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On February 16th 2011 the National Assembly for Wales passed one of the first examples of Private Members’ legislation, the Domestic Fire Safety (Wales) Measure 2011 (the Measure) which was introduced by Ann Jones AM, enabling Ministers to introduce regulations making automatic fire suppression systems compulsory in all new and converted domestic properties. The Welsh Government has recognised the clearly expressed will of the Assembly and has considered in detail the complex questions raised.  We accept that there is a cost to introducing sprinklers but, as a society, we must seek to prevent avoidable death and injury arising from house fires.


 


The Welsh Government will now develop consultation proposals aimed at requiring fire suppression systems to be installed in all new and converted residential accommodation.  We will take this forward as a matter of priority and, although certain aspects of the regulatory process are outside of our control, our outline programme aims for the regulations to be made in September 2013\.      


In considering the case for the Measure, the Assembly’s Legislative Committee asked that the Welsh Government examine the detailed costs and benefits before making regulations under the Measure. A cost benefit analysis of the proposal to introduce sprinkler systems in new residential premises has been undertaken for the Welsh Government by the Building Research Establishment (BRE).  The summary of this work is at appendix A and I am today publishing this report on the WG website as well as placing a copy in the Members’ Library.


The following sets out the background to the issue and Welsh Government’s intentions for taking forward regulations under the Measure.


### The case for regulation


The reduction in the number of deaths from fires in the home over the last ten years has been significant.  Hard\-wired smoke detectors are already compulsory in new residential premises under building regulations and a major Welsh Government investment programme resulted in hard wired detectors being installed in most existing social housing. The introduction of Reduced Ignition Propensity cigarettes in November 2011 is expected to reduce the incidence of fires started by cigarettes and the number of associated fire deaths. 


Notwithstanding this progress, the number of deaths and injuries is still too high.  On average, over the last 10 years, 17 deaths and 503 injuries have resulted from fires in residential properties each year in Wales.


Appropriately designed and maintained fire suppression systems undoubtedly save lives and prevent injuries, as well as reducing damage from fires.  The British Standard sprinkler system is the highest level of protection from fire currently available; there are other systems available, however the evidence of their effectiveness is not strong and the absence of standards makes regulation difficult.


The BRE report indicates the cost benefit analysis case for installing sprinkler systems in new build care homes, halls of residence and potentially for flats, sheltered flats, and traditional houses in multiple occupation (HMOs).


The study indicates that the cost benefit case is less strong for regulating all new domestic properties but the Welsh Government believes that care is required when considering any policy that has the potential to protect life. Installing sprinkler systems in new residential premises would protect around 6,000 new dwellings each year and would significantly improve fire safety in them.


The absence of sprinkler systems is not the only cause of death and injury in fires.  A range of other factors such as physical or mental impairment, old age, poverty, families with young children, link fire deaths to social deprivation.  We will be commissioning further work to understand more fully the fire risk factors in the existing housing stock and what steps might be available to address these in the future.


### Type of sprinkler systems


The main standard for sprinkler systems for residential premises in Wales and England is the British Standard 9251:2005\.  This requires sufficient pressure to be delivered by the mains or to be tank fed. The likelihood is that installation would require a separate water tank and pump to operate in homes in Wales.. The cost benefit analysis has therefore been based on the costs of including such a system in new residential premises. The cost per residential premises is estimated at £3075 for a house and £879 for a flat (further details on costs are contained in the BRE cost benefit analysis).


A number of other fire suppression systems are marketed worldwide including low pressure or simple systems based on use of the existing mains water supply.  Lower cost systems may be suitable for use in Wales but we have limited evidence of their effectiveness compared to the British Standard.


Fire suppression should be targeted at rooms most likely to give rise to fires.  With the expected reduction in fire deaths in bedrooms and lounges as a result of the introduction of the new Reduced Incendiary Propensity cigarette, the highest risk area is likely to be the kitchen.  There are systems marketed to tackle kitchen fires which could, if standards are developed, provide a regulatory option but, again, we have limited evidence of their effectiveness as they have not been widely installed.


### Regulatory Impact


As a result of current market conditions, some areas of Wales are close to  being unviable for house building as the land and construction costs are at risk of being greater than the price a new house can command. This tendency is prevalent in some parts of South Wales Valleys and other priority regeneration areas.


We will shortly be consulting on proposals to increase the energy efficiency of new build housing in line with our climate change commitments (building Regulations Part L). As part of that work we have looked at the cumulative impact of policies on development including the potential installation of residential sprinklers.


The regulatory impact assessment which will accompany the formal consultation proposals relating to sprinkler systems will be based on the cost benefit analysis undertaken by BRE.


### Development of consultation proposals


Work is commencing on the development of regulations and technical requirements relating to sprinkler systems with the intention of introducing regulations in the second half of 2013\. The proposals, which will be subject to public consultation, will reflect the scope of the Measure: they will be based on the introduction of automatic fire suppression systems in all new and converted residential accommodation, including new housing.


Since our proposed policy deals with construction standards and the inter relationship with Part B of the Building Regulations, development of proposals will be referred to the Statutory Building Regulations Advisory Committee for Wales for advice. It is intended that the committee be augmented by Fire and Rescue and industry experts for this work.  


These proposals are significant and important in taking forward fire safety. Wales will be at the forefront in reducing fire risk and cutting the number of avoidable deaths and injuries caused by fires in residential premises.


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 


 







Translation:


 
  
Ar Chwefror 16 2011 pasiodd Cynulliad Cenedlaethol Cymru un o’r enghreifftiau cyntaf o ddeddfwriaeth breifat gan Aelodau, Mesur Diogelwch Tân Domestig (Cymru) 2011 (y Mesur). Cyflwynwyd y Mesur gan Ann Jones AC. Diben y ddeddfwriaeth hon yw galluogi Gweinidogion i gyflwyno rheoliadau sy’n ei gwneud hi’n orfodol i bob eiddo domestig newydd ac eiddo domestig a addasir i gynnwys systemau awtomatig ar gyfer atal tân. Mae Llywodraeth Cymru wedi cydnabod ewyllys y Cynulliad a fynegwyd yn glir ac mae wedi ystyried mewn manylder y cwestiynau dyrys a godwyd. Rydym yn derbyn bod cost ynghlwm â chyflwyno systemau chwistrellu ond mae’n rhaid i ni, fel cymdeithas, geisio atal unrhyw farwolaethau ac anafiadau a allai ddeillio o danau mewn tai.  
Bydd Llywodraeth Cymru’n mynd ati yn awr i ddatblygu cynigion ymgynghori sy’n ceisio ei gwneud hi’n ofynnol i systemau atal tân gael eu gosod mewn pob eiddo preswyl newydd ac eiddo preswyl a addasir. Byddwn yn bwrw ymlaen â hyn fel mater o flaenoriaeth. Er na allwn reoli rhai agweddau ar y broses reoleiddio ein nod yw sicrhau y daw’r rheoliadau i rym ym mis Medi 2013, yn unol â’n rhaglen amlinellol.        

Wrth ystyried yr achos dros y Mesur, gofynnodd Pwyllgor Deddfwriaethol y Cynulliad i Lywodraeth Cymru archwilio’r costau a’r manteision manwl cyn llunio rheoliadau o dan y Mesur. Mae’r Sefydliad Ymchwil Adeiladu (BRE) wedi cynnal dadansoddiad ar ran Llywodraeth Cymru o gost a budd y cynnig i gyflwyno systemau chwistrellu mewn eiddo preswyl newydd. Ceir crynodeb o’r gwaith hwn yn Atodiad A ac rwy’n cyhoeddi’r adroddiad hwn ar wefan Llywodraeth Cymru ac yn rhoi copi ohono yn Llyfrgell yr Aelodau heddiw.  

Amlinella’r canlynol gefndir y mater ynghyd â bwriadau Llywodraeth Cymru o ran mynd i’r afael â’r rheoliadau o dan y Mesur.

### Yr achos dros reoleiddio

Mae nifer y marwolaethau yn sgil tanau yn y cartref wedi lleihau’n sylweddol dros y deng mlynedd diwethaf. Mae synwyryddion mwg gwifredig eisoes yn orfodol mewn eiddo preswyl newydd yn unol â rheoliadau adeiladu. Mae synwyryddion gwifredig hefyd wedi’u gosod yn y rhan fwyaf o dai cymdeithasol yn sgil rhaglen fuddsoddi sylweddol gan Lywodraeth Cymru. Disgwylir i’r sigaréts sy'n llai tebygol o achosi tân a gyflwynwyd ym mis Tachwedd 2011 leihau nifer y tanau a gaiff eu cychwyn gan sigaréts a nifer y marwolaethau sy’n gysylltiedig â thân.      

Er gwaethaf y cynnydd hwn, fodd bynnag, mae nifer y marwolaethau a’r anafiadau yn parhau’n rhy uchel. Dros y 10 mlynedd diwethaf mae 17 o farwolaethau a 503 o anafiadau wedi’u hachosi gan dân mewn eiddo preswyl yng Nghymru bob blwyddyn, ar gyfartaledd.  

Yn ddiamau mae systemau atal tân sydd wedi’u cynllunio a’u cynnal yn briodol yn achub bywydau ac yn atal anafiadau. Maent hefyd yn lleihau’r difrod a achosir gan danau. System chwistrellu â Safon Prydain yw’r system sy’n cynnig y lefel uchaf bosibl o ddiogelwch rhag tân ar hyn o bryd. Mae systemau eraill ar gael, fodd bynnag, ond nid yw’r dystiolaeth o’u heffeithiolrwydd mor gadarn ac mae rheoleiddio’n anodd yn sgil diffyg safonau.

Mae adroddiad y Sefydliad Ymchwil Adeiladu yn cyflwyno dadansoddiad o’r gost a’r budd a fyddai ynghlwm â gosod systemau chwistrellu mewn cartrefi gofal newydd, neuaddau preswyl ac o bosibl mewn fflatiau, fflatiau lloches a thai traddodiadol amlfeddiannaeth.

Mae’r astudiaeth yn dangos bod yr achos dros gost a budd yn llai cadarn o ran rheoleiddio pob eiddo domestig newydd. Cred Llywodraeth Cymru, fodd bynnag, fod angen bod yn ofalus wrth ystyried unrhyw bolisi a allai ddiogelu bywydau pobl. Byddai gosod systemau chwistrellu mewn eiddo preswyl newydd yn diogelu tua 6,000 o anheddau newydd bob blwyddyn a byddai’n helpu i’w gwneud yn fwy diogel rhag tân.

Nid diffyg systemau chwistrellu yw unig achos marwolaethau ac anafiadau yn sgil tân, fodd bynnag. Mae ffactorau amrywiol eraill sy’n cynnwys namau corfforol neu feddyliol, henaint, tlodi, teuluoedd â phlant ifanc oll yn cysylltu marwolaethau yn sgil tân ag amddifadedd cymdeithasol. Byddwn yn comisiynu rhagor o waith er mwyn ceisio deall yn well y ffactorau risg tân sy’n bodoli o fewn y stoc tai presennol a pha gamau y byddai modd eu cymryd i geisio mynd i’r afael â hwy yn y dyfodol.

### Mathau o systemau chwistrellu

Y brif safon ynghylch systemau chwistrellu ar gyfer eiddo preswyl yng Nghymru a Lloegr yw’r system â Safon Prydain 9251:2005\. Mae angen i ddigon o bwysedd ddod o’r prif gyflenwad dŵr neu o danc dŵr ar gyfer cynnal y system hon. Yn fwy na thebyg byddai’n rhaid gosod tanc dŵr a phwmp ar wahân ar ei chyfer mewn cartrefi yng Nghymru. O’r herwydd mae’r dadansoddiad o’r gost a’r budd yn seiliedig ar gostau sy’n cynnwys gosod system o’r fath mewn eiddo preswyl newydd. Amcangyfrifir y byddai’n costio £3075 i’w gosod mewn eiddo preswyl a £879 i’w gosod mewn fflat (ceir rhagor o fanylion ynghylch y costau yn adroddiad y Sefydliad Ymchwil Adeiladu ynghylch y costau a’r manteision).

Mae nifer o systemau eraill sy’n atal tân hefyd yn cael eu marchnata ar draws y byd, gan gynnwys systemau pwysedd isel neu systemau syml sy’n seiliedig ar y defnydd o’r cyflenwad dŵr presennol. Gallai systemau rhatach fod yn addas i’w defnyddio yng Nghymru ond nid oes digon o dystiolaeth o’u heffeithiolrwydd o’u cymharu â system Safon Prydain.

Dylai camau atal tân gael eu cymryd mewn ystafelloedd lle y mae tanau fwyaf tebygol o gychwyn. Gan y disgwylir i’r sigaréts sy'n llai tebygol o achosi tân leihau nifer y marwolaethau yn sgil tân mewn ystafelloedd gwely a lolfeydd, y gegin yw’r ystafell sy’n peri’r risg fwyaf. Mae rhai systemau ar gyfer ceisio diffodd tanau mewn cegin eisoes yn cael eu marchnata ac efallai y byddai modd eu hystyried at ddibenion rheoleiddio petai rhagor o dystiolaeth ar gael ynghylch eu heffeithiolrwydd a phetaent yn cael eu datblygu ymhellach. Nid oes nifer uchel ohonynt wedi’u gosod hyd yma.  

### Yr Effaith Rheoleiddiol

Nid yw bellach yn hyfyw yn ariannol i adeiladau tai newydd mewn rhai rhannau o Gymru gan y gallai cost y tir a’r costau adeiladu fod yn uwch na’r pris gofyn. Mae’r sefyllfa hon yn amlwg iawn mewn rhannau o Gymoedd De Cymru ac mewn Ardaloedd Adfywio eraill sydd â blaenoriaeth.  

Byddwn yn mynd ati’n fuan i ymgynghori ynghylch cynigion i wella effeithlonrwydd o ran ynni cartrefi newydd yn unol â’n hymrwymiadau ynghylch y newid yn yr hinsawdd (Rhan L Rheoliadau Adeiladu). Fel rhan o’r gwaith hwn rydym wedi ystyried effaith gronnol polisïau ar ddatblygiadau, sy’n cynnwys gosod systemau chwistrellu preswyl.

Bydd yr asesiad effaith rheoleiddiol a fydd yn cyd\-fynd â’r cynigion ymgynghori ffurfiol sy’n gysylltiedig â systemau chwistrellu yn seiliedig ar ddadansoddiad y Sefydliad Ymchwil Adeiladu o’r costau a’r manteision.

### Datblygu cynigion ar gyfer ymgynghori

Mae rheoliadau a gofynion technegol sy’n gysylltiedig â systemau chwistrellu wrthi’n cael eu llunio, a’r bwriad yw cyflwyno’r rheoliadau yn ystod ail hanner 2013\. Bydd y cynigion yn destun ymgynghoriad â’r cyhoedd a byddant yn adlewyrchu cwmpas y Mesur. Bwriedir eu seilio ar gyflwyno systemau awtomatig ar gyfer atal tân mewn llety preswyl newydd a llety preswyl a addasir, sy’n cynnwys cartrefi newydd.  

Gan fod ein polisi arfaethedig yn ymdrin â safonau adeiladu a’r berthynas â Rhan B o’r Rheoliadau Adeiladu, bwriedir ceisio cyngor gan Bwyllgor Cynghori Cymru ar Reoliadau Adeiladu ynghylch datblygu’r cynigion. Bwriedir i arbenigwyr o fewn Gwasanaethau Tân ac Achub ac arbenigwyr o fewn y diwydiant ymuno â’r Pwyllgor ar gyfer y gwaith hwn.    

Mae’r cynigion hyn yn arwyddocaol ac yn hollbwysig wrth i ni geisio hybu diogelwch tân. Bydd Cymru’n chwarae rhan flaenllaw yn y gwaith o leihau risgiau tân a lleihau nifer y marwolaethau a’r anafiadau a achosir mewn tanau y byddai modd eu hatal mewn eiddo preswyl.