Thirteen were children, four were teachers and the other two firefighters.
Martin and Jane Weekes, a former Wellington couple, returned to New Zealand from Qatar last week to bury their children.
The committee investigating the fire found that the child care centre was not licensed by the ministry of Social Affairs, as required by Qatari law, meaning it did not have the safety measures in place which were required for a nursery.
It concluded the fire started at the upper floor of a Nike sports store after faulty electrical wiring in a fluorescent light caused a spotlight to catch fire, the committee
The fire rapidly spread to the adjacent nursery.
A Nike store employee and a security guard then failed to extinguish the fire after they saw smoke rising from the upper level of the shop.
While civil defence workers arrived within three minutes of being alerted to the fire, it took them another 30 minutes to learn that children were trapped in the nursery.
As a result of the week-long investigation the committee made 11 recommendations to prevent or reduce the risk of a repeat fire.
It recommended reviewing regulations governing the activities of baby care facilities, which allowed nurseries to register under different names, such as activity centres.
The committee only investigated the cause of the blaze.
Five people, including the owners of the mall were arrested shortly after the fire.