical documents, and updates about proposed changes to build climate resilience into Australian standards. Read the complete report here.

• Minister for Home Affairs – Media Release - The media release outlined the commitment of building ministers across Australia to prioritising resilience in the National Construction Code to safeguard homes against extreme weather. Read the news here.

  
  

Human Perspective:

Emily is a teacher living in a regional town of VIC that was recently hit by a severe flood. Her home, though newly built to the current standards, wasn’t designed to withstand extreme weather. Water surged through the house, damaging the walls, floors, and everything she owned. Insurance only covered part of the repairs and Emily had nowhere to go. She spent weeks couch-surfing, missing work, and struggling to manage the stress and uncertainty of her situation. The emotional toll of losing her home, combined with the rising rebuilding costs, left her feeling overwhelmed and isolated. Emily wished that when her home was built, stronger resilience considerations had been required to better protect against disasters. Experts later said that if building resilience standards had been part of the National Construction Code, homes like Emily’s might have been better protected. For Emily, it was more than a flood—it was the loss of her stability, her security, and her peace of mind.

To protect the anonymity of those involved, this is a fictionalised account drawn from an amalgamation of real-life stories, experiences, and testimonials gathered during the research process for this brief. Any resemblance to actual individuals is purely coincidental.

Conflict of interest/acknowledgment statement: 

N/a

Support 

If your organisation would like to add your support to this paper or suggest amendments, please email Info@foreaustralia.com. 

Reference list: 

Australian Business Roundtable for Disaster Resilience & Safer Communities. (2024). Building resilience in our states and territories. https://australianbusinessroundtable.com.au/assets/documents/ABR_building-resilience-in-our-states-and-territories.pdf

Australian Institute of Architects. (2020, November 4). Royal Commission into National Natural Disaster Arrangements.  https://www.architecture.com.au/archives/news_media_articles/royal-commission-into-national-natural-disaster-arrangements-nov

Australian Institute. (2025, May 27). Betting the house: The huge number of Australians at risk of losing everything they own [Media release]. https://australiainstitute.org.au/post/betting-the-house-the-huge-number-of-australians-at-risk-of-losing-everything-they-own/

Building and Plumbing Commission. (n.d.). National Construction Code (NCC) 2022. https://www.vba.vic.gov.au/building/regulatory-framework/ncc-2022#:~:text=Print-,National%20Construction%20Code%20%28NCC%29%202022,-The%C2%A0National

Bulman, J. (2024, April 18). What is Resilient Architecture? Neumann Monson Architects. https://neumannmonson.com/blog/what-is-resilient-architecture#:~:text=Understanding%20Resilient%20Architecture%C2%A0

Fair Trading NSW. (n.d.). National Construction Code. https://www.fairtrading.nsw.gov.au/trades-and-businesses/construction-and-trade-essentials/national-construction-code

Floodplain Management Australia. (2024, September 6). Catastrophe report shows long-term cost of extreme weather. https://www.floods.asn.au/site/index.cfm?module=news&page_id=2728641&pagemode=indiv#:~:text=CATASTROPHE%20REPORT%20SHOWS%20LONG%2DTERM%20COST%20OF%20EXTREME%20WEATHER

Homelessness Australia. (2024, June 16). Climate and housing crises converging to threaten Australian families, New Report Warns. https://homelessnessaustralia.org.au/climate-and-housing-crises-converging-to-threaten-australian-families-new-report-warns/

Insurance Council of Australia. (2023, July). Building Australia's Resilience: Policy recommendations for federal and state governments. https://insurancecouncil.com.au/wp-content/uploads/2023/07/20894_ICA_Resilience-Advocacy-Asks-FINAL.pdf

Insurance Council of Australia. (2023, October). Future proofing Australia's resilience: Summary report. https://insurancecouncil.com.au/wp-content/uploads/2023/10/231023-CIE-Final-Report-ICA-Summary-Report_Format_Master.pdf

Insurance News. (2023, July 26). ICA ramps up resilience push. Insurance News. https://www.insurancenews.com.au/daily/ica-ramps-up-resilience-push#:~:text=ICA%20ramps%20up%20resilience%20push

Insurance Council of Australia. (2023, October 24). Strengthening building code could save $4b a year: new report. https://insurancecouncil.com.au/resource/strengthening-building-code-could-save-4b-a-year-new-report/#:~:text=year%3A%20new%20report-,Strengthening%20building%20code%20could%20save%20%244b%20a%20year%3A%20new%20report

Insurance Council of Australia. (2024, August). Insurance Catastrophe Resilience Report 2023–24. https://insurancecouncil.com.au/wp-content/uploads/2024/08/21100_ICA_Catastrophe-Report_Print-2024_Final-single-pages.pdf

Insurance Council of Australia. (2025, February 24). Building standards. https://insurancecouncil.com.au/campaigns/future-proof-australia/building-standards/

Insurance Council of Australia. (2025, February 26). Insurers call for Flood Defence Fund to future-proof Australia. https://insurancecouncil.com.au/resource/insurers-call-for-flood-defence-fund-to-future-proof-australia/

Insurance Council of Australia. (2024, June 24). Ministerial commitment to building resilience welcomed. https://insurancecouncil.com.au/resource/ministerial-commitment-to-building-resilience-welcomed/#:~:text=building%20resilience%20welcomed-,Ministerial%20commitment%20to%20building%20resilience%20welcomed,-News%20release

Lovegrove & Cotton. (2022, January 24). What is the National Construction Code? https://lclawyers.com.au/national-construction-code/#:~:text=What%20is%20the%20National%20Construction%20Code%3F

O’Flaherty, A. & Fanning, E. (2023, March 1). Push for improved building standards as increased risk of extreme weather events wreaks havoc on Australia's housing stock. ABC News. https://www.abc.net.au/news/2023-03-01/qld-disaster-resilience-weather-cyclone-climate-housing/102030160

The Centre for International Economics. (2023, October 9). Resilience, durability and the National Construction Code. Report prepared for the Insurance Council of Australia. https://insurancecouncil.com.au/wp-content/uploads/2023/10/CIE-Final-Report_ICA_Economic-Analysis-09102023.pdf