Extract of the 2023
White Paper on Fire Service

Materials created by the Fire and Disaster Management Agency wereextracted and translated by the International Fire Service Information Center

The Fire and Disaster Management Agency(FDMA)

Extract of the 2023 White Paper on Fire Service
Table of Contents
Chapter 1 Current Status and Challenges for Disasters
Section1 Fire Prevention /Japanese original P.3............................................................................................. 1[ Current Status and Recent Trends with Fires ] ........................................................................................................ 1[ Current Status of Fire Prevention Administration ] /Japanese original P.15.......................................................... 2
1. Current Status of Residential Fire Alarm Installation.......................................................................................... 2
2. Fire Prevention Properties................................................................................................................................... 2
3. Fire Prevention Management System.................................................................................................................. 2(1) Fire Prevention Managers................................................................................................................................ 2(2) Supervisors of Fire Prevention Management................................................................................................. 2(3) Periodic Inspection and Reporting System for Fire Prevention Properties.................................................. 3
4. Disaster Prevention Management System........................................................................................................... 4(1) Disaster Prevention Managers........................................................................................................................ 4(2) Supervisors of Disaster Prevention Management.......................................................................................... 4
5. Onsite Inspections and Corrections of Violations............................................................................................... 4(1) Current Status of Onsite Inspections and Corrections of Violations............................................................. 4(2) Fire Safety Certification Mark System............................................................................................................. 5(3) Initiation of a System for Publicly Announcing Violating Properties............................................................. 5
6. Fire Protection Equipment, etc............................................................................................................................. 5(1) Current Status of Fire Prevention Consent..................................................................................................... 5(2) Current Status of the Installation of Fire Protection Equipment, etc............................................................. 5(3) Fire Protection Equipment Engineers and Fire Protection Equipment Inspectors....................................... 5(4) Flame Retardancy Regulations....................................................................................................................... 6(5) Regulations for Equipment and Tools that Use Fire....................................................................................... 6
7. Inspection System for Fire Protection Machinery and Tools, etc....................................................................... 6(1) Inspections....................................................................................................................................................... 6(2) Self-labeling..................................................................................................................................................... 6
8. Performance Inspections of Technical Standards for Fire Protection Equipment, etc...................................... 7
9. Current Status of Investigations into the Causes of Fires................................................................................... 7
10. Promoting Countermeasures to Product Fires.................................................................................................... 7

Section2	Countermeasures to Disasters at Facilities for Hazardous Materials/Japanese original P.25...................................................................................................................... 9[ Current Status and Recent Trends in Disasters at Facilities for Hazardous Materials ].............................................. 9
1. Fire Accidents....................................................................................................................................................... 9(1) Number of Fire Accidents at Facilities for Hazardous Materials and their Damage..................................... 9(2) Causative Factors behind the Fire Accidents at Facilities for Hazardous Materials.................................. 10(3) Fire Accidents at Unauthorized Facilities..................................................................................................... 10(4) Fire Accidents during the Transportation of Hazardous Materials.............................................................. 10(5) Fire Accidents during the Temporary Storage or Handling.......................................................................... 11
2. Spillage Accidents.............................................................................................................................................. 11(1) Number of Spillage Accidents at Facilities for Hazardous Materials and their Damage............................ 12(2) Causative Factors behind the Spillage Accidents at Facilities for Hazardous Materials........................... 12(3) Spillage Accidents at Unauthorized Facilities.............................................................................................. 13(4) Spillage Accidents during the Transportation of Hazardous Materials....................................................... 13(5) Spillage Accidents during the Temporary Storage or Handling................................................................... 13[ Current Status of Hazardous Materials Administration ] /Japanese original P.28.............................................. 13
1. Regulations on Hazardous Materials................................................................................................................. 13(1) Regulatory Structure for Hazardous Materials............................................................................................. 13(2) Hazardous Material Engineers...................................................................................................................... 13(3) Safety Systems at Offices.............................................................................................................................. 14(4) Safety Inspections......................................................................................................................................... 14(5) Onsite Inspections and Orders...................................................................................................................... 14i

2. Securing Petroleum Pipelines............................................................................................................................ 14(1) Safety Regulations for the Petroleum Pipeline Business............................................................................. 14(2) Ensuring the Safety of Petroleum Pipelines................................................................................................. 15

Section3	Countermeasures to Disasters at Petroleum Industrial Complexes/Japanese original P.32.................................................................................................................... 16[ Current Status and Recent Trends in Disasters at Petroleum Industrial Complexes ].............................................. 16
1. Number of Accidents and Damage.................................................................................................................... 16
2. Characteristics of Accidents.............................................................................................................................. 16(1) Number of General Accidents by Type of Accident..................................................................................... 16(2) Number of General Accidents by Cause of Accident................................................................................... 16(3) Number of General Accidents by Type of Specified Business Establishment............................................ 17(4) Number of General Accidents at Specified Business Establishment by Type of Business Category....... 17[ Current Status of Countermeasures to Disasters at Petroleum Industrial Complexes ]/Japanese original P.34 ..................................................................................................................................... 17
1. Current Status of Special Disaster Prevention Areas........................................................................................ 17
2. Disaster Prevention Systems in Prefectures and at Firefighting Agencies...................................................... 17(1) Establishing Disaster Prevention Schemes.................................................................................................. 17(2) Emergency Responses when Disasters Occur............................................................................................ 17(3) Maintaining the Firefighting Capabilities of Municipalities Containing Special Disaster Prevention Areas............... 19
3. Disaster Prevention Systems at Specified Business Establishments.............................................................. 19(1) Establishing Disaster Prevention Organizations for Self-defense............................................................... 19(2) Installation of High Capacity Foam Systems................................................................................................ 19(3) Enhancing Disaster Prevention Systems for Self-defense.......................................................................... 19
4. Layout Regulations for Business Establishments............................................................................................. 19(1) Layout Regulations........................................................................................................................................ 19(2) Status of New Establishment Notifications, etc. ......................................................................................... 20
5. Other Disaster Countermeasures....................................................................................................................... 20(1) Establishing Disaster Response Systems.................................................................................................... 20(2) Establishing Green Buffer Zones for Disaster Prevention............................................................................ 20
6. Recent Disaster Countermeasures at Petroleum Industrial Complexes.......................................................... 20(1) Liaison Conferences of the FDMA and Related Ministries to Examine Disaster Prevention Measures
at Petroleum Industrial Complexes, etc. ...................................................................................................... 20(2) Earthquake and Tsunami Measures for Petroleum Industrial Complexes, etc........................................... 20(3) Skill Contest for Self-defense Disaster Prevention Organizations at Petroleum Industrial Complexes, etc. ....... 20(4) Holding Investigative Committee Meetings on the Disaster Prevention Systems of Petroleum
Industrial Complexes, etc. ............................................................................................................................ 21

Chapter 2 Fire and Disaster Prevention Organizations and Activities
Section1 Fire Service Structure /Japanese original P.63........................................................................... 22

1. Fire Defense Organizations................................................................................................................................ 22(1) Standing Firefighting Agencies..................................................................................................................... 22(2) Volunteer Fire Corps...................................................................................................................................... 22
2. Fire and Disaster Defense Facilities, etc............................................................................................................ 23(1) Maintenance of Fire Trucks and Other Vehicles........................................................................................... 23(2) Fire Defense Communication Equipment..................................................................................................... 23(3) Water Sources for Firefighting....................................................................................................................... 24

Section 4 Education and Training Structure /Japanese original P.81........................................................ 25

1. Education and Training for Firefighters.............................................................................................................. 25
2. On-the-job Training............................................................................................................................................. 25
3. Education and Training at Fire Academies........................................................................................................ 25(1) Establishment of Fire Academies.................................................................................................................. 25(2) Types of Education and Training................................................................................................................... 25
4. Education and Training and Technical Assistance at the Fire and Disaster Management College................ 25(1) Enrollment in Education and Training........................................................................................................... 25(2) Facilities and Equipment............................................................................................................................... 26(3) Technical Assistance for Fire Academies..................................................................................................... 26ii

Section 5 Ambulance Service System /Japanese original P.84.................................................................. 27

1. Implementation of Ambulance Services............................................................................................................ 27(1) Ambulance Service Dispatch........................................................................................................................ 27(2) People Transported by the Severity of Their Injury or Illness...................................................................... 27(3) People Transported by Ambulance by Age Group and Type of Incident.................................................... 27(4) Time Required to Arrive at the Scene........................................................................................................... 27(5) Time Required to Check the Patient into a Hospital.................................................................................... 28(6) First-aid Treatment Administered by Ambulance Team Members............................................................... 28
2. Implementation Structure for Ambulance Services........................................................................................... 28(1) Number of Municipalities Offering Ambulance Services.............................................................................. 28(2) Number of Ambulance Teams, Ambulance Team Members and Associate Ambulance Team Members.......... 28(3) Trends in the Number of EMTs and Ambulance Teams with EMTs.............................................................. 29(4) Number of Ambulances................................................................................................................................. 30(5) Ambulance Services along National and Other Expressways..................................................................... 30
3. Promoting Coordination between Firefighting and Medical Care.................................................................... 30(1) Standards on Patient Transport and Their Acceptance............................................................................... 30(2) Ambulance Medical Care Structure.............................................................................................................. 31(3) Acceptance of People Using Ambulance Transport at Medical Institutions............................................... 31
4. Promotion of More Sophisticated Ambulance Services................................................................................... 32(1) Promotion of Education for Ambulance Service Personnel......................................................................... 32(2) Increase in the Treatment Scope of EMTs.................................................................................................... 32(3) Enhancement of Medical Control System.................................................................................................... 32(4) Use of Emergency Resuscitation Statistics (Utstein data)........................................................................... 33

Section 6 Rescue System /Japanese original P.96...................................................................................... 34

1. Implementation Status for Rescue Activities..................................................................................................... 34(1) Number of Rescue Activities and Number of People Rescued................................................................... 34(2) Implementation Status of Rescue Activities by Type of Incident................................................................ 34
2. Implementation Structure for Rescue Activities................................................................................................ 34(1) Number of Rescue Crews and Number of Rescue Crew Members............................................................ 34(2) Possession Status of Rescue Equipment for Rescue Activities.................................................................. 35
3. National Firefighting and Rescue Skills Meets.................................................................................................. 35

Section 8	Integrated Fire Service Support and National Fire-Service Team for Disaster Response/Japanese Original P.104............................................................................................................... 36

1. Integrated Support System for Fire Service...................................................................................................... 36(1) Mutual Support Agreement for Fire Services............................................................................................... 36(2) Establishment of Integrated Support System for Fire Service.................................................................... 36
2. National Fire-Service Teams for Disaster Response........................................................................................ 36
	(1) Creation of National Fire-Service Teams for Disaster Response and Their Enshrinement in
Law via Revisions to the Fire Defense Organization Act............................................................................. 36(2) Organization of and Dispatch Plans for National Fire-Service Teams ........................................................ 38(3) Number of National Fire-Service Teams Registered and Their Equipment................................................. 40

Attachment

Attachment 1-1-2 Extent of fire damage by prefecture /Japanese original P.6 (Attachment)............................ 42iii

Chapter 1 Current Status and Challenges for Disasters

Section1 Fire Prevention☞ Japanese Original P.3

year-on-year (YoY)), or 82.2% of the 44,189 fires that
occurred ten years prior (2012). Furthermore, the numberof fatalities from fires has also largely been trending
downward since 2012. The number of fatalities fromfires in 2022 was 1,452 (an increase of 35, or 2.5% YoY),
or 84.4% of the 1,721 fatalities of ten years ago (2012).
(Fig.1-1-1, Attachment 1-1-9, untranslated)

Current Status and Recent Trends with Fires
Looking at the number of fires since 2012, there has
been a downward trend. The number of fires that occurredin 2022 totaled 36,314 (an increase of 1,092, or 3.1%

Fig. 1-1-1 Changes in the number of fires and their trends(Notes) 1 Prepared based on “Fire Reports”.
2 The figures for each year are calculated from fires that occurred between January and December. The same holds true in this section
hereinafter unless otherwise noted.
3 See the left axis for the number of fires, number of fatalities, number of fires ratio, building floor area burned ratio, number of fatalities ratio,
and amount of damages ratio, and the right axis for the building floor area burned and the amount of damages.
4 The number of fires ratio, building floor area burned ratio, number of fatalities ratio, and amount of damages ratio are ratios found by taking
the values from 2012 to be 100.

-omitted-1

Chapter 1 Current Status and Challenges for Disasters☞ Japanese Original P.15

3. Fire Prevention Management System

Current Status of Fire Prevention Administration(1) Fire Prevention Managers
The Fire Service Act requires that people withmanagement authority for fire prevention properties that
contain large numbers of people (hereinafter referred toas “management officials” in this section) appoint fire
prevention managers*5 who form the core of voluntary
fire prevention management structures, and to havethem perform operations necessary for fire prevention
management that stipulate the implementation of
firefighting, reporting, and evacuation drills.
As of March 31, 2023, the number of fire prevention
properties that were legally required to establish fire
prevention management structures and appoint fire
prevention managers totaled 1,079,072 nationwide. Of
these, 900,456 properties, which corresponds to 83.4%,
have appointed fire prevention managers and notified
firefighting agencies to this effect.
Additionally, the number of fire prevention properties
where the fire prevention manager has prepared a fire
prevention plan for fire prevention management*6 in orderto carry out proper fire prevention management operations
at their own office and notified firefighting agencies tothis effect was 852,516, or 79.0% of the total number ofproperties. (Attachment 1-1-55, untranslated)

1. Current Status of Residential Fire
Alarm Installation
The Fire Service Act and municipal ordinances
require the installation of residential fire alarms, and fire
departments nationwide are working with volunteer fire
corps, women’s (female) firefighting clubs, voluntarydisaster prevention organizations to ensure that they
are installed and maintained. As of June 1, 2023, thenationwide installation rate*1 was 84.3% and the ordinancecompliance rate*2 was 67.2%. When viewed by prefecture,
Fukui Prefecture had the highest installation rate, and thehighest ordinance compliance rate. (Attachment 1-1-54,
untranslated).

2. Fire Prevention Properties
The Fire Service Act defines the primary properties
that are subject to fire prevention administration, such asarchitectural structures, as “fire prevention properties.” Italso mandates the establishment of personnel structures
for fire prevention, the installation of fire protection
equipment, etc.*3 and the use of flame retardant materials
at those fire prevention properties listed in Appended
Table I of the Order of Enforcement for the Fire Service
Act according to their purpose, size, and so forth.
As of March 31, 2023, the number of fire prevention
properties throughout Japan totaled 4,265,132 (thisnumber is from the Survey on the Actual Conditions ofFire Prevention Properties (targeting those fire prevention
properties listed in Appended Table I of the Order of
Enforcement for the Fire Service Act that are listed in(1) through (16-3) and have a total area of 150m 2 orlarger, and those listed in (17) through (19)); the same
hereinafter).
Moreover, the number of fire prevention properties
in the 21 major cities (special wards of Tokyo andordinance-designated cities) was 1,225,893, accountingfor 28.7% of the total number of fire prevention properties
throughout Japan. Those properties that are particularly
concentrated in urban areas include underground malls(86.4% of the national total), semi-underground malls*4(85.7% of the national total), stores engaged in sexrelated businesses, etc. (60.3% of the national total).
(Table 1-1-1)

*1
*2
*3
*4
*5
*6
*7

(2) Supervisors of Fire Prevention Management
For properties like high-rise buildings (buildings thatare taller than 31m high), underground malls, semiunderground malls, and other specified properties subject
to fire prevention measures*7 at or above a certain size
where management authority has been divided up, the Fire
Service Act stipulates that fire prevention managers areto be appointed to carry out fire prevention management
for each area where management authority exists. At thesame time, it also states that supervisors of fire prevention
management are to be appointed in consultation with fire
prevention managers in order to carry out fire prevention
management for the building as a whole in an integrated
manner. It also mandates that each management official is
obligated to ensure the safety of the entire fire prevention
property by preparing firefighting plans for fire prevention
management for said property as a whole, and by
conducting firefighting, reporting, and evacuation drills.
As of March 31, 2023, the number of fire prevention
properties that were required to appoint supervisors of fire
prevention management totaled 90,756 nationwide. Of
these, 60,580, or 66.8%, have appointed supervisors of fire

The installation rate: The share of households that have installed residential fire alarms in at least one location of the sections of their home in which
they are obligated to do so by municipal fire prevention ordinances (including households that are exempt from installing residential fire alarms on
account of having installed fire alarm systems, etc.) out of the total number of households.
The ordinance compliance rate: The share of households that have installed residential fire alarms in every section of their home in which they are
obligated to do so by municipal fire prevention ordinances (including households that are exempt from installing residential fire alarms on account of
having installed fire alarm systems, etc.) out of the total number of households.
Fire protection equipment, etc.: Equipment for extinguishing fires, evacuation, and other fire prevention activities (fire extinguishers, sprinkler systems,
automatic fire alarms, fire escape equipment, guide lamps, etc.)
Semi-underground mall: A combination of an underground passage and shops established in the basement of a building that stand in a row facing
this underground passage.
Fire prevention managers: People who have been appointed from among those management officials who have certain qualifications, such as having
completed a training course on fire prevention management for fire prevention properties, and who are in a managerial or supervisory position where
they can appropriately carry out the operations necessary for fire prevention management at said properties.
Fire prevention plan for fire prevention management: These are plans that establish matters which are necessary for fire prevention management.
Specified properties subject to fire prevention measures: Certain properties under fire prevention measures that include department stores,
restaurants, and other properties that can accommodate large numbers of people, as well as hospitals, nursing homes for the elderly, kindergartens,
and other properties used by people who would require assistance during a disaster.

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Chapter 1 Current Status and Challenges for Disasters
Table 1-1-1 Number of fire prevention properties
Classification of fire prevention properties
a Theaters, etc.
(1)b Public halls, etc.

Nationwide

21 majorcities

4,536

634

63,888(As of March 31, 2023)

Percentage
Classification of fire prevention properties Nationwide
(%)

6,236

(2)

(3)

(%)

(3) Nursery schools, etc.

39,031

8,856

22.7

9.8

(4) Child development support
centers, etc.

4,928

815

16.5

(5) Welfare centers fordisabled persons, etc.

25,175

4,347

17.3

693

139

20.1

(6)

8,074

1,483

18.4

Subtotal

92,38918,112

19.6

c S tores engaged in sex-related
businesses, etc.

151

91

60.3

d Kindergartens, etc.

15,137

3,818

25.2

d Karaoke box and stores, etc.

2,153

547

25.4

(7)

Schools

124,252

28,14422.7

a Restaurants, etc.

2,292

410

17.9

(8)

Libraries, etc.

7,664

865

11.3

b Eating and drinking houses

85,56817,755

20.7

a Special bathhouses

1,387

625

45.1

157,057

28,425

18.1

b General bathhouses

3,763

829

22.0

59,976

7,875

13.1

(10)

Railroad depots

3,872

1,429

36.9

1,396,382

544,719

39.0

(11)

Temples and shrines, etc.

58,822

12,396

21.1

6,199

1,022

16.5

a Factories, etc.

481,344

70,620

14.7

406

140

34.5

a Parking lots, etc.

52,648

13,841

26.3

b Aircraft hangars

948

87

9.2

b Game centers, etc.

(4) Department stores, etc.
(5)cities14.0ca Cabarets, etc.

(Asof March
31, 2018)
21 major
Percentage

a Hotels, etc.
b Apartment houses, etc.
(1) H ospitals that require patient
assistance for evacuation

(9)

(12)

(2) C
 linics with 19 beds or lessthat need patient assistance for
evacuation

2,688

536

19.9

a (3) Hospitals(not including those listedin (1)), Clinics with 19 beds orless(not including those listed in (2))
and maternity homes with beds

9,108

2,301

25.3

(4) C
 linics with no in-patient capacity,maternity homes without beds

46,466

8,933

19.2

Subtotal

64,461

12,79219.8(14)Warehouses

339,188

53,27915.7(1) Short-term welfare facilities for theelderly

46,582

9,127

19.6

(15)

Offices, etc.

501,872

111,227

22.2

223

36

16.1

a S
 pecified multipurpose fire
prevention properties

386,341

147,32538.1

b U nspecified multipurpose
fire prevention properties

283,112129,287

45.7

59

51

86.4

(6)

(2) Sheltersbcb Studios

(13)

(16)
(3) Nurseries

133

28

21.1

(4) Welfare facilities for disabledchildren

478

77

16.1 (16-2) Underground malls(5) Support facilities for the disabled

8,334

1,440

17.3 (16-3) Semi-underground malls

7

6

85.7

Subtotal

55,75010,70819.2(17)

Cultural properties

9,683

1,534

15.8

(1) Elderly daycare centers, etc.

23,067

4,054

17.6

(18)

Arcades

1,257

464

36.9

188

40

21.3

(19)

Mountain forests

0

0

−

Total

4,265,132

1,225,893

28.7(2) Rehabilitation facilities(Notes) 1 Prepared based on the Survey on the Actual Conditions of Fire Prevention Properties (targeting those fire prevention properties listed inAppended Table I of the Ordinance of Enforcement for the Fire Service Act that are listed in (1) through (16-3) and have a total area of 150m2
or larger, and those listed in (17) through (19); the same hereafter).
2 The 21 major cities refer to the 23 wards of Tokyo and 20 ordinance-designated cities (Sapporo City, Sendai City, Saitama City, Chiba City,
Yokohama City, Kawasaki City, Sagamihara City, Niigata City, Shizuoka City, Hamamatsu City, Nagoya City, Kyoto City, Osaka City, Sakai City,
Kobe City, Okayama City, Hiroshima City, Kitakyushu City, Fukuoka City, and Kumamoto City).

prevention management and notified firefighting agencies
to this effect.
Furthermore, the number of fire prevention properties
that have prepared overall fire prevention plans in orderto carry out fire prevention management for the building
as a whole in an integrated manner, and that have notified
firefighting agencies to this effect was 58,419, or 64.4%of the total number of properties. (Attachment 1-1-56,
untranslated)

officials at fire prevention properties with certain purposesor structures have people with expertise in fire prevention(hereinafter referred to as “qualified inspectors of fire
prevention properties” in this section) perform inspections
and report the inspection results to firefighting agencies
once a year.
These qualified inspectors of fire prevention properties
consist of people with a certain level of fire prevention
knowledge, such as fire protection equipment engineers*8
with three or more years of practical experience inconstruction work for fire protection equipment, etc., orpeople with three or more years of practical experience
as fire prevention managers. They must also complete(3) Periodic Inspection and Reporting System forFire Prevention Properties
The Fire Service Act mandates that management*8

Fire protection equipment engineer: A person with expert knowledge of fire protection equipment etc. who has been issued a fire protection
equipment engineer certification.

3

Chapter 1 Current Status and Challenges for Disasters

a training course offered by a corporation that has
been registered by the Minister of Internal Affairs andCommunications, and have been issued a certificate
attesting that they have acquired the necessary knowledge
and skills regarding inspections for fire prevention
properties.
As of March 31, 2023, the number of such inspectors
totaled 35,323.
In addition, fire prevention properties for which periodic
inspection reports have been mandated and for which
three years have passed since the start of management are
exempted from the obligation of inspections and reports
for three years if they are certified as being in goodcompliance with the standards of the Fire Service Act
through an inspection conducted by a firefighting agency
on the basis of an application from the management
officials from said fire prevention property.
Fire prevention properties that have been acknowledged
as being in compliance with the inspection standards by
a qualified inspector of fire prevention properties may
display a “Fire Prevention Standard Inspection Certificate
of Completion.” Those that have been acknowledged ashaving excellent compliance with the standards in fire
prevention laws and ordinances by firefighting agencies
may display a “Fire Prevention Certificate of Excellence.”of the total. The number of said properties that haveestablished fire defense organizations for self-protection
came to 9,187, or 90.9% of the total. (Attachment 1-1-57,
untranslated)(2) Supervisors of Disaster Prevention
Management
For those properties that require disaster prevention
management where management authority has been
divided up, the Fire Service Act stipulates that disasterprevention managers are to be appointed to carry out
disaster prevention. At the same time, it also stipulates
that supervisors of disaster prevention management are
to be appointed in consultation with disaster prevention
managers in order to carry out disaster prevention
management for the building as a whole in an integrated
manner. Each management official is obligated to ensure
fire and disaster safety for the disaster prevention property
as a whole.
As of March 31, 2023, the number of fire prevention
properties that were required to appoint supervisors of
disaster prevention management totaled 3,253 nationwide.
Of these, 2,716, or 85.3%, have appointed supervisors of
disaster prevention management and notified firefighting
agencies to this effect.
Furthermore, the number of disaster prevention
properties that have prepared firefighting plans for thewhole building in order to carry out disaster prevention
management for the building as a whole in an integrated
manner, and that have notified firefighting agencies to thiseffect, was 2,658, or 81.7% of the total. (Attachment 1-158, untranslated)

4. Disaster Prevention Management
System(1) Disaster Prevention Managers
In order to handle imminent threats such as major
earthquakes, the Fire Service Act mandates that thosepeople with authority for the management of large-scaleand high-rise buildings and the like are to prepare fire
prevention plans for disaster prevention management*9
suited to earthquakes and other disasters, appoint disasterprevention managers *10 responsible for emergency
preparedness and evacuation drills related to damage
specific to earthquakes, and establish fire defense
organizations for self-protection *11 to carry out thenecessary operations in order to mitigate damage fromfires and other disasters.
As of March 31, 2023, the number of properties underdisaster prevention measures that were legally required
to establish disaster prevention management systems
and appoint disaster prevention managers totaled 10,105
throughout Japan. Of these, 8,639, or 85.5%, haveappointed disaster prevention managers and notified
firefighting agencies to this effect.
Furthermore, the number of properties under disasterprevention measures at which the disaster prevention
manager has prepared firefighting plans for disasterprevention management, in order to carry out theappropriate disaster prevention management operations
at their own offices and other establishments, and notified
firefighting agencies to this effect was 8,342, or 82.6%

 . Onsite Inspections and Corrections of5
Violations(1) Current Status of Onsite Inspections andCorrections of Violations
Firefighting agencies enter fire prevention properties
to perform onsite inspections pursuant to the Fire Service
Act when it is necessary to do so for the sake of fire
prevention.
The number of times onsite inspections were carriedout by firefighting agencies throughout Japan in FY2022
totaled 758,410. (Attachment 1-1-59, untranslated)
Fire chiefs or fire station chiefs may order measuresthat must be taken with respect to deficiencies in fire
prevention management at fire prevention properties, suchas failure to install fire protection equipment, or otherproblems brought to light through onsite inspections. Suchmeasures include appointing fire prevention managers
and installing fire protection equipment or special fire
protection equipment, etc., pursuant to the Fire ServiceAct.
In addition, in cases where this is recognized as posing
a hazard for fire prevention, necessary measures such

*9Fire prevention plans for disaster prevention management: These are plans that establish matters which are necessary for disaster prevention
management.
*10 Disaster prevention managers: People who have been appointed from among those management officials who have certain qualifications, suchas having completed a training course on disaster prevention management, and who are in a managerial or supervisory position where they canappropriately carry out the operations necessary for disaster prevention management at disaster prevention properties.
*11 Fire defense organizations for self-protection: These are personal organizations comprised of people like employees at properties under fire
prevention measures. They carry out the operations necessary in order to mitigate the damage from fires and other disasters when they occur basedon the roles established in the firefighting plan.

4

Chapter 1 Current Status and Challenges for Disasters

as repairs, relocation, elimination of hazards, as wellas prohibition or restriction of use of the relevant fire
prevention property may be ordered pursuant to the Fire
Service Act. The act also states that in the event that suchan order is issued, public notice shall be given.
In cases where violations of fire prevention laws orordinances are discovered as a result of such onsite
inspections, the fire chief or fire station chief works toredress these violations to bring them back into legal
compliance, such as by issuing warnings or other remedial
instructions, orders, etc. (Attachment 1-1-60, 61, 62, 63,
untranslated)
Particularly for properties with serious violations(buildings that are required to have indoor fire hydrant
systems, sprinkler systems, or automatic fire alarmsystems installed but do not have any such fire protection
equipment installed or are in a state where the originalfunction of such equipment is impaired), because of thehigh risk of fire, the fire chief or fire station chief provides
focused corrective guidance based on the seriousnessof the violation, and if the corrective guidance is notfollowed, implements measures such as warnings andorders to have the violation corrected as soon as possible.
(Attachment 1-1-64, untranslated)prevention for buildings starting from the design stage intheir capacity as experts on fire prevention.
The number of cases processed regarding fire prevention
consent work throughout Japan in FY2022 totaled
200,289, with only 10 of these failing to receive consent.
(Attachment 1-1-65, untranslated)(2) Current Status of the Installation of Fire
Protection Equipment, etc.
The Fire Service Act states that the relevant personnel
from fire prevention properties must install and properly
maintain the necessary fire protection equipment, etc.
according to the purpose, size, structure, and capacity ofthe property in question.
A look at the installation status of primary fire
protection equipment, etc. in specified fire prevention
properties throughout Japan reveals that, as of March 31,
2023, the installation rate for sprinkler systems (number
installed vs. number that need to be installed) was 99.9%,
while the rate for automatic fire alarms was 99.6%.
(Attachment 1-1-66, untranslated)
With respect to the technical standards pertaining tofire protection equipment, etc., regulations are being
successively set in place in accordance with technologicalprogress and societal demands.
Moreover, regarding properties that violate the Fire
Service Act, such as a violation of the obligation to installfire protection equipment, etc., the government willproactively issue administrative orders and other measures
based on the Fire Service Act to further promote promptand effective handling of violations.

(2) Fire Safety Certification Mark System
This system provides users with information on abuilding’s compliance with laws and ordinances related tofire prevention and construction and hotels, Japanese-style
hotels, and other facilities that conform to the standards
are allowed to display the mark (silver).
In addition, those hotels and other facilities that havebeen issued silver display marks for three years in a
row and which meet the standards related to laws andordinances on fire prevention and construction are allowed
to display a gold display mark.
Visitors to the FDMA’s website can check to confirm
hotels that have been issued the Fire Safety Certification
Mark throughout Japan (reference URL: https://www.
fdma.go.jp/relocation/kasai_yobo/hyoujiseido/).

						

(3) Fire Protection Equipment Engineers and Fire
Protection Equipment Inspectors
Efforts are made to ensure the performance of fire
protection equipment, etc. via the inspector system forfire protection machinery and tools. However, if there
are deficiencies or defects at the installation stage, thensuch equipment will be rendered incapable of performing
properly when a fire does occur. To prevent suchcircumstances, the installation and maintenance of certain
fire protection equipment, etc. can only be performed byfire protection equipment engineers.
Furthermore, fire protection equipment, etc. must be
properly maintained on a daily basis to ensure that it iscapable of performing at any time. As a result, it has been
mandated that periodic inspections be performed and theinspection results be reported. These inspections, which
are a prerequisite for maintenance, require knowledge
and skills with regard to fire protection equipment, etc.
Therefore, the relevant personnel from fire prevention
properties must have fire protection equipment engineers
or fire protection equipment inspectors (people who havecompleted certain training courses offered by corporations
that have been registered by the Commissioner of the
FDMA and been issued a fire protection equipment
inspector certificate) perform the inspections on the fire
protection equipment, etc.
Fire protection equipment engineers and fire protection
equipment inspectors are mandated to undergo re-training
at certain fixed intervals after they have received theirlicense in order for them to acquire new knowledge
and skills concerning the fire protection equipment, etc.
Moreover, these people will be ordered to return theirlicense or face a similar punishment in the event that they(3) Initiation of a System for Publicly Announcing
Violating Properties
The System for Publicly Announcing Violating
Properties is a system for announcing the details of legal
violations on the websites of municipal governments
based on the ordinances of said municipalities. Thisis aimed at specified properties under fire prevention
measures that have not yet installed indoor fire hydrants,
sprinkler systems, or fire alarm systems, despite being
obligated to do so. This announcement system has been
initiated at fire departments nationwide.
Information on things like the implementation statusof the public announcement system and its scheduled
implementation period for municipalities throughout
Japan can be confirmed via the FDMA’s website (reference
URL: https://www.fdma.go.jp/relocation/publication/index.html).

6. Fire Protection Equipment, etc.
(1) Current Status of Fire Prevention Consent
Fire prevention consent is a system that was establishedwith the goal of boosting the safety of buildings by having
personnel from firefighting agencies get involved in fire5

Chapter 1 Current Status and Challenges for Disasters

violate any of the fire prevention laws or ordinances.
As of March 31, 2023, the total number of fire protection
equipment engineers came to 1,320,086 (Attachment 1-167, untranslated). In addition, the number of fire protection
equipment inspectors totaled 783 special inspectors (forspecial fire protection equipment, etc.), 169,848 Class 1
inspectors (for mechanical systems) and 159,747 Class 2
inspectors (for electrical systems).

Tools that Use Fire.

7. Inspection System for Fire Protection
Machinery and Tools, etc.
(1) Inspections
According to the Fire Service Act, fire protection
machinery or tools that are subject to inspection(hereinafter referred to as “machinery and tools subject toinspection” in this section) are prohibited from being sold,displayed for commercial purposes, and so forth unlessthey pass inspections and include a label indicating this.
The machinery and tools subject to inspection include
the 12 items stipulated in the Order for Enforcement of theFire Service Act, including fire extinguishers and enclosed
sprinkler heads.
These inspections consist of “model approvals”(approval by the Minister of Internal Affairs andCommunications indicating that the shape and otherfactors of the machinery and tools conform with thetechnical specifications established in ministerial
ordinances) and “model compliance inspections”(inspections conducted by Japan Fire Equipment
Inspection Institute or registered certification body toconfirm that the shape and other factors of the machineryand tools subject to inspection are identical to the shape,
etc. for models of said equipment that have received
model approval).
Moreover, for machinery and tools subject toinspection with regard to the development of newtechnologies, inspections can be carried out via thetechnical specifications established by the Minister ofInternal Affairs and Communications for those items
that conform to the technical standards established bysaid ministerial ordinance in terms of their shape, etc. or
those acknowledged as having performance that meetsor exceeds this level. Through this, the aim is to enhance
the inspection system so as to promote technologicalinnovation with machinery and tools subject to inspection.
Based on past cases of misconduct, the Fire Service
Act stipulated collection orders by the Minister of Internal
Affairs and Communications and penalties within theverification system for the distribution of nonconforming
products or machinery and tools subject to verification
without conformity marking in the market.
Type approvals in FY2022 included 4 fire extinguishers,
1 fire extinguishing agent for fire extinguishers, 1 fireextinguishing foams, 18 detectors or transmitters for fire
alarm systems, 8 repeaters, 12 receivers, 14 residential firesmoke detectors, 6 enclosed-type sprinkler heads, 6 waterflow detecting devices, 18 deluge valves, 1 metallic escapeladders, and 0 descending devices. The total numberof products that have passed compliance inspection is
25,086,936. (Attachment 1-1-69, untranslated)(4) Flame Retardancy Regulations
A. Usage Status of Flame Retardant Materials
Fire prevention properties that must give forethought
to fire prevention due to their structural features or
configuration, such as high-rise buildings and undergroundmalls, as well as fire prevention properties like theaters,
hotels, and hospitals that are used by large unspecified
numbers of people and people requiring special
consideration have been designated as “flame retardancy
and fire prevention properties.” In these properties, theuse of flame-retardant materials for various items thatare likely to become ignition sources is very effective
in preventing fires from starting and also in controllingthe spread of fires in their initial stages. Therefore, theFire Service Act mandates that these properties use
materials with the prescribed flame retardant performance(hereinafter referred to as “flame retardant materials” inthis section) for curtains, stage curtains, plywood display
boards, carpets, and other goods used (hereinafter referred
to as “goods under the flame retardancy requirement” inthis section).
As of March 31, 2023, the number of flame retardancy
and fire prevention properties totaled 1,001,664. The
conformance rate (share of the flame retardancy and fire
prevention properties where flame retardant materials
are used for all of the goods under the flame retardancy
requirements at said properties) at flame retardancy
and fire prevention properties using curtains and stage
curtains was 88.3%, while it was 88.6% at those using
carpets, and 85.8% at those using plywood display boards.
(Attachment 1-1-68, untranslated)
B. Public Awareness of Flame Retardant Materials
for Bedding and Other Goods
Aside from those goods under the flame retardancy
requirement stipulated in the Fire Service Act suchas curtains and carpets, the use of fireproof materials
for futons, pajamas, automobile and motorcycle bodycovers, etc. is also extremely effective at preventing fires.
Therefore, the FDMA spreads public awareness of theseby uploading videos detailing their effects to its website(reference URL: https://www.fdma.go.jp/relocation/html/
life/yobou_contents/fire_retardant/).
(5) Regulations for Equipment and Tools that Use
Fire
From the perspective of fire prevention, the location,
construction, management, and handling of equipment
and tools that use fire, including home gas burners, stoves,
hot-water heaters, fireplaces, kitchen equipment, andsauna equipment, are regulated via the fire prevention
ordinances established by each municipality. Theseare established pursuant to the Ministerial Ordinance
Establishing Standards for Enacting Ordinances on the
Location, Construction, and Management of Eligible
Equipment that Uses Fire and the Handling of Eligible(2) Self-labelingAccording to the Fire Service Act, manufacturers ofmachinery and tools that are subject to self-labeling(hereinafter referred to as “machinery and tools subject
to self-labeling” in this section) are the responsibilityof manufacturers to confirm their compliance withthe specifications on their own. The system also gives
approval for labeling that have been reported to the
Minister of Internal Affairs and Communications inadvance. And they are prohibited from being sold,

6

Chapter 1 Current Status and Challenges for Disasters

displayed for commercial purposes, and so forth unlessthey include a label.
Similar to machinery and tools subject to inspection,
the Fire Service Act stipulates collection orders via the
Minister of Internal Affairs and Communications andpenal provisions for machinery and tools subject to selflabeling which are not in compliance with the standards,
or which lack labels indicating their compliance.
The machinery and tools subject to self-labeling are six
items specified in the Order for Enforcement of the Fire
Service Act, including power fire pumps and fire hoses.
The number of reports from manufacturers in FY2022
totaled 9 for power fire pumps, 31 for fire hoses, 2 for firesuction hoses, 13 for couplers, 0 for disposable aerosol
fire extinguishers, and 1 for electric leak alarms.

Minister of Internal Affairs and Communications has been
established aimed at equipment for which evaluationsof its equivalence cannot be performed solely throughthe existing objective verification methods (such as
special fire protection equipment, etc.). Under thissystem, applications are made for each property underfire prevention measures regarding special fire protection
equipment, etc. for which general inspection standards
have not have established. The Minister of Internal Affairs
and Communications will then perform an examination
based on the evaluation results from a performance
evaluation agency (the Japan Fire Equipment Inspection
Institute or a registered inspection body), and equipmentthat has been acknowledged as having the necessary levelof performance can be installed. As of March 31, 2023, 78
cases of special fire protection equipment, etc. have been
approved. (Attachment 1-1-70, untranslated)

8. Performance Inspections of TechnicalStandards for Fire Protection Equipment, etc.

9. Current Status of Investigations into
the Causes of Fires

When it comes to the technical standards for fire
protection equipment, etc., technical development in thefields of fire and other disaster prevention is promoted,
and performance regulations are adopted to ensure thateven more effective fire prevention and safety measures
can be established.
The basic philosophy behind this is to judge whether
equipment offers performance that is at or above thelevel of performance of the installed fire protection
equipment, etc. based on the conventional technicalstandards. Equipment that has been confirmed to be at or
above the conventional performance level is approved for
installation in place of existing fire protection equipment,
etc.
The performance demanded of fire protection
equipment, etc. is divided up into three categories. Theseare “initial spread inhibition performance,” which is
performance for inhibiting the spread of fires during theirinitial stages, “evacuation safety support performance,”
which is performance that supports safe evacuating during
fires, and “firefighting activity support performance,”
which is performance that supports the activities offirefighting teams. For those for which a certain levelof knowledge has been obtained, equivalence will beassessed by objective verification methods (methods ofobjectively and impartially verifying newly developed
technologies and technical innovations).
At the same time, a certification system via theInvestigating the causes of fires is unequivocally therole of local governments, but it is the duty of the national
government to complement them in this. In cases where
there has been a request from a firefighting agency, or theCommissioner of the FDMA has deemed that there is aparticular necessity in doing so, an investigation into thecauses of a fire can be carried out by the Commissioner of
the FDMA.
Investigation teams formed from personnel fromthe FDMA according to the type of fire carry out theinvestigations into the causes of the fire through thissystem in coordination with firefighting agencies. The
knowledge and data obtained from the investigations isreflected in policies for fire prevention administration asnecessary. Cases where responses such as the revision offire prevention laws and ordinances were carried out basedon the results of investigations into the causes of fires
conducted by the Commissioner of the FDMA since 2012
are shown in Table 1-1-2.

10. Promoting Countermeasures to
Product Fires
In recent years, as the causes of fires have grown
extremely diverse, products close to the general publicin their daily lives have begun causing fires as well,

Table 1-1-2 Revisions to the fire prevention laws and ordinances based on investigations into thecauses of fires conducted by the Commissioner of the FDMA since 2012№

Date of fire

Location

Building purpose, etc.

Responses by the FDMA1

May 13, 2012

Fukuyama City,
Hiroshima Prefecture

Hotel(10 casualties)

Revised the Order for Enforcement of the Fire Service Act and other legislation, andstrengthened installation standards for automatic fire alarms.
Also restructured and began applying a labeling system that provides users withinformation on buildings that conform to fire prevention standards.

2

February 8, 2013

Nagasaki City,
Nagasaki PrefectureGroup home
(12 casualties)

Revised the Order for Enforcement of the Fire Service Act and other legislation.
Strengthened installation standards for sprinkler systems and mandated that
automatic fire alarms and fire notification alarms be interlinked.

3

August 15, 2013

Fukuchiyama City,
Kyoto Prefecture

Fireworks festival(59 casualties)

Revised the Order for Enforcement of the Fire Service Act and the Fire Prevention
Ordinance (Example). Mandated the submission of plans related to operations
necessary for fire prevention at outdoor event venues at or above a certain size, andmandated that fire extinguishers be prepared.

4

October 11, 2013

Fukuoka City,
Fukuoka Prefecture

Medical clinic(15 casualties)

Revised the Order for Enforcement of the Fire Service Act and other legislation.
Reassessed the installation standards for fire extinguishing equipment, indoor fire
hydrants, sprinkler systems, power fire pump equipment, and fire alarms that notify
firefighting agencies.

7Chapter 1 Current Status and Challenges for Disasters

including automobiles and other vehicles, electronic
appliances, and burning appliances. Given strong demand
to ensure consumer safety and peace of mind, the FDMA
has been strengthening its initiatives to combat theseproduct fires.
For such fires, the FDMA has established a structure
whereby it collects fire information from firefighting
agencies in a comprehensive manner and aggregates thenumber of fires for each type of product which serves
as an ignition source. It then provides the public withwarnings and alerts quickly and effectively.
Fires caused by automobiles, electrical appliances,and combustion equipment during FY2022, which weredeemed to have been caused by defects in these products,
as well as fires where the cause could not be identified,were aggregated. From this, it was discovered that of thetotal of 1,350 product fires, 190 were fires deemed to havebeen caused by product defects, 1,160 were fires (including
under investigation) that could not be determined to haveoccurred from a defect in a specified product as the directcause. (Fig. 1-1-19)
The results of these investigations are reported to

firefighting agencies throughout Japan. Furthermore, thecollected fire information is shared between the Consumer
Affairs Agency, the Ministry of Economy, Trade andIndustry, the Ministry of Land, Infrastructure, Transport
and Tourism, and the National Institute of Technology
and Evaluation (NITE), which work together to promote
countermeasures to product fires.
With respect to investigations into the causes of fires
carried out by firefighting agencies throughout Japan,
efforts are also being made to improve the investigation
skills of firefighting agencies. Examples of this include
providing them with technical support such as scientificinvestigation based on the expert knowledge, equipment,
and materials of the National Research Institute of Fireand Disaster, etc. In addition to working to enhanceinvestigations into the causes of fires and the structures
for this, the FDMA also strives to proactively collectinformation on product fires and strengthen collaborations
with relevant agencies. Through this, it is moving forwardwith ensuring consumer safety and peace of mind, while
preventing fire accidents caused by products.

Fig. 1-1-19 Trends in the survey results on product fires over the past five years(Note) See the FDMA website for details (URL : https://www.fdma.go.jp/mission/prevention/cause/34530.html).

-omitted-8

Chapter 1 Current Status and Challenges for Disasters

Section

2

Countermeasures to Disasters at
Facilities for Hazardous Materials☞ Japanese Original P.25

number of fire accidents since 1989, despite the factthat the number of facilities for hazardous materials has
decreased. Accidents attributable to human factors such as
inadequate maintenance and inadequate operating checks
account for the majority of the primary causes for thesefires.

Current Status and Recent Trends in Disasters
at Facilities for Hazardous Materials
Accidents at facilities for hazardous materials*1 arebroadly classified into fires (including explosions) andspills of hazardous materials*2. The number of fire andspillage accidents at facilities for hazardous materials had
been trending upward since 1994, and has remained flat at
a high level since 2007. In 2022, there were 226 fires and415 spills for a total of 641 accidents. This represents a
decrease of 5 accidents compared with the previous year.
(Fig. 1-2-1)(1) Number of Fire Accidents at Facilities for
Hazardous Materials and their Damage
In 2022, fire accidents at facilities for hazardous
materials caused 2,750.94 million yen in damages (adecrease of 4,295.98 million yen YoY), and they resulted
in 2 deaths (an increase of 2 YoY) and 36 people injured(the same as the previous year). (Fig. 1-2-2)
Looking at the number of fire accidents by type of
facility for hazardous materials, the largest number of fires
occurred at general outlets (152), followed by fuel supply
depots (31), and manufacturing facilities (29). The sum ofthese 3 facility classifications accounts for 93.8% of thetotal accidents. (Fig. 1-2-3)
In terms of substances involved in the cause of fires

1. Fire Accidents
The number of fire accidents that occurred at facilities
for hazardous materials in 2022 was 226 (an increase of 2
YoY). This is an increase of roughly 2.1-times comparedwith the 107 such accidents in 1993, which had the lowest*1

Facilities for hazardous materials: These are facilities that have received authorization from municipal mayors and similar officials as facilities that store
or handle hazardous materials at or above the quantities specified in the Fire Service Act. As described below, they are classified into three types:
manufacturing facilities, storage facilities, and handling facilities
Classification

Details

Manufacturing facilities

Storage facilities

Handling facilities*2

Facilities that manufacture hazardous materials

Indoor storage facilities

Store hazardous materials inside buildings

Outdoor storage tanks

Store hazardous materials in tanks located outdoors

Indoor storage tanks

Store hazardous materials in tanks located indoors

Underground storage tanks

Store hazardous materials in tanks located below the ground’s surface

Simple storage tanks

Stores hazardous materials in small tanks less than 600 L

Transfer storage tanks

Store hazardous materials in tanks that have been affixed to vehicles

Outdoor storage facilities

Store certain hazardous materials in containers in outdoor locations

Fuel supply depots

Handling facilities that fuel vehicles and the like

Sales handling facilities

Stores that sell containers full of hazardous materials

Transfer handling facilities

Handling facilities that transfer hazardous materials through pipes

General outlets

Handling facilities other than the above three types of handling facilities

Hazardous materials: The Fire Service Act (Article 2 Paragraph 7) defines them as such: “The term ‘hazardous materials’ means the materials listed in theNames of Items column of Appended Table 1, which have the properties listed in the Nature column of said table according to the Categories specified insaid table.” Moreover, the properties of each hazardous material are defined for each type in the “Remarks” to Appended Table I of the Fire Service Act.
[Hazardous materials listed in Appended Table I and their characteristics]
Category

NatureProperties

Representative substances

Category 1 Oxidizing solids

These are solids that do not burn themselves, but which have the property of
causing other substances to oxidize powerfully. When mixed with inflammablematerials, they degrade as a result of heat, impacts, or friction, and give rise to
extremely intense combustion.

Sodium chlorate, potassium nitrate,
ammonium nitrate

Category 2 Combustible solids

These are solids that easily ignite from fire or solids that easily catch fire at
relatively low temperatures (less than 40℃). They easily catch fire, are quick to
combust, and are difficult to extinguish.

Red phosphorous, sulfur, ironpowder, solid alcohol, lacquer putty

Spontaneously combustible
These substances spontaneously combust when exposed to air, or either combust Sodium, alkyl aluminum, yellow
Category 3 substances and water-reactive
or generate combustible gasses when they come into contact with water.
phosphorous
substances
Category 4 Inflammable liquids

These are liquids that are inflammable.

Gasoline, kerosene, light oil, heavy
oil, acetone, ethanol

Category 5 Self-reactive substances

These are solids or liquids that generate large quantities of heat at relatively low
temperatures or promote explosive reactions as a result of thermolysis and otherreactions.

Nitroglycerin, trinitrotoluene,hydroxylamine

Category 6 Oxidizing liquids

These are liquids that do not burn themselves, but which have the property ofpromoting the combustion of other flammable substances they are mixed with.

Perchloric acid, hydrogen peroxide,
nitric acid9

Chapter 1 Current Status and Challenges for Disasters
Fig. 1-2-1 Trends in the number of fire and spillage accidents at facilities for hazardous materials(Notes) 1 Prepared based on “Overview of the Accident Reports on Hazardous Materials”.
2 In order to get a grasp of trends regarding the number of accidents that occur in each year, the number of accidents caused by earthquakes
with a seismic intensity of six-lower or greater (since September 1996 this was changed to a seismic intensity of six or greater) is excluded.

Fig. 1-2-2 Number of fire accidents at facilities for hazardous materials and their damage(Note) Prepared based on “Overview of the Accident Reports on Hazardous Materials”.

overheating. (Fig. 1-2-6)(hereinafter referred to as “the causative agent” in thissection), 104 of the 226 fire accidents (or 46.0% of thetotal) were cases where a hazardous material served as thecausative agent for the fire. (Fig. 1-2-4)(3) Fire Accidents at Unauthorized Facilities
The number of fire accidents that occurred at facilities
which were supposed to receive authorization as facilities
for hazardous materials yet which failed to do so(hereinafter referred to as “unauthorized facilities” in thissection) in 2022 was 5 (a decrease of 2 YoY), leaving 0
people dead (the same as the previous year) and 3 injured(the same as the previous year).

(2) Causative Factors behind the Fire Accidents
at Facilities for Hazardous Materials
A look at the causative factors behind the fire accidents
at facilities for hazardous materials that occurred in 2022
reveals that human factors accounted for the largest
number (117), followed by physical factors (82), and otherfactors, including unknown and under investigation cases(27). (Fig. 1-2-5)
When viewed by ignition source, those ignited by hightemperature surface heat were the most common at 42,
followed by 38 from static electricity sparks, 24 from

(4) Fire Accidents during the Transportation ofHazardous Materials
In 2022, 1 fire accidents occurred during thetransportation of hazardous materials (the same as theprevious year).

10Chapter 1 Current Status and Challenges for Disasters
Fig. 1-2-3 Number of fire accidents by type of
facility for hazardous materials

Fig. 1-2-4 Number of fire accidents by causative
agent for the fire

(Notes) 1 Prepared based on “Overview of the Accident Reports on
Hazardous Materials”.         2 Digits in the second decimal place were rounded off, so insome cases the totals may not be consistent.

(Notes) 1 Prepared based on “Overview of the Accident Reports on
Hazardous Materials”.
2 Digits in the second decimal place were rounded off, so insome cases the totals may not be consistent.

Fig. 1-2-5 Number of fire accidents by causative
factorFig. 1-2-6 Number of fire accidents by ignition
source(Notes) 1 Prepared based on “Overview of the Accident Reports on
Hazardous Materials”.
2 Digits in the second decimal place were rounded off, so insome cases the totals may not be consistent.

(Notes) 1 Prepared based on “Overview of the Accident Reports on
Hazardous Materials”.         2 Digits in the second decimal place were rounded off, so insome cases the totals may not be consistent.

(5) Fire Accidents during the Temporary Storage
or HandlingIn 2022, 0 fire accident occurred during the temporarystorage or handling*3 of hazardous materials (the same as
the previous year).

materials that occurred at facilities for hazardous
materials in 2022 was 415 (a decrease of 7 YoY). This is
an increase of roughly 2.4-times compared with the 174
such accidents in 1994 (which had the lowest numberof spillage accidents since 1989), despite the fact thatthe number of facilities for hazardous materials has
decreased. As for the primary causative factors, accidents
attributable to human factors and those caused by physicalfactors both occur in large numbers. However, of those

2. Spillage Accidents
The number of spillage accidents involving hazardous*3

Temporary storage or handling: Temporary storage or handling of hazardous materials in excess of the quantity specified in the Fire Service Act for aperiod of 10 days or less at a place that has not been licensed as a facility for hazardous materials, with the approval of the competent fire chief or firestation chief.

11Chapter 1 Current Status and Challenges for Disasters

accidents caused by physical factors, the number causedby corrosion fatigue, are on the rise.

followed by outdoor storage tanks (78), and fuel supply
depots (63). (Fig. 1-2-8)
In terms of the type of hazardous materials spilled, 404
of the 415 spills involved Category 4 hazardous materials,
mainly petroleum products. Viewing this item type reveals
that Class 2 petroleums (147), Class 3 petroleums (125),
account for most of these, followed by Class 1 petroleums(95) in that order. (Fig. 1-2-9)(1) Number of Spillage Accidents at Facilities for
Hazardous Materials and their Damage
In 2022, spillage accidents at facilities for hazardous
materials caused 566.38 million yen in damages (anincrease of 8.965 million yen YoY), and they resulted in
0 deaths (a decrease of 1 YoY), with 18 people injured (adecrease of 10 YoY). (Fig. 1-2-7)
Looking at the number of spillage accidents by typeof facility for hazardous materials, the largest numberof spillage accidents occurred at general outlets (121),(2) Causative Factors behind the Spillage
Accidents at Facilities for Hazardous Materials
A look at the causative factors behind the spillage
accidents at facilities for hazardous materials that occurredFig. 1-2-7 Number of spillage accidents at facilities for hazardous materials and their damage(Note) Prepared based on “Overview of the Accident Reports on Hazardous Materials”.

Fig. 1-2-8 Number of spillage accidents by typeof facility for hazardous materials

Fig. 1-2-9 Number of spillage accidents bymaterial spilled(Notes) 1 Prepared based on “Overview of the Accident Reports on
Hazardous Materials”.         2 Digits in the second decimal place were rounded off, so insome cases the totals may not be consistent.

(Notes) 1 Prepared based on “Overview of the Accident Reports on
Hazardous Materials”.
2 Digits in the second decimal place were rounded off, so insome cases the totals may not be consistent.

12Chapter 1 Current Status and Challenges for Disasters
Fig. 1-2-10 Number of spillage accidents by
causative factor

a fire once one starts, and (3) Being difficult to extinguishwhen a fire does break out, as “hazardous materials.”
Enacting safety regulations for the storage, handlingand transportation of these hazardous materials has been
posited as a move that will prevent fires, protect the lives,
health, and property of the public from fires, and mitigate
the damage from fires.
An overview of the regulations on hazardous materials
is shown below.
−H azardous materials of volumes at or above thedesignated quantities (the quantity at which authorizationis necessary to store or handle a material as designatedby the Fire Service Act) cannot be stored or handled at
locations other than facilities for hazardous materials.
Persons attempting to establish a facility for hazardous
materials must ensure it is in compliance with thestandards regarding its location, structure, and equipment
specified by law, and receive authorization from themunicipal mayor for this.
−T he transportation of hazardous materials must be
carried out in accordance with the standards for
ensuring safety specified by law, regardless of how
large or small the quantity is.
−Standards for the storage and handling of hazardous
materials in volumes less than the designated quantities
are to be established via municipal ordinances.

(Notes) 1 Prepared based on “Overview of the Accident Reports on
Hazardous Materials”.
2 Digits in the second decimal place were rounded off, so insome cases the totals may not be consistent.

(2) Hazardous Material Engineers
Hazardous material engineers are classified into three
types: Class A, Class B, and Class C. Each class differs in
the types of hazardous materials they can handle. Whenhazardous material engineers or someone else handles
hazardous materials at facilities for hazardous materials,
a Class A or Class B hazardous material engineer must bepresent to ensure safety.
As of March 31 2023, the (cumulative) total numberof people who have passed the hazardous material
engineer test since the hazardous material engineer
system was launched came to 10,161,256 people. They
play a significant role in ensuring safety at facilities forhazardous materials.

in 2022 reveals that human factors accounted for 138
cases, physical factors for 232 cases and tother factors(including unclear and under investigation) for 45 cases.
Among physical factors, 127 cases were caused bycorrosion fatigue and other deterioration and 46 cases werecaused by damage, while among human factors, 57 cases
were caused by inadequate operating checks. (Fig. 1-2-10)(3) Spillage Accidents at Unauthorized Facilities
The number of spillage accidents that occurred atunauthorized facilities in 2022 was 2 (a decrease of 5
YoY), leaving 0 people dead (the same as the previousyear), and 1 injured (a decrease of 1 YoY).
(4) Spillage Accidents during the Transportationof Hazardous Materials
The number of spillage accidents that occurred during
the transportation of hazardous materials in 2022 was 11(an increase of 5 YoY), leaving 0 people dead (the same as
the previous year), and 1 injured (a decrease of 1 YoY).

A. Hazardous Material Engineer Tests
Hazardous material engineer tests were held 4,285 times
throughout Japan in FY2022 (an increase of 7 YoY). They
were taken by 321,632 people (a decrease of 20,860 YoY),
with 127,765 people passing (a decrease of 21,603 YoY)
for an average pass rate of roughly 39.7% (a decrease of
3.9% YoY). (Fig. 1-2-11)
When broken down by test type, Class B (category 4)
has the largest number of test takers, followed by Class
A and Class C, with these three types accounting for
approximately 80% of the total.

(5) Spillage Accidents during the Temporary
Storage or Handling
The number of spillage accidents that occurred during
the temporary storage or handling of hazardous materials
in 2022 was 0 (the same as the previous year).

B. Safety Training Courses
As a general rule, the hazardous material engineers
engaged in handling hazardous materials at facilities forhazardous materials must take a safety training courseon handling hazardous materials offered by prefectural
governors (safety training courses) every three years.
In FY2022, safety training courses were held a total of
1,597 times throughout Japan (a decrease of 256 YoY),
and were attended by 189,249 people (an increase of 1,412
YoY). (Table 1-2-1)☞ Japanese Original P.29

Current Status of Hazardous Materials Administration
1. Regulations on Hazardous Materials(1) Regulatory Structure for Hazardous Materials
The Fire Service Act designates substances withproperties such as: (1) Carrying a significant risk of
causing a fire, (2) Carrying a significant risk of spreading13

Chapter 1 Current Status and Challenges for Disasters
Fig. 1-2-11 Status of tests for hazardous material engineers(Note) Prepared based on “The Statistical Table for the Testing and Certification of Hazardous Material Engineer” and “The Fire Protection Engineers by
the Japan Fire Engineering Qualification Center”.

Table 1-2-1 Number of attendees at safety training courses for hazardous material engineers and a
breakdown of this by type of hazardous material engineer certification(As of March 31 of each FY)
Division

FY

No. ofattendees

Class AClass B
Category 1 Category 2 Category 3 Category 4 Category 5 Category 6

SubtotalClass CTotal
by typeNo. of training
courses2018

182,800

14,813

11,215

11,721

10,106

153,670

11,526

12,444

210,682

24,402249,897

1,452

2019

182,537

14,80911,53912,55810,358

155,943

12,07812,197

214,673

25,452

254,934

1,463

2020

170,774

13,740

10,667

11,7699,969

143,669

11,261

11,458

198,793

23,242

235,775

1,811

2021

187,837

15,572

11,961

13,188

11,256

159,195

13,081

13,217

221,898

25,423262,893

1,853

2022

189,249

16,03912,164

13,51011,656160,669

13,726

13,787

225,51225,696267,247

1,597(3) Safety Systems at Offices
In an effort to establish safety systems at businessestablishments, it has been mandated that the owners
of facilities for hazardous materials that store or handle
hazardous materials at or above certain quantities
must carry out certain obligations. These include
the appointment of hazardous materials security
superintendents, and the selection of safety officers forfacilities for hazardous materials, and the preparationof fire and disaster prevention rules. Moreover, it has
been mandated that said business establishments thatown certain facilities for hazardous materials and that
store or handle hazardous materials at or above certain
quantities must establish fire defense organizations for
self-protection and appoint hazardous material safety
supervising managers.

(5) Onsite Inspections and Orders
Municipal mayors and similar officials can perform
onsite inspections of facilities for hazardous materials
and other such facilities to ensure that their installation,
construction, and establishment of equipment, as wellas their storage or handling of hazardous materials, arein compliance with the standards established in the Fire
Service Act. These can be carried out when said official
deems it necessary to prevent fires caused by the storage
or handling of hazardous materials.
In cases where violations of the Fire Service Act are
discovered as a result of onsite inspections, municipal
mayors and other officials can issue a variety of different
orders to the owners of said facilities for hazardous
materials. These include orders to comply with regulations
on storage and handling, orders to take measures relating
to standards for installing, constructing, or establishingequipment, and more.

(4) Safety Inspections
It has been mandated that the owners of outdoor storage
tanks and transfer handling facilities at or over a certain
size must undergo inspections regarding the safety offacilities for hazardous materials performed by municipal
mayors and similar officials (safety inspections) at regular
fixed intervals according to factors like the facility’s size.

2. Securing Petroleum Pipelines(1) Safety Regulations for the Petroleum Pipeline
Business
Regarding those petroleum pipelines which are used

14

Chapter 1 Current Status and Challenges for Disasters(2) Ensuring the Safety of Petroleum Pipelines
Safety inspections are carried out periodically on thepipelines transporting airplane fuel to Narita International
Airport pursuant to the Petroleum Pipeline Business Act.
In addition, the business operators must do everything
they possibly can to ensure safety, such as having
maintenance and inspections carried out in accordancewith the technical standards established by law.

to transport petroleum in response to general demand,
project licensing, construction plan approval, and safety
inspections are conducted to ensure the safety of thepipeline under the Petroleum Pipeline Business Act.
The facilities to which the Petroleum Pipeline BusinessAct apply currently only include the pipelines transporting
airplane fuel to Narita International Airport.

-omitted-

15

Chapter 1 Current Status and Challenges for Disasters

Section

3

Countermeasures to Disasters at
Petroleum Industrial Complexes☞ Japanese Original P.33

2. Characteristics of Accidents

Current Status and Recent Trends in Disasters
at Petroleum Industrial Complexes(1) Number of General Accidents by Type ofAccident
Looking at the number of general accidents by typeof accident, it reveals that 129 fires (an increase of 23
YoY), 7 explosions (an increase of 4 YoY), 203 leaks (anincrease of 24 YoY), and 10 other accidents (an increaseof 5 YoY). (Attachment 1-3-2, untranslated)

1. Number of Accidents and Damage
The total number of accidents that occurred at specified
business establishments *1 in petroleum industrial
complexes and other special disaster prevention areas(hereinafter referred to as “special disaster prevention
areas” in this section) in 2022 came to 359, of which 349
were accidents other than caused by earthquakes andtsunamis (hereinafter referred to as “general accidents” inthis section), and 10 were accidents caused by earthquakes
and tsunamis (hereinafter referred to as “earthquakeinduced accidents” in this section).
Looking at trends in the number of general accidents
that have occurred reveals that the number of accidents
has been on the rise since 1989, the number of accidents
recorded during 2022 was 349 (an increase of 56 YoY),
the highest number ever. (Fig.1-3-1)
In 2022 there were 25 general accidents (an increase of
4 YoY) that resulted in casualties, with 1 death (the sameas the previous year), and 33 injuries (a decrease of 4
YoY). (Attachment 1-3-1, untranslated)(2) Number of General Accidents by Cause of
Accident
Looking at the number of general accidents by cause, it
reveals that 118 accidents were caused by human factors(an increase of 17 YoY), 213 (an increase of 39 YoY) by
physical factors, and 18 (the same as the previous year) by
other factors.
The main causes were 101 cases of corrosion fatigue
and other deterioration (an increase of 5 YoY), 46 cases of
inadequate maintenance (an increase of 17 YoY), 36 casesof inadequate operating checks (a decrease of 2 YoY), and33 cases of poor workmanship (an increase of 1 YoY).
(Fig. 1-3-2)

Fig. 1-3-1 Trends in the number of accidents that occurred at petrochemical complexes*1

Specified business establishments: These refer to Class 1 business establishments (business establishments where 10,000 kiloliters of petroleum
or more are stored or handled, or where 2 million cubic meters of high-pressure gas or more are processed) and Class 2 business establishments(business establishments where 1,000 kiloliters of petroleum or more are stored or handled, or where 200,000 cubic meters of high-pressure gas ormore are processed).

16

Chapter 1 Current Status and Challenges for Disasters
Fig. 1-3-2 Number of General Accidents by
Cause of Accident

on the Prevention of Disasters in Petroleum Industrial
Complexes and Other Petroleum Facilities, which
stipulates the layout of each facility section, disasterprevention equipment, etc.

1. Current Status of Special Disaster
Prevention Areas
As of April 1, 2023, 78 areas in which large quantitiesof petroleum or high-pressure gas at or above certain
quantities have been designated as special disasterprevention areas in 97 municipalities in 33 prefectures
based on the Act on the Prevention of Disaster inPetroleum Industrial Complexes and Other Petroleum
Facilities. (Fig. 1-3-3) These special disaster prevention
areas are under the jurisdiction of 86 fire departments.
Furthermore, 647 business establishments serve as
specified business establishments subject to the regulationsof the Act on the Prevention of Disaster in Petroleum
Industrial Complexes and Other Petroleum Facilities. Of
these, 322 are Class 1 business establishments (including
145 layout business establishments) and 325 are Class 2
business establishments.

(Note) Digits in the first decimal place were rounded off, so in somecases the totals may not be consistent.

2. Disaster Prevention Systems in
Prefectures and at Firefighting Agencies(3) Number of General Accidents by Type ofSpecified Business Establishment
Looking at the number of general accidents by cause,
it reveals that 275 accidents, or 78.8%, were occurredat Class 1 business establishments (242 of which
layout business establishments *2).( Attachment 1-3-3 ,untranslated)(1) Establishing Disaster Prevention Schemes
The prefectures that contain special disaster prevention
areas are establishing disaster prevention systems in acomprehensive and systematic manner based on the Act
on the Prevention of Disaster in Petroleum Industrial
Complexes and Other Petroleum Facilities. This is being
done through concerted efforts together with relevant
agencies centering primarily on disaster prevention
headquarters at petroleum industrial complexes and otherlocations (hereinafter referred to as “disaster prevention
headquarters” in this section).
The disaster prevention headquarters carry out
operations such as the preparation of disaster prevention
plans for petroleum industrial complexes and otherlocations (hereinafter referred to as “disaster prevention
plans” in this section), coordination with relevant agencies
when disasters strike, and the promotion of researchstudies on disaster prevention.

(4) Number of General Accidents at Specified
Business Establishment by Type of Business
Category
As for the number of general accidents by cause, there
were 141 petroleum and coal product manufacturingindustry-related accidents (an increase of 25 YoY), 108
chemical industry-related accidents (an increase of 10
YoY), 47 steel industry-related accidents (an increase of
13 YoY), and 17 electrical industry-related accidents (adecrease of 3 YoY). (Attachment 1-3-4, untranslated)☞ Japanese Original P.34

(2) Emergency Responses when Disasters Occur
When disasters occur in special disaster prevention
areas, emergency response is carried out in a concerted
manner by the prefecture, municipality, related agencies,
specified business operators (those who have establishedspecified business establishments located in the special
disaster prevention areas), etc. under the leadership ofthe disaster prevention headquarters, as stipulated by thedisaster prevention plan.
The fire department plays an important role in thisprocess by conducting defensive activities and giving
instructions to disaster prevention organizations for selfdefense.

Current Status of Countermeasures toDisasters at Petroleum Industrial Complexes
In order to prevent disasters from occurring andspreading at special disaster prevention areas, wherelarge quantities of petroleum and high-pressure gasses areconcentrated, a comprehensive disaster prevention system
has been established by applying the various regulations
from the Fire Service Act, the High-pressure Gas Safety
Act, the Industrial Safety and Health Act, the Act on
Prevention of Marine Pollution and Maritime Disasters,
etc., as well as by applying the regulations from the Act*2

Layout business establishments: Business establishments from among Class 1 business establishments that handle both petroleum and highpressure gases. Said business establishments are subject to layout regulations (see “Current Status of Countermeasures to Disasters at Petroleum
Industrial Complexes” 4. Layout Regulations for Business Establishments) stipulating that their sites must be segmented off into six types of sections
according to their purpose, with these including manufacturing facility sections and storage facility sections.

17

Chapter 1 Current Status and Challenges for Disasters
Fig. 1-3-3 Designation Status for Special Disaster Prevention Areas(As of April 1, 2023)

No.

Special disasterprevention areas

No.

Special disasterprevention areas

No.

Special disasterprevention areas

No.

Special disasterprevention areas

No.

Special disasterprevention areas

1

Kushiro

13

Iwaki

29

Kanazawa Port north45

Central coast in north
Wakayama

61

Matsuyama

2

Tomakomai

14

Kashima coast

30

Fukui coast

46

Southern coast in
north Wakayama

62

Kitakyushu

2-2 Ishikari

15

North Keiyo coast

31

Shimizu

47

Gobo

63

Shirashima

3

Muroran

16

Central Keiyo coast

32

Atsumi48

Mizushima coast

64

Fukuoka4

Hokuto17South Keiyo coast

33

Tahara49

Fukuyama/
Sasaoka

65

Fukushima

4-2 Shiriuchi

18

Tokyo International
Airport34

Kinuura50

Etajima66

Kamigoto

4-3 Mutsuogawara

19

Keihin coast

35

Port of Nagoya coast

51

Nomi

67

Yatsushiro

5

Aomori

20

Negishi coast

36

Yokkaichi coast

52

lwakuni/Otake

68

Oita

6

Hachinohe

21

Port of Niigata (East)

37

Osaka North Port

53

Shunan69

Kushikino

6-2 Kuji

22Port of Niigata (West)38

Sakai Senboku coast

54

Ube/Onoda

70

Kagoshima

7

Shiogama

23

Naoetsu

39

Kansai International
Airport55

Mutsurejima

71

Kiire

8

Sendai24

Toyama

40

Kobe

56

Anan

72

Shibushi

9

Oga

25

Fuchu

41

Higashiharima

57

Bannosu

73

Henza

10

Akita

26

Shinminato

42

Himeji coast

58

Niihama

74

Onaha

11

Sakata27

Fushiki

43

Ako

59

Namikata

12

Hirono28

Port of Nanao,Mimuro

44

Northern coast in
north Wakayama

60

Kikuma18*78areasChapter 1 Current Status and Challenges for Disasters(3) Maintaining the Firefighting Capabilities
of Municipalities Containing Special Disaster
Prevention Areas
As of April 1, 2023, 65 large chemical firetrucks, 50
large elevated water trucks, 83 foam solution transport
vehicles, 30 large elevated chemical water trucks,
3,042kL of 3% fire-extinguishing foam, 320kL of 6% fireextinguishing foam, 31 fireboats, and other such equipment
had been allocated to firefighting agencies in municipalities
containing special disaster prevention areas. Likewise, 17
foam solution storage facilities, 2 portable foam cannons,
and other such equipment has been allocated to prefecturescontaining special disaster prevention areas.
The FDMA has deployed the Emergency Response Unit
for Energy/Industrial Disasters (“Dragon Hyper Command
Unit”), which specializes in special disasters, to 12 areas
under National Fire-Service Teams, as well as firefighting
robots (Scrum Force), in order to support the developmentof firefighting capabilities for municipalities located in
special disaster prevention areas.

area councils for petroleum industrial complexes(hereinafter referred to as “area councils” in this section)*5.
As of April 1, 2023, disaster prevention organizations
for self-defense had been established at every specified
business establishment (647 business establishments). 70
joint disaster prevention associations, 11 wide-area joint
disaster prevention associations, and 56 area councils
had also been established. These disaster prevention
organizations for self-defense, joint disaster prevention
associations, and wide-area joint disaster prevention
associations are equipped with 5,096 disaster prevention
personnel, 78 large chemical fire trucks, 35 large elevatedwater trucks, 128 foam solution transport vehicles, 117large elevated chemical water trucks, 24 high capacity
foam cannons, 20 oil recovery vessels, and more.
(Attachment 1-3-5, untranslated)(2) Installation of High Capacity Foam Systems
High capacity foam systems are a type of firefighting
equipment that consist of high capacity foam cannons,
feed pumps, foam mixers, and hoses, in order to respondto fires that fully envelop floating roof outdoor storage
tanks. They have the capacity to spray more than 10,000
liters of foam per minute. A single high capacity foam
cannon is capable of spraying up to ten times as muchfoam as a conventional three-piece set (consisting of alarge chemical firetruck, a large elevated water truck, anda foam solution transport vehicle).
At present, high capacity foam systems with thecapacity to spray anywhere from 10,000 to 40,000 liters
per minute are stationed at 12 wide-area joint disasterprevention associations throughout Japan.

3. Disaster Prevention Systems at
Specified Business Establishments(1) Establishing Disaster Prevention
Organizations for Self-defense
The Act on the Prevention of Disaster in Petroleum
Industrial Complexes and Other Petroleum Facilities
mandates that specified business operators must set up
disaster prevention organizations for self-defense, prepare
fire protection equipment, appoint disaster prevention
managers, formulate disaster prevention regulations, andso forth. It also stipulates that they are to establish joint
disaster prevention associations,*3 wide-area joint disasterprevention associations,*4 and special disaster prevention(3) Enhancing Disaster Prevention Systems for
Self-defense
The FDMA has issued standardized and visuallyeasy to understand educational textbooks for disastermanagement personnel education and training, and has
proposed a training model that can be used by both newand experienced personnel to acquire the knowledge
and skills necessary for disaster management, such as
initial response in the event of a disaster and cooperation
with public firefighters, in order to strengthen disastermanagement structures.

4. Layout Regulations for Business
Establishments(1) Layout Regulations
The Act on the Prevention of Disaster in Petroleum
Industrial Complexes and Other Petroleum Facilities
mandates certain standards for layout establishments
regarding the layout of facility areas and the securing ofpassageways within the premises. It also mandates that incases where business establishments are newly establishedThe high capacity foam system

*3
*4
*5

Joint disaster prevention associations: Disaster prevention associations jointly established by the specified business operators involved with specified
business establishments containing a single special disaster prevention area in order to carry out some of the tasks of the disaster prevention
organization for self-defense.
Wide-area joint disaster prevention associations: Joint disaster prevention associations covering a wide area jointly established by specified business
operators involved with specified business establishments containing areas in which there are two or more special disaster prevention areas to carryout tasks related to disaster prevention activities by using high capacity foam cannons and other equipment.
Special disaster prevention area councils for petroleum industrial complexes: These are councils established with the objective of having specified
business operators related to specified business establishments located in a single special disaster prevention area come together to jointly draft
independent standards related to disaster prevention and to carry out joint disaster prevention drills.

19Chapter 1 Current Status and Challenges for Disasters

or change their facility area layouts, they must provide
notification of their plans, and after completion, they must
undergo confirmation to determine whether or not thework is consistent with the relevant plans.
(2) Status of New Establishment Notifications, etc.
The total number of notifications for new establishmentsof or changes to layout business establishments in FY2022
came to 12 (an increase of 6 YoY), while the number ofconfirmations in the same year was 5 (a decrease of 2
YoY). (Attachment 1-3-6, untranslated)

5. Other Disaster Countermeasures(1) Establishing Disaster Response Systems
The Act on the Prevention of Disaster in Petroleum
Industrial Complexes and Other Petroleum Facilities statesthat specified business operators must report to firefighting
agencies or locations specified by municipal mayors
immediately when any abnormal phenomena*6 occur. It
also mandates that disaster prevention organizations for
self-defense, joint disaster prevention associations, andwide-area joint disaster prevention associations must takethe necessary measures in order to prevent disasters fromoccurring and spreading.
(2) Establishing Green Buffer Zones for Disaster
Prevention
In order to prevent damage in special disasterprevention areas from spreading to surrounding regions,
the Act on the Prevention of Disaster in Petroleum
Industrial Complexes and Other Petroleum Facilities has
provisions relating to the drafting of installation plans, theshare of costs to borne by business operators, and special
financial measures for the establishment of green bufferzones for disaster prevention by local governments in thevicinities around said areas.

The poster for Skill Contest for Self-defense Disaster Prevention
Organizations at Petroleum Industrial Complexes, etc.

https://www.fdma.go.jp/relocation/neuter/topics/
fieldList4_16.html)(2) Earthquake and Tsunami Measures for
Petroleum Industrial Complexes, etc.
As there is concern about damage occurring due
to the Nankai Trough Earthquake or Tokyo in Land
Earthquake, based on the state of the damage done by
the Great East Japan Earthquake, work is being done toenhance and strengthen disaster prevention systems at
petroleum industrial complexes, etc., such as revisingdisaster prevention assessment guidelines and handbooks
for disaster prevention efforts of self-defense disasterprevention organizations.

6. Recent Disaster Countermeasures at
Petroleum Industrial Complexes(1) Liaison Conferences of the FDMA and Related
Ministries to Examine Disaster Prevention
Measures at Petroleum Industrial Complexes, etc.
The FDMA, the Ministry of Health, Labour and Welfare,and the Ministry of Economy, Trade and Industry, which
are the ministries and agency responsible for safety at
petroleum industrial complexes, have held regular liaison
conferences (liaison conferences of the three ministries for
petroleum complex disaster prevention).
The purpose of these liaison conferences is to exchange
information on incidents, share policy trends, promote
efforts by business operators to prevent disasters, andwork together to take action in the event of a disaster. The
ministries and agency work together to prevent disasters
at petroleum industrial complexes by promoting accident
prevention efforts and publishing and sharing incidentrelated information on the Internet.
(Fire and Disaster Management for Petroleum Industrial
Complexes, etc.; Liaison Conference of FDMA, MHLW,
and METI; Website run jointly by the three organizations:*6(3) Skill Contest for Self-defense Disaster
Prevention Organizations at Petroleum Industrial
Complexes, etc.
The FDMA holds a “Skill Contest for Self-Defense
Disaster Prevention Organizations at Petroleum Industrial
Complexes, etc.” with the aim of improving the skills andmorale of disaster prevention personnel such as those of
self-defense disaster prevention organizations at specified
business establishments.
During the contest, which will be around the time of“World Tsunami Awareness Day” on November 5, theMinister of Internal Affairs and Communications andAbnormal phenomena: Fires, explosions, spills of oil and other substances, and other such abnormal phenomena at specified businessestablishments.

20

Chapter 1 Current Status and Challenges for Disasters

the Commissioner of the FDMA will commend selfdefense disaster prevention organizations, etc. that achieve
excellent results in safety, reliability, and promptness ina training exercise to extinguish a large-scale tank fireutilizing fire-extinguishing foam agents.
(4) Holding Investigative Committee Meetings on
the Disaster Prevention Systems of Petroleum
Industrial Complexes, etc.
The FDMA has been holding the “Investigative
Committee Meeting on Disaster Prevention Systems ofPetroleum Industrial Complexes” in order to strengthen
the disaster prevention system in special disasterprevention zones such as petroleum complexes.
The number of accidents at petroleum complexes has
been increasing in recent years, and accidents involving
fatalities and injuries occur every year. Therefore, in
FY2023, the FDMA has been studying measures toprevent accidents and to mitigate damage in the eventof an accident at the investigative committee meetings
consisting of academics, government agencies, and relatedparties.

Commendation Ceremony for Skill Contest for Self-defense Disaster
Prevention Organizations at Petroleum Industrial Complexes, etc.

-omitted-

21

Chapter 2 Fire and Disaster Prevention Organizations and Activities

Section1 Fire Service Structure☞ Japanese Original P.63

As of April 1, 2023, 1,690 municipalities had switchedover to a standing fire defense structure, whereas 29 towns
and villages had not done so. Many of these 29 towns andvillages are without standing fire service structures due togeographical factors. 21 towns and villages in Tokyo andthree other prefectures (72.4% of all towns and villages
without standing fire service structures) are located on
islands. (Attachment V, untranslated)
288 fire departments were established by special
district authorities or extended associations (22 of whichwere established by extended associations). The 1,109
municipalities that have organized these (370 cities, 599
towns, and 140 villages) correspond to 65.6% of thetotal number of municipalities that have switched to a
standing fire defense structure. Furthermore, the numberof municipalities outsourcing this work comes to 147(39 cities, 88 towns, and 20 villages), which corresponds
to 8.7% of the total number of municipalities that haveswitched to a standing fire service structure. (Fig. 2-1-2)

1. Fire Defense Organizations(1)Standing Firefighting Agencies
Standing firefighting agencies refers to the fire
departments and fire stations established in municipalities
that are staffed by full-time personnel.
As of April 1, 2023, there were 722 fire departments
and 1,714 fire stations throughout Japan. (Attachment
2-1-1, untranslated)
There were 167,861 firefighters (including 6,409 female
firefighters). Of these, 166,287 (including 5,829 female
firefighters) were in charge of responding to fires andemergencies, conducting inspections, etc. 25,553 (15.4%)of them are between the ages of 31 and 35, which is
the largest proportion of these firefighters. ( Fig. 2-1-1,
Attachment 2-1-1, 4, untranslated)
The current fire service structures found in municipalities
can largely be categorized into: [1] Municipalities withboth fire departments and fire stations (so-called standing
fire defense) and volunteer fire corps (so-called nonstanding fire defense) coexist (hereinafter referred to as“municipalities with standing fire service structures”),
and [2] Towns and villages with only volunteer fire corps(hereinafter referred to as “municipalities without standing
fire service structures”).

(2)Volunteer Fire Corps
As of April 1, 2023, the number of volunteer fire corps
throughout Japan came to 2,177, while their volunteer
members numbered 762,670. They have been establishedin every municipality. (Fig. 2-1-1, Attachment 2-1-1,
untranslated)

Fig. 2-1-1 Trends in the number of Firefighters and Volunteer Firefighters(Notes) 1 Prepared based on “The Survey of the Current Status of Fire Prevention and Earthquake Countermeasures”.
2 Number of volunteer firefighters is based on “The Survey of the Current Status of Fire Prevention and Earthquake Countermeasures” and theSurvey on the Organization of Fire Volunteer Corps.
3 Due to the effects of the Great East Japan Earthquake, the number of firefighters and volunteer firefighters in Iwate Prefecture, Miyagi
Prefecture, and Fukushima Prefecture in 2011 were tabulated using the numbers from the previous year (as of April 1, 2010).
4 Due to the effects of the Great East Japan Earthquake, the numbers for Onagawa Town, Oshika District, Miyagi Prefecture in 2012 weretabulated using the numbers from the previous year (as of April 1, 2010).

22

Chapter 2 Fire and Disaster Prevention Organizations and Activities
Fig. 2-1-2 Breakdown of the establishment method for fire departments
Municipalities

No. of fire departments

Individual

Special districtauthorities, etc.

Cities

Towns

Standing/non-standing

Villages722

1,690 municipalities

1,690

793

736

434

434 municipalities

434

384

49

1,109 municipalities

1,109

370

599

140

147 municipalities

147

39

88

20 Outsourced

29

―

7

1,719

793

743

288

(As of April 1, 2023)

161 Municipalities with standing structures
1 Individual
Establishment
Comprised of special
methoddistrict authorities, etc.

22 Municipalities with non-standing structures
183

Total

(Notes) 1 Prepared based on “The Report on Personnel Changes concerning Fire Departments and Volunteer Fire Corps”.
2 The 23 wards of Tokyo were tabulated as a single city for individual fire defense departments.
3 Extended associations are included under “Special district authorities.”

Volunteer fire corps are municipal, non-standing
firefighting agencies. The volunteer firefighters thatcomprise their members have other main occupations,and engage in fire and disaster defense activities basedon their love for their hometown and a desire to protect it
thinking that they should be the ones to protect their own
communities themselves. They do this as local government
employees in special part-time positions vested withauthority and responsibility (For the organizational
structure of Volunteer fire corps, see Special Feature 4).

Reports to 119
When a 119 call is received, the fire department is
notified of the caller’s location. When a call is made froma landline phone, the user’s address is provided, and whena call is made from a cell phone, its location is determinedbased on GPS positioning and cell tower information.
(B) Nonverbal Reports
The FDMA is working to create an environment inwhich people with hearing and speech impairments canmake emergency calls from anywhere in the entire country
at any time.
As a means for people with hearing or speech
impairments to use telephones, there is a “telephone relay
service” in which operators provide an immediate twoway connection between people with hearing or speech
impairments and non-hearing or speech impaired people
by interpreting “sign language” or “text” to “voice.”This was launched nationwide in July 2021 as a public
infrastructure based on the Act on Facilitation of the Useof Telephones for the Persons with Hearing Impairments,
etc. The service is also compatible with 119 calls, allowing
people with hearing or speech impairments to call thefire department from anywhere in the country using thetelephone relay service.
In addition, the “Net119 Emergency Report System,”
which allows people with hearing or speech impairments
to make an emergency call to 119 without using voiceby tapping buttons on the screen of their smartphones orentering text. As of May 1, 2023, 640 out of the 722 fire
departments (approx. 88.6%) have already installed thesystem. (Fig. 2-1-3)

2. Fire and Disaster Defense Facilities, etc.
(1)Maintenance of Fire Trucks and Other Vehicles
Fire departments and fire stations maintain firepumpers, ladder-equipped vehicles (including vehicles
with folding ladders), chemical fire trucks, ambulances,rescue vehicles, and other equipment that they need fortheir firefighting activities.
In addition, volunteer fire corps maintain vehicles suchas fire pumpers, small power pump transport vehicles, andtransport vehicles for rescue supplies. (Attachment 2-1-5,
untranslated)(2)Fire Defense Communication Equipment
In order to minimize the damage from fires and otherdisasters, it is important to quickly become aware ofsaid fires and disasters and have firefighting agencies
rapidly arrive at the scene. In addition, it is also important
to collect information and quickly and clearly issue
instructions and orders at the scene of the incident. Fire
defense communication equipment plays an enormousrole in such contexts.

(C) Report from Foreign Nationals
The 119 multi-language service using 3-Way Telephone
Interpretation provided by the Telephone Interpretation
Center will be available 24/7 in major languages to
respond promptly and accurately to 119 calls by foreign
nationals, or from an emergency site where a foreign
national is present. The goal is to have this systeminstalled in all fire departments. (Fig. 2-1-4)

A. Calls to 119
The number of incidents reported to 119 throughout
2022 came to 9,420,449. A breakdown of the reported
details shows that the number of reported cases related to
medical emergencies and rescues accounted for 72.1% of
the total. (Attachment 2-1-6, untranslated)
In recent years, the number of reports to 119 from cell
phones and IP phones (hereinafter referred to as “cellphones and other types of phones” in this section) has
risen, with cell phones comprising 54.5% and IP phonecomprising 23.8% of the overall number of reports.
(Attachment 2-1-7, untranslated)

B. Fire Command System
The fire command system is a system to support a seriesof fire command operations at the fire command center,such as receiving 119 calls, identifying the location ofdisasters, organizing dispatch teams, and issuing dispatch
orders to fire stations.

(A) Location Information Notifications for Emergency

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Chapter 2 Fire and Disaster Prevention Organizations and Activities
Fig. 2-1-3 Flow of Net119 Emergency Report System

Fig. 2-1-4 Flow of 3-Way Telephone Interpretation

In recent years, the ICT environment surrounding
firefighting has changed dramatically with the rapid
development of information and communications
technology. In response to these changes, efforts are being
made to upgrade the fire command system, including
consideration of data entry/exit (standard interface) withexternal systems.

sources like fire hydrants and fire cisterns, as well as
natural sources like rivers, ponds, oceans, and lakes.
The total number of water sources for firefighting
installed in Japan is 2,541,608, of which 1,976,819 arefire hydrants and 545,079 are fire prevention tanks.
(Attachment 2-1-8, untranslated)
Since the Great Hanshin-Awaji Earthquake, fire hydrants
with earthquake resistance have been installed, and inrecent years, in anticipation of the aging of fire hydrants
and the demand for fire hydrants in areas with dense
wooden buildings, each municipality has set a numericaltarget to gradually improve the fire hydrant system.

(3)Water Sources for Firefighting
Water sources for firefighting are an absolutely crucialcomponent, together with fire trucks and other equipment,
when it comes to carrying out firefighting activities.
Generally speaking, these are categorized into artificial-omitted-

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Chapter 2 Fire and Disaster Prevention Organizations and Activities

Section4 Education and Training Structure☞ Japanese Original P.81

of 55 such academies throughout Japan (in the Tokyo
Metropolitan Region, there are two schools that have been
jointly established: The Tokyo Metropolitan Fire Defense
Training Center and the Tokyo Fire Department’s Fire
Academy).
With the objective of establishing and operating fire
academies, the FDMA established the “Standards for the
Establishment, Staffing, and Operation of Fire Academies(FDMA Bulletin No. 1, 1971),” and works to maintainand advance the level of education and training available
at fire academies.

1. Education and Training for Firefighters

It is essential to improve the knowledge and skills offirefighters to enable them to appropriately handle theincreasingly diverse disaster and emergency services andthe increasing sophistication of fire prevention services. As
such, education and training for firefighters is incredibly
important.
Education and training for firefighters is offered by all
fire departments, fire stations, and volunteer fire corps, aswell as by the national government through the Fire andDisaster Management College and the fire academies inthe various prefectures. In addition to these, there are also
emergency medical technician (EMT) training institutes
that offer education designed to have rescue workers fromaround the country acquire national qualifications as EMTs.
As this indicates, the national government, prefectures,municipalities, and others each undertake their own
respective functions as they work together in a cooperative
manner to provide education and training for firefighters.

(2) Types of Education and Training
The FDMA established the “Education and Training
Standards for Fire Academies (FDMA Bulletin No. 3,2003)” to serve as standards for the education and training
offered at fire academies. The fire academies formulate
specific curricula out of respect for the “achievement
goals” stipulated in the standards and by using the“Standard subjects and class hours” found therein as
reference guidelines.
In addition, the increasing severe and frequent
occurrence of disasters require advanced firefighting
activities, and prevention work is becoming moresophisticated and specialized in accordance with revisions
to fire laws and regulations. In order to enhance andstrengthen education and training at fire academies, theFDMA is improving the equipment to be provided as
standard and reviewing educational subjects and time
allocations. Types of education and training include initial,
specialized, leadership, and special courses for firefighters,
and basic, specialized, leadership, and special courses forvolunteer firefighters.

2. On-the-job Training
Every firefighting agency carries out systematic
education and training (on-the-job training) based on theirrespective regional characteristics on a routine basis. In
particular, those firefighters who are required to perform
rigorous team activities based on instructions and orders
at the scenes of dangerous disasters require a sense of duty
and abundance of energy and vigor in order to carry out
their professional duties. Therefore, fire departments work
to improve their knowledge and skills and lift their morale
through various types of education and training.
The FDMA has established “Standards for Fire Drill
Etiquette (FDMA Bulletin No. 1, 1965),” “Standards for
Firefighting Maneuvers (FDMA Bulletin No. 2, 1972),”
and “Standards for Firefighting Rescue Maneuvers (FDMA
Bulletin No. 4, 1978)” as standards for on-the-job training,as well as safety management manuals both for during
drills and during firefighting activities.

4. Education and Training and Technical Assistanceat the Fire and Disaster Management College
The Fire and Disaster Management College provides theadvanced education and training needed for management
to the personnel engaged in firefighting operations at thenational and prefectural level, as well as to municipal
volunteer firefighters. In addition, it also provides thenecessary technical assistance related to education andtraining for fire academies at the prefectural level.

3. Education and Training at Fire
Academies(1) Establishment of Fire Academies
The provisions of Article 51 of the Fire Defense
Organization Act mandate that prefectures must establish
fire academies independently or jointly, except incases where financial circumstances or other special
circumstances prevent them from doing so. In addition,
the provisions stipulate that ordinance-designated cities
can also establish fire academies independently or jointly
together with the prefectures.
As of April 1, 2023, fire academies had been establishedin all 47 prefectures, seven ordinance-designated cities(Sapporo, Chiba, Yokohama, Nagoya, Kyoto, Kobe, andFukuoka), and in the Tokyo Fire Department for a total(1) Enrollment in Education and Training
20 courses and 12 practical courses were held during
FY2022, resulting in 1,385 graduates.
As of FY2022, a total of 68,020 students have graduatedfrom these courses since their establishment.
In addition, as in FY2022, the number of students
in FY2023 was set at 1,524 in order to avoid the Three
C’s as a countermeasure against infection by Covid-19.
(Attachment 2-4-1, untranslated)
A. Enhancement of education and training content
in response to changes in social conditions
Regarding the education and training contents of each25

Chapter 2 Fire and Disaster Prevention Organizations and Activities

course, the following subjects have been incorporated
in response to new issues arising from changes in social
conditions and in accordance with the objectives ofeach department: harassment prevention, mental health,traumatic stress management, CRM (Crew Resource
Management), crisis management, public relations,litigation response, and issues facing the fire department,such as LGBT and raising the retirement age.
Furthermore, efforts are being made to round-out thecontents of the curriculum, such as by adding in trainingthat simulates commanding during a fire, simulation
training for receiving assistance during a large-scale
earthquake, and other such drills that make using of
information systems, the implementation of firefighting
drills (hot training) in environments similar to real fires
utilizing the real fire training facilities, which was added
in 2020 and now has two units, and landslide response
training using a mock house buried under soil and sand, as
well as lectures on firefighting drones.
Moreover, in order to expand training opportunities
for women, 5% of the capacity of each department
has been set as a priority quota for female firefighters,
and a Women’s Activity Promotion Course, which is apractical training course designed to support the careerdevelopment of female firefighters, is available.
As a means of education, some programs incorporate ondemand e-learning for advance study and remote classes ina live format to shorten the duration of dormitory stays andto provide efficient education and training.

toilets, changing rooms, common rooms, etc.).
(3) Technical Assistance for Fire Academies
In addition to providing training for educators such as
new fire chiefs, academy directors, and new and current
instructors to acquire educational techniques, the Fire andDisaster Management College dispatches lecturers uponrequest in order to enhance the educational content offire academies. In FY2022, a total of 128 lecturers weredispatched.
The Fire and Disaster Management College also
provides a list of graduates and information on lecturers
to help edit textbooks for new firefighters to be used atfire academies and to secure lecturers and other personnel
with guaranteed knowledge and skills in specialized fields.

B. Countermeasures against COVID-19 at the Fireand Disaster Management College
Some Courses are shortening the duration of dormitory
stays and reducing exposure through the use of remoteclasses and e-learning.
Thorough measures are taken to prevent infection, suchas checking the temperature and physical condition offaculty members and students, wearing masks to prevent
droplets, disinfection, ventilation, maintaining distance
between lecturers and students in classroom lectures, andreducing contact through the use of screens.
Although COVID-19 infection was classified as acategory 5 infectious disease, in light of the July 2023
outbreak of infection among students attending the school,
the education and training systems have been maintainedby further infection control measures taken throughstrengthening the management of the living environmentof the student dorms.

Training that simulates the experience of being in an actual fire
(hot fire training)

Training that simulates the experience of being in an actual fire
(hazardous material fire)(2) Facilities and Equipment
As a facility for advanced education and training,
the Fire and Disaster Management College is equippedwith a disaster response training room that simulates
various disaster scenes to improve command skills, areal fire training facility to experience environmental
changes similar to those at the scene of a fire, and a townformed housing complex-type unit to simulate areas
where activities are difficult, such as those with a highconcentration of wooden houses.
Moreover, in order to provide practical training, theFire and Disaster Management College possess training
vehicles such as command vehicles, pump trucks, rescue
vehicles, special disaster vehicles, and high standard
emergency vehicles.
The dormitory also has women-only spaces (bathrooms,

Drill on responding to mass casualties

26

Chapter 2 Fire and Disaster Prevention Organizations and Activities

Section

5 Ambulance Service System☞ Japanese Original P.84

or other cases (cases where a doctor did not provide adiagnosis, etc.). (Attachment 2-5-5, untranslated)

1. Implementation of Ambulance
Services(3) People Transported by Ambulance by Age
Group and Type of Incident
Viewing a breakdown of the 6,217,283 people
transported by ambulance in 2022 by age group reveals
that 12,419 of them were newborn infants (0.2%), 274,140
were young children (4.4%), 205,183 were youths (3.3%),
1,862,388 were adults (30.0%), and 3,863,153 were elderly
people (62.1%). As the low birthrate and aging of society
advances, the share accounted for by elderly people tends
to be high. (Attachment 2-5-6, 7, untranslated)
Furthermore, elderly people accounted for the largest
percentage of the people transported by ambulance forsudden illnesses (2,653,687 people, or 63.4%), while
the largest percentage transported for traffic accidents
consisted of adults (206,942 people, or 59.6%) and thelargest percentage for general injuries consisted of elderly
people (707,966 people, or 71.8%). (Attachment 2-5-7,
untranslated)(1) Ambulance Service Dispatch
Ambulance services were dispatched a total of 7,229,572
times in 2022 (an increase of 1,035,991, or 16.7%, YoY).
Looking at the daily average, ambulance services weredispatched an average of approximately 19,807 times perday (an increase of approximately 2,838 YoY), meaning thatambulance service teams were dispatched at a rate of once
every 4.4 seconds or so (5.1 seconds in the previous year).
Furthermore, the number of people transported byambulance totaled 6,217,283 people (an increase of 725,539
people, or 13.2%, YoY). This means that one out of every
20 members (23 members in the previous year) of the
public has been transported by an ambulance service team.
Looking at this by the type of incident that led people
to be transported by an ambulance reveals that 4,186,450
people (67.3%) were transported due to sudden illness,
985,958 people (15.9%) suffered a general injury, 347,372
people (5.6%) suffered a traffic accident, and so on.
(Attachment 2-5-1, 2, 3, 4, untranslated)
The number of times fire and disaster prevention
helicopters were dispatched came to 2,546 (an increase of
58 YoY), and 2,016 people were transported by them (anincrease of 102 YoY).
(2) People Transported by the Severity of Their
Injury or Illness
Of the 6,217,283 people transported by ambulances in
2022, 47.3% were people with minor injuries or illnesses
that did not require hospitalization (outpatient care)(4) Time Required to Arrive at the Scene
Looking at a breakdown of the 7,229,572 cases inwhich ambulances were dispatched in 2022 by the timerequired to arrive at the scene (time it took to arrive at
the scene after the 119 report was received) reveals thatin the majority of cases it took between 5 and 10 minutes(3,665,282 cases, or 50.7% of the total). (Fig. 2-5-1)
Additionally, the average time required to arrive at thescene came to approximately 10.3 minutes (approximately
9.4 minutes, the previous year), and 2 minutes longer thanit was ten years ago (2012). (Fig. 2-5-3)

Fig. 2-5-1 No. of dispatch by time required forthe ambulance to arrive at the scene

Fig. 2-5-2 No. of people transported by ambulanceby time it took to check them into a hospital(Notes) 1 Prepared based on “The Annual Report on Ambulance
Service”.
2 Digits in the second decimal place were rounded off, so insome cases the totals may not be consistent.

(Notes) 1 Prepared based on “The Annual Report on Ambulance
Service”.
2 Digits in the second decimal place were rounded off, so insome cases the totals may not be consistent.

27

Chapter 2 Fire and Disaster Prevention Organizations and Activities
Fig. 2-5-3 Trends in the amount of time it takes ambulances to arrive at the scene and the time it takes
to check the patient into a hospital(Notes) 1 Prepared based on “The Annual Report on Ambulance Service”.
2 Due to the effects of the Great East Japan Earthquake, the figures were totaled by excluding data from the Kamaishi Ootsuchi District
Administrative Office Fire Department and the Rikuzentakata City Fire Department from 2010 and 2011.

(5) Time Required to Check the Patient into a
Hospital
Looking at a breakdown of the 6,217,283 people
transported by ambulance in 2022 by the time required
to check the patient into a hospital (time required tocheck the patient into a hospital after the 119 report wasreceived) reveals that the majority of people were checkedin between 30 and 60 minutes at 3,962,797 people(63.7%). (Fig. 2-5-2)
In addition, the average time required to check thepatient into a hospital came to approximately 47.2
minutes (approximately 42.8 minutes, the previous year),and 8.5 minutes longer than it was ten years ago (2012).
(Fig. 2-5-3)

wards of Tokyo were counted as one city; the same
hereinafter in this section).
A m b u l a n c e s e r v i c e s a r e o ff e r e d i n 9 8 . 3 % o fmunicipalities (same as the previous year), and cover
99.9% of the total population (same as the previous year;
the population used is from the 2020 national census;
the same hereinafter in this section), which means thatambulance services can be received in virtually every
region. (Attachment 2-5-9, 10, untranslated)
When viewed by the configuration through which said
ambulance services were offered, 434 municipalities
offered them independently, 147 did so by outsourcing
them, and 1,109 did so through special district authorities
and extended associations.

(6) First-aid Treatment Administered by
Ambulance Team Members
Of the 6,217,283 people transported by ambulancesin 2022, ambulance team members administered firstaid treatment to 6,181,811 patients (99.4%). This brings
the total number of cases in which ambulance crew
members administered first-aid treatment to 25,054,183.
(Attachment 2-5-8, untranslated)
Furthermore, the total number of cases in which first-aid
treatment was administered by ambulance crew members
since their expansion in 1991 (items with * symbol in
Attachment 2-5-8) came to 17,637,895 (a 12.5% increase
YoY). Of these, the number of cases in which EMTs
administered first-aid treatment in order to resuscitate apatient based on the EMT act came to 362,690 (a 38.1%
increase YoY).

(2) Number of Ambulance Teams, Ambulance
Team Members and Associate Ambulance Team
Members
As of April 1, 2023, 5,359 ambulance teams (anincrease of 31 YoY) had been established. (Fig. 2-5-4)
Since ambulance team members are engaged in theimportant duty of saving people’s lives, they mustcomplete at least 135 hours’ worth of training courses on
ambulance services (the former Ambulance I Course).
As of April 1, 2023, the number of firefighters who
fulfilled this eligibility requirement came to 132,887(an increase of 1,529 YoY). Of these, 66,616 were
engaged in ambulance services as ambulance teammembers (including not only full-time ambulance teammembers, but also ambulance team members who havebeen appointed as such and who concurrently serve on
firefighting vehicles such as pump vehicles by riding
along with them). (Fig. 2-5-5)
Furthermore, of the firefighters who fulfilled theeligibility requirements to be ambulance team members,
the number who had completed 250 hours’ worth ofambulance courses to enable them to provide evenmore advanced first-aid treatment (including the former
Ambulance Standard Course and former Ambulance
II Course) totaled 87,161 people (an increase of 530

2. Implementation Structure forAmbulance Services(1) Number of Municipalities Offering Ambulance
Services
The number of municipalities offering ambulanceservices as of April 1, 2023 totaled 1,690 municipalities(793 cities, 736 towns, and 161 villages) (the special

28

Chapter 2 Fire and Disaster Prevention Organizations and Activities
Fig. 2-5-4 Trends in the number of ambulance teams(Note) Prepared based on “The Annual Report on Ambulance Service”.

Fig. 2-5-5 Trends in the number of ambulance team members(Note) Prepared based on “The Annual Report on Ambulance Service”.

(3) Trends in the Number of EMTs and AmbulanceTeams with EMTs
As a result of the increasing sophistication of ambulanceservices, the FDMA is promoting the training of EMTs
and the development of an operational system where theYoY) nationwide as of April 1, 2023. Of these, 33,713
are engaged in ambulance services as ambulance teammembers. As of April 1, 2023, 15 associate ambulanceteam member *1 are engaged in ambulance services
nationwide.

*1

Associate ambulance team member: Based on the Order for Enforcement of the Fire Services Act, in depopulated areas and remote islands, when amunicipality has established an implementation plan as a measure to ensure appropriate ambulance services, it is possible to organize an ambulanceteam consisting of two ambulance team members and one associate ambulance team member. Associate ambulance team members are full-time
firefighters, etc., who have completed a basic training course on ambulance services.

29

Chapter 2 Fire and Disaster Prevention Organizations and Activities

objective is to have at least one EMT stationed with every
ambulance team.
As of April 1, 2023, 721 fire departments out of 722 fire
departments in Japan are making use of EMTs, and theusage rate is 99.9% (same as the previous year).
The number of ambulance teams with EMTs came
to 5,339 (an increase of 38 YoY), which corresponds to
99.6% of the 5,359 ambulance teams throughout Japan(a 0.1% increase YoY), with this rising year by year.
Furthermore, there were 43,788 fire departments personnel
with EMT qualifications (an increase of 1,293 people
YoY). Of these, 30,371 had been put to use as EMTs (anincrease of 982 people YoY), with this number steadily
increasing year by year. (Fig. 2-5-6, 7)

Company (hereinafter referred to as “expressway
companies” in this section) are responsible for roadmanagement operations and offering centralized,
independent ambulance services. Moreover, themunicipalities along said expressways are responsible forhandling ambulance services as per the provisions of theFire Service Act. So it has been stipulated that both parties
are to work together to properly and efficiently safeguard
human life.
As of April 1, 2023, ambulance services along nationaland other expressway were provided by municipal
firefighting agencies over every section of the 9,311km of
the length of expressway currently in use. The expressway
companies bear a certain extent of the financial burdenthat is placed on the municipalities providing ambulanceservices.

(4) Number of Ambulances
The number of ambulances owned by fire departments
throughout Japan as of April 1, 2023 totaled 6,591 (anincrease of 42 YoY), including those for emergency use.
Of these, the number of high-standard ambulances was
6,479 (an increase of 43 YoY), which corresponds to
98.3% of the total.

3. Promoting Coordination between
Firefighting and Medical Care
(1) Standards on Patient Transport and Their
AcceptanceIn order to ensure the smooth implementation of thetransportation and reception of injured and sick persons,
the Fire Service Act stipulates that prefectures shallformulate the Standards on Patient Transport and Their
Acceptance (hereinafter referred to as the “acceptancestandards” in this section) and establish a council on
the Implementation Standards (hereinafter referred toas “Legal Council” in this section). The hope is thatthrough the legally-mandated committees, the prefectures
will survey and verify the transport of patients and their(5) Ambulance Services along National and Other
Expressways
When it comes to ambulance services along national
expressways, the Seto-Chuo Expressway, and the KobeAwaji-Naruto Expressway (hereinafter referred to as“national and other expressways” in this section), theEast Nippon Expressway Company, Central Nippon
Expressway Company, West Nippon Expressway
Company, and Honshu-Shikoku Bridge Expressway

Fig. 2-5-6 Trends in the number of ambulance teams with EMTs

(Note) Prepared based on “The Annual Report on Ambulance Service”.

30Chapter 2 Fire and Disaster Prevention Organizations and Activities
Fig. 2-5-7 Trends in the number of EMTs

(Note) Prepared based on “The Annual Report on Ambulance Service”.

acceptance status based on the acceptance standards.
Then, based on this, it is hoped that they will tie theresults of this in with making improvements to theacceptance standards and so forth.
For its part, the FDMA works to follow up by working
to understand the efforts and challenges faced by eachprefecture, as well as by introducing examples of efforts
that are operating effectively in certain regions.
In addition, in light of the fact that emergency transport
is carried out based upon the acceptance standards, local
governmental financial measures are being taken throughspecial tax grants with respect to the costs entailed by
the assistance rendered to private secondary ambulance
institutions*2 by local public bodies in an effort to enhance
ambulance medical care structures in local regions.

as extensive burns, severed digits and limbs, and acutepoisoning, of which 47 locations have been set in place (asof November 1, 2023).
The approval of emergency hospitals and emergency
clinics under the emergency notification system, and thedevelopment of initial, secondary, and tertiary medicalcare systems are implemented in a centralized fashion
under the medical care plan approved by the prefectural
governor.
Under these emergency care systems and throughthe acceptance standards enacted by the prefectures inaccordance with the provisions of the Fire Service Act,a list of medical institutions that can provide medicalcare according to patients’ conditions has been compiled.
Firefighting agencies use this list when carrying out
ambulance operations.

(2) Ambulance Medical Care StructureWith regard to the notification status of emergency
hospitals and emergency clinics, which constitute theprimary destinations to which patients are taken, as ofApril 1, 2023 there were 4,170 such locations throughout
Japan. (Attachment 2-5-11, untranslated)
There are 556 weekend and nighttime ambulancecare centers (as of April 1, 2021) that ensure that
initial medical care can be received on weekends andat nights, which serve as the initial ambulance medicalcare structure. 2,737 hospitals make up the rotating
hospital group and joint-use hospitals that comprise thesecondary medical care system (as of April 1, 2021), and304 emergency medical care centers (as of November
1, 2023) make up the tertiary medical care system.
Additionally, among the emergency medical care centers
are advanced emergency medical care centers capable ofhandling patients with specific illnesses or injuries, such

*2(3) Acceptance of People Using Ambulance
Transport at Medical Institutions
The FDMA performed surveys on the actual state ofacceptance for patients with severe conditions or worse,
pregnant or perinatal patients, young patients, and patientstransported to emergency medical care centers.
Comparing the results of the “Survey of Medical
Institution Acceptance of Ambulance Transports in 2022”with the results of the same survey in 2021, the number
and percentage of cases with four or more inquiries
increased in all of the following categories: the seriously
injured increased, women with pregnancy related andperinatal conditions, injured children, and patients toemergency medical care centers. (Attachment 2-5-12,
untranslated) The number and percentage of cases inwhich the ambulance stayed at the scene for 30 minutes oralso increased. (Attachment 2-5-13, untranslated)

Private secondary ambulance institution: Among secondary medical institutions, ambulance service notice institutions (excluding national and public
medical institutions and public institutions).

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Chapter 2 Fire and Disaster Prevention Organizations and Activities

activities are being done through training and research
opportunities such as the National Ambulance-Crew
Symposium and the Japanese Society for Emergency
Medicine.

4. Promotion of More SophisticatedAmbulance Services(1) Promotion of Education for Ambulance
Service Personnel
In 1991, the Emergency Medical Technicians Act was
enforced and a new qualification system was set up to
make EMTs who are responsible for performing certain
first-aid treatment under the direction of physicians until
the ambulance team members arrive at the hospital or
clinic after having arrived at the scene.
In the case of firefighters, the EMT qualification
can be obtained by completing an ambulance services
course, engaging in ambulance services for 5 years or atleast 2,000 hours, and then completing an EMT training
course for at least 6 months before passing a national
examination. After obtaining the qualification, EMTs
assigned to a fire service agency are required to take atleast 160 hours of hospital training before engaging inambulance services, and at least 128 hours of further
training every two years (of which, hospital training
should be at least 48 hours) thereafter.
Because of the advanced and specialized nature of
the content and the need to consider the efficiency of
education and training, the training of EMTs for fireservice agencies is conducted by the Foundation for
Ambulance Service Development established in 1991
with investment from 47 prefectures nationwide following
the enactment of the Emergency Medical Technicians
Act, as well as by the EMT training centers in thedesignated cities, and EMT training course at the Fire
Management College. In FY2022, 749 EMTs at the EMT
Training Center of the Foundation for Ambulance Service
Development and 388 EMTs at the EMT training centersin the designated cities or EMT training course at the Fire
Management College completed the training course andtook the national examination.
In response to the promulgation and enactment of the
Cerebrovascular and Cardiovascular Disease Control Act,
the FDMA received a proposal from relevant academic
societies based on the latest scientific findings regarding
the observation and treatment of cardiovascular disease
and stroke among ambulance teams, and an examinationof this proposal was conducted at the “FY2019
Investigative Committee on the State of Ambulance
Services”. The FDMA issued a notice regarding items
deemed appropriate by the Investigative Committee
titled “Observation and Treatment in Ambulance Teams”(Notice, dated March 27, 2020).
In addition, ambulance team members, including EMTs,
are required to receive education for their respective roles
as new ambulance team members, current ambulanceteam members, and ambulance team leaders in accordancewith the “Guidelines for Continuing Education for
Personnel Engaged in Ambulance Services Ver. 1” (March2014). In order to establish such an educational system,
EMTs in leadership positions, who are responsible forproviding education and guidance to their personnel andcoordinating with related organizations regarding the
educational system, are positioned as “instructor EMTs,”
and as of April 1, 2023, 3,047 instructor EMTs have beencertified nationwide.
Furthermore, the promotion of national exchanges
among ambulance team members and the improvementof their knowledge and skills necessary for emergency(2) Increase in the Treatment Scope of EMTs
At the time of the system’s establishment in 1991, theonly life-saving procedures (specified acts) performed by
EMTs under specific instructions from physicians were
defibrillation using a semiautomatic defibrillator, infusionof lactated Ringer’s solution to establish an IV line, andairway management using an esophageal obturator airway
or laryngeal mask, but these were gradually expanded by
the Ministry of Health, Labor, and Welfare.
As of April 1, 2023, 16,351 ambulance team members
qualified as EMTs were able to perform tracheal intubation(of which 8,411 were able to use a video laryngoscope forrigid intubation), 29,895 were able to administer drugs(adrenaline), 28,788 were able to establish an IV line
and administer fluids to severely injured patients before
cardiopulmonary arrest, and 28,841 were able to measure
blood sugar and administer glucose solution to patients
suffering from hypoglycemic attacks.
(3) Enhancement of Medical Control System
The medical control system in ambulance services is asystem that ensures the quality of first aid, etc. performedby ambulance team members, including EMTs, from a
medical point of view. Specifically, it is a system that,in collaboration with fire departments and medical
institutions, (1) creates various protocols according to thecharacteristics of the region based on medical grounds,(2) enables emergency personnel to promptly request
instruction, guidance, or advice from physicians at any
time from a scene of an emergency, (3) has physicians
conduct a medical and objective post-verification of
emergency efforts, and feeds back the results of said postverification, as well as (4) conducting further education,etc. The Medical Control Council, which is a forum
for discussions between fire departments and medical
institutions, is established at the prefectural and regional
levels. As of August 1, 2023, there are 47 prefectural
Medical Control Councils and 250 regional Medical
Control Councils in Japan. The role of the medical control
system in ambulance services has expanded from that ofobserving EMTs and guaranteeing their treatment from a
medical perspective, which is the basis and foundation of
the system, to one of ensuring the appropriate operationof local ambulance transportation and emergency medical
resources through the formulation of standards for thetransport and acceptance of injured and sick patients. It
has evolved into something more diverse and tailored tothe actual conditions of each region, with a view toward acooperative role for fire, rescue, and emergency medical
services in the coordination of medicine and nursing aspart of comprehensive community care.
Based on the result of “the FY2020 Study Group on
the State of Ambulance Services,” which examined thecurrent issues facing the medical control system and theirsolutions, the FDMA issued a notice on March 26, 2021
titled “Further Enhancement and Strengthening of Medical
Control System in Emergency Services”, which indicatedthat related organizations should work closely together tofurther enhance the medical control system, and that thesystem should be built and improved continuously through32

Chapter 2 Fire and Disaster Prevention Organizations and Activities

the PDCA cycle using objective performance indicators.
In addition, in the “FY2021 Study Group on the State of
Ambulance Services” we have just conducted a further
study regarding the continued promotion of the PDCA
cycle initiative and the enhancement of performanceindicators through understanding the utilization of
performance indicators as well as the advanced example
initiatives of each region following notification.
The recent diversification of roles required of medical
control councils can also be viewed in terms of “CPR at
the scene of an emergency in accordance with the wishesof the injured or sick person.” As the number of elderly
people requesting ambulance services is increasing,
there are cases in which ambulance services arerequested by the families of patients to stop performing
cardiopulmonary resuscitation (CPR) because they are
told that the patient does not want CPR. Based on thisbackground, at a subcommittee of the “2018 Investigative
Committee on the State of Ambulance Services”, experts
indicated a basic awareness that ‘the person’s choices’
should be respected’ in cases where the patient’s family
communicates at the scene of an emergency that thepatient does not want CPR treatment. At scenes of
emergencies, which consist of all kinds of scenarios
and are urgent situations, and in many cases, there isno physician present, usually, the ambulance team hastime and information-related restrictions such as thewishes of the injured or sick person are not shared withthem beforehand. Therefore, the committee concluded
that it is necessary to clarify the actual situation of thecases and through verification in each place, to increaseknowledge about the response of the ambulance team byaccumulating all cases.
Based on the results of these surveys, the FDMA issued
a notice titled “Report of the Investigative Subcommittee

on the Implementation of CPR at the Scene of an
Emergency in Line with the Wishes of the Sick or Injured
Person at the FY2018 Investigative Committee on theState of Emergency Services” (Notice, dated November
8, 2019) to the heads of fire and disaster management
departments in each prefecture. This notice states that
firefighting agencies will be required to (1) make efforts
to appropriately participate in community discussions on
the Community-based Integrated Care System*3 and ACP(Advance Care Planning, also known as Jinsei Kaigi)*4
together with those involved in home medical and nursing
care, and proactively exchange opinions, etc., (2) makeefforts to, when considering the response of ambulanceteams and in addition to (1) above, seek participationfrom those involved in home medical and nursing carein medical control committees, etc., and hold sufficient
discussions while taking into account the status of endof-life medical care and care initiatives at the community
level, as well as the status of home medical care andelderly care facilities, and (3) consider making this subject
to subsequent verification at medical control councils.
(4) Use of Emergency Resuscitation Statistics(Utstein data)
In Japan, the Utstein Style*5 has been introduced acrossall fire departments nationwide since January 2005. The
FDMA also operates an online system for collecting andanalyzing the results of research done via the Utstein
Style, and has accumulated 18 years’ worth of data from2005 to 2022. On an application basis, the data is provided
to related academic societies so that the accumulation ofthis data can be used appropriately and effectively. The
data is also used for constructing measures and systems
for improving the lifesaving rate.

-omitted-

*3

*4
*5

Community-based Integrated Care System: A system that comprehensively ensures medical care, long-term care, long-term care prevention(prevention of a state requiring nursing care or support, or reduction/prevention of the worsening of a state requiring nursing care or support),
housing, and support for independent living in accordance with local conditions, so that elderly people can lead independent lives within their own
communities for as long as possible according to their abilities.
ACP (Advance Care Planning): A process in which the individual repeatedly discusses end-of-life medical treatment and care in advance with family
members and their medical care teams.
Utstein Style: This is a survey and statistical approach for classifying cases of cardiopulmonary arrest according to the cause, whether it was
witnessed or not, whether bystanders performed CPR or not, etc., and recording the prognosis (survival rate after one month, etc.) of the injured orsick in each category. It was proposed at an international conference held at Utstein Monastery in Norway in 1990 and is recommended worldwide.

33

Chapter 2 Fire and Disaster Prevention Organizations and Activities

Section6 Rescue System☞ Japanese Original P.96

buildings” continues to increase.
The number of rescue workers dispatched (whichrefers to the total number of people dispatched in order tocarry out rescue activities) came to 1,604,495 in total. Of
these, the largest number of firefighters were dispatched
for rescue activities in response to “Accidents due tobuildings,” followed by “Traffic accidents.” At the sametime, volunteer firefighters were mostly dispatched forfires.
The number of people who engaged in rescue activities(this refers to the number of people who actually engaged
in rescue activities out of the number dispatched) totaled
618,375. In terms of the number of people engaged ineach individual rescue activity by type of incident, “fires”
was the most common type of accident, followed by “water
accidents.” (Attachment 2-6-3, untranslated)

1. Implementation Status for Rescue
Activities(1) Number of Rescue Activities and Number ofPeople Rescued
The life-saving rescues performed by firefighting
agencies refer to activities whereby human or machinepower is used to extricate people from dangerous
situations and transport the victims to safe locations.
Examples of such dangerous situations include fires,
traffic accidents, water accidents, natural disasters, andaccidents due to machines.
As for the implementation status for rescue activities
throughout Japan in 2022, 68,123 rescue activities werecarried out (an increase of 4,925, or 7.8%, YoY) and
62,679 people were rescued (this refers to the number ofpeople rescued through rescue activities; an increase of
2,818, or 4.7%, YoY). (Attachment 2-6-1, 2, untranslated)
The main reason for the increase in the number ofrescue activities and people rescued was the increase in
accidents due to buildings. (Fig. 2-6-1, 2)

2. Implementation Structure for Rescue
Activities(2) Implementation Status of Rescue Activities byType of Incident
Looking at the status of rescue activities by typeof incident, “accidents due to buildings” and “traffic
accidents” accounted for a large percentage of both thenumber of rescue activities and the number of rescued
people. In particular, the number of “accidents due to(1) Number of Rescue Crews and Number ofRescue Crew Members
Rescue crews are established in municipalities thathave fire departments and fire stations pursuant to the
Ministerial Ordinance Establishing Standards for theOrganization, Outfitting, and Establishment of Rescue
Crews. They consist of members who have received
specialized education related to lifesaving (140 hours’
worth), as well as rescue and relief supplies and the rescue
vehicles equipped with these needed for rescue activities.

Fig.2-6-1 Number of rescue activities by type ofincident

Fig.2-6-2 Number of people rescued by type ofincident(Notes) 1 Prepared based on “The Survey on the Implementation
Status of Rescue Activities”.
2 The indicated percentages may not sum to 100% due torounding.

(Notes) 1 Prepared based on “The Survey on the Implementation
Status of Rescue Activities”.
2 The indicated percentages may not sum to 100% due torounding.

34

Chapter 2 Fire and Disaster Prevention Organizations and Activities

They are categorized into four classifications: rescue
crews, special rescue crews, advanced rescue crews, andspecial advanced rescue crews.*1
As of April 2023, 1,418 crews had been establishedat 705 fire departments, and the number of rescue crew
members came to 24,413 people (an increase of 74 YoY).

3. National Firefighting and Rescue Skills
Meets
The National Firefighting and Rescue Skills Meet has
been held every year since 1972 (sponsored by the Japan
Firefighters Association, with the backing of the FDMA
and others). Its goal is to foster the physical strength,
mental toughness, and technical capabilities needed for
rescue activities, as well as to gather rescue crew members
from throughout Japan together to cultivate crew members
who can serve as examples to others through competitionand learning.
This competition is divided up into a land division
and a water division. For each division, there is “Basic
training” where individual crew members practice basic
skills, “Coordinated training” where crew members
practice their individual skills together by cooperatingwith other crew members, and “Skills training” whereparticipating crew members demonstrate everything fromtraining assumptions to rescue methods using creativity
and ingenuity without stipulations as to the equipment or
training skills that will be used.
The 51st in 2023 was held in Sapporo City, Hokkaido.
Here 694 crew members took part in the land division and
211 took part in the water division. In 2024, the meet isscheduled to be held in Chiba City, Chiba Prefecture.

(2) Possession Status of Rescue Equipment for
Rescue Activities
Rescue equipment for rescue activities includes
equipment for removing heavy objects such as
hydraulic spreaders, cutting equipment like hydrauliccutters, detection and measurement equipment suchas inflammable gas measuring instruments, and more.
Since more advanced, specialized equipment has been
deemed necessary for them to guard against the largescale earthquake disasters and NBC disasters*2 that could
potentially occur, the establishment and maintenanceof rescue work vehicles and rescue equipment is being
promoted through subsidies for equipping National FireService Teams and local taxation measures. (Attachment
2-6-4, untranslated)-omitted-*1*2

Special rescue crews, advanced rescue crews, and special advanced rescue crews: The Rescue Ordinance stipulates that municipalities with apopulation of 100,000 people or more and a standing fire defense structure must establish a special rescue crew. Core cities and the like must haveone or more special rescue crews that serve as advanced rescue crews, and the Tokyo Fire Department and ordinance-designated cities must haveone or more advanced fire crews that serve as special advanced rescue crews.
NBC disasters: Disasters caused by Nuclear, Biological, or Chemical substances.

35

Chapter 2 Fire and Disaster Prevention Organizations and Activities

Section8

Integrated Fire Service Support and National
Fire-Service Team for Disaster Response☞ Japanese Original P.104

normalcy, National Fire-Service Teams focus all of
their energies on carrying out firefighting duties in theirrespective local regions. But once a large-scale disasteroccurs somewhere in Japan, firefighting teams dispatch
in a concentrated manner to the afflicted region fromthroughout the country to respond to said disaster at therequest or instructions of the Commissioner of the FDMA.
There they engage in firefighting activities, including
lifesaving and rescue activities.
When they were first launched, National Fire-Service
Teams consisted of 376 teams registered with the FDMA
to provide domestic assistance for firefighting. They werecomprised of rescue crews, ambulance crews, and more.
There were also 891 out-of-prefecture assistance teams
that engaged in activities between neighboring prefectures,
which consisted of firefighting teams and others. Thisbrought the total to 1,267 teams. In January 2001, a
registration system for fire teams was introduced in orderto enhance the dispatch structure for National Fire-Service
Teams and response capabilities for various disasters.
In addition, a number of new types of teams were
established in order to handle increasingly complicatedand diverse disasters. These included special disasterteams with the capacity to respond to special disasters suchas oil and chemical disasters, as well as those involving
toxic or hazardous substances, or radioactive materials,
as well as air teams that use fire and disaster prevention
helicopters and water teams that use firefighting boats.
This brought the types of teams to 8, and the number ofteams to 1,785.

1. Integrated Support System for Fire
Service(1) Mutual Support Agreement for Fire Services
As municipalities are obliged to make efforts to support
each other as and when necessary regarding firefighting
efforts by concluding agreements on mutual firefighting
support, it is now possible to respond appropriately tolarge-scale disasters and special disasters.
Currently, in all prefectures, there are firefighting
mutual support agreements (including agreements for
only municipalities where firefighting services are onhand) in which all municipalities under each prefectureand firefighting administrative associations and so on
participate.
(2) Establishment of Integrated Support System
for Fire Service
To respond to large-scale disasters and special
disasters, it is necessary for firefighting capabilities tooperate extensively beyond the districts of municipalities
or prefectures. For this reason, the FDMA has bothenhanced and strengthened the National Fire-Service
Teams described in section 2, as well as formulated the“Guidelines for the Implementation of Wide-Area Aerial
Firefighting Support Teams in the Event of a Large Scale
Special Disaster” in 1986 in order to efficiently implement
the use of helicopters as, in the event of a forest fire orother large scale disaster, helicopters excel in all areasof firefighting and disaster prevention, such as aerial
firefighting, rescue activities, emergency operations,information gathering, and emergency transportation. The
guidelines clarify the procedures for requesting support
based on article 44 of the Firefighting Agency Organization
Act, and promote the active use of firefighting helicopters
owned by firefighting agencies and prefectures for widearea support (Attachment 2-8-1, untranslated).

B. Enshrinement in Law through the 2003
Revisions to the Fire Organization Act
It has been pointed out that potential earthquakes
like a Tokai Earthquake, Tonankai/Nankai Earthquake,or Tokyo in Land Earthquake are imminent, and thedangers of NBC terrorism disasters. As such, scenarios
can be envisioned where it would be difficult to respondto such disasters promptly and precisely solely throughthe firefighting capabilities of the municipalities in the
afflicted region or those found in the afflicted prefecture.
Therefore, the Commissioner of the FDMA has been
vested with the necessary authority to work to enhanceand strengthen emergency response structures from anational perspective. In conjunction with this, the Act
for the Partial Revision of the Fire Organization Act wasdrafted in 2003 and entered into force in 2004. This act
included provisions for national financial measures, etc.

2. National Fire-Service Teams for
Disaster Response(1) Creation of National Fire-Service Teams for
Disaster Response and Their Enshrinement in Law
via Revisions to the Fire Defense Organization Act
A. Creation of National Fire-Service Teams
National Fire-Service Teams were created in June
1995 through the cooperation of fire departments fromthroughout Japan in order to create an assistance structure
through the mutual cooperation of firefighting agencies
from around the country. This was based on the lessons
from the Great Hanshin-Awaji Earthquake on January
17, 1995, and designed to make it possible to carry out
lifesaving rescue activities when large-scale disasters
such as earthquakes occur within Japan in a faster, more
effective manner.
The system is structured so that during times of(a) Main Content of the Revised Law
The main content of the revised law consists of staking
out a clear legal position for National Fire-Service Teams,
establishing the authority of the Commissioner of the
FDMA to order dispatches, formulating basic plans
relating to the organization of National Fire-Service
Teams and the development of facilities (hereinafterin this section referred to as the “Basic Plan”), and thefinancial measures of the national government.

36

Chapter 2 Fire and Disaster Prevention Organizations and Activities(b) Legal Position and Dispatch Orders by theCommissioner of the FDMA
National Fire-Service Teams, which have been put touse based on certain guiding principles since they were
established, were given a clear legal position within theFire Defense Organization Act through the revisions tothis law. In addition, in the event that a Tokai Earthquakeor other large-scale disaster extends over two or more
prefectures or an NBC disaster were to occur, theCommissioner of the FDMA shall be able to issue theorders to take the necessary measures to dispatch National
Fire-Service Teams. This authority to order dispatches
was established based on the thinking that the national
government bears responsibility for deploying firefighting
capabilities to afflicted regions in the form of ordering the
dispatch of National Fire-Service Teams for large-scaledisasters that should be handled from a truly nationwide
perspective. The unprecedented, enormous disaster of
the Great East Japan Earthquake was the first time thisauthority was exercised since it was established.

C. Enhancing Mobility through the 2008 Revisions
to the Fire Defense Organization Act
In 2008 the Act for the Partial Revision of the Fire
Defense Organization Act was drafted and entered into
force. This included content such as enhancing themobility of National Fire-Service Teams in an effort tofurther strengthen fire and disaster defense structures
for large-scale earthquakes such as a Tokai Earthquake,
Tonankai/Nankai Earthquake, or Tokyo in Land
Earthquake.

(c) Enactment of the Basic Plan Pertaining to National
Fire-Service Teams
By law it has been mandated that the Minister forInternal Affairs and Communications is to enact the Basic
Plan.
This Basic Plan, enacted in February 2004, establishedmatters such as standards for equipping and organizing
the crews that comprise National Fire-Service Teams,
dispatch plans, and targets for setting in place thenecessary facilities. When initially enacted, it set a targetof registering 3,000 National Fire-Service Teams by
FY2008.

(b) Establishment of the Authority for Prefectural
Governors to Order Dispatches
This stipulated that prefectural governors can orderthe dispatch of National Fire-Service Teams active inmunicipalities where they normally operate. This can bedone in cases where a disaster has occurred in two or more
municipalities within a prefecture, and where it is deemednecessary for the sake of urgently providing firefighting
support for municipalities where a disaster has occurredthat lie outside of the municipalities in which said National
Fire-Service Teams normally operate. This structure
was set in place based on the fact that teams spanning
across municipal borders within the same prefecture were
mobilized for the 2004 torrential rain disasters in Niigata
and Fukushima, as well as the Mid Niigata Prefecture
Earthquake in 2004. In cases spanning across prefecturalborders, it has been stipulated that the Commissioner of
the FDMA shall coordinate this, since said coordination
will span across two or more prefectures.

(a) Main Content of the Revised Law
The main content of the revised law consists ofestablishing the authority for prefectural governors toorder the dispatch of National Fire-Service Teams thatare already active in municipalities where disasters haveoccurred, the establishment of coordination headquarters
for firefighting support activities, and revisions to therequirements for the orders to dispatch National FireService Teams by the Commissioner of the FDMA.

(d) Financial Measures by the National Government for
National Fire-Service Teams
The dispatch of National Fire-Service Teams has beenlegally mandated in cases where they have been ordered todispatch by the Commissioner of the FDMA. Therefore,
the expenses that are newly required as a result of said
dispatches are to be borne by the national government
as treasury expenses as per Article 10 of the Local
Government Finance Act.
Furthermore, the establishment of facilities pursuant
to the Basic Plan were clarified in the Fire Defense
Organization Act as constituting “expenses to be
subsidized by the national government.” In addition, theeligible facilities and the subsidy rate (one-half) have been
established through government ordinance.

(c) Establishment of Coordination Headquarters for
Firefighting Support Activities
To ensure that the prefectural governor’s orders from(b) are carried out smoothly, the prefectural governors
are to establish coordination headquarters for firefighting
support activities (hereinafter in this section referred toas “coordination headquarters”) in order to carry out thegeneral coordination for measures like lending support
for firefighting when National Fire-Service Teams aredispatched for this purpose. The coordination headquarters
are tasked with handling tasks related to coordinating with
the Japan Self-Defense Forces, police, and other relevantorganizations. This is done in an effort to ensure that tasks
related to general coordination over measures designed
to support the firefighting activities carried out by theprefecture and municipalities within the prefecture inquestion are carried out smoothly.

(e) Free Use of Equipment for National Fire-Service Teams
Regarding the equipment and materials deemednecessary for the activities of the National Fire-Service
Team, it would be difficult to expect progress in themaintenance of vehicles and equipment, even withgovernment subsidies, if the maintenance and possessionsof such equipment is not efficient in terms of costeffectiveness. There is some equipment that needs
to be provided quickly in order to fulfill the national
government’s responsibilities when it comes to largescale and specialized disasters. As such, it was stipulated
that this equipment is to be set in place by the national
government, but provided for use free of charge to theprefectures or municipalities to which the personnel who
are active as National Fire-Service Team members belong.

(d) Revisions to the Requirements for the Commissionerof the FDMA to Order the Dispatch of National FireService Teams
It was stipulated that the Commissioner of the FDMA
can order the governors of prefectures aside from theprefecture where the municipality in which the disaster

37

Chapter 2 Fire and Disaster Prevention Organizations and Activities

occurred is located or the mayors of municipalities within
the prefecture in question to take the necessary measures
to dispatch their National Fire-Service Teams. Where thiswas previously limited to cases where the disaster was
regarded as a large-scale disaster spanning more than one
prefecture or NBC disasters, now it can be done when
it has been acknowledged that there is a special need torespond to the disaster in question, even when it is a largescale disaster that has occurred solely within a single
prefecture.
In addition, in March 2019, the Basic Plan was revised
to stipulate that the factors for determining a large-scaledisaster to be a disaster subject to instructions shall be
the situation surrounding the disaster, the establishmentof a disaster response headquarters or emergency disaster
response headquarters, and the need for support.

others. In addition, it has also been tasked with the dutyof carrying out support activities to ensure that commands
pertaining to National Fire-Service Teams by the mayorof the afflicted municipality or fire chief delegated by thesaid mayor are carried out smoothly within the afflicted
region. The Command Support Battalion is comprised ofIntegrated Command Support unit, Command Support
unit, and Air Command Support unit.
(B) Prefectural Battalions
The Prefectural Battalion is a group of basic companies
which are comprised of the teams required to aid with
firefighting undertaken in afflicted regions from among
a number of different companies. These include thePrefectural Battalion Command Unit, Firefighting
company, Rescue company, Ambulance company, Logisticcompany, Communication company, Air company,
Water company, Special Disaster company, and Special
Equipment company established in the prefecture ormunicipalities within said prefecture.

(2) Organization of and Dispatch Plans for
National Fire-Service Teams
Issues like the organization of and dispatch plans for
National Fire-Service Teams are established within the
Basic Plan set by the Minister of Internal Affairs andCommunications. An overview of these issues is provided
below. (Fig. 2-8-1)(C) Air Battalion
The Air battalion is tasked to conduct aviation-related
firefighting activities in the disaster area. It is composed of
air units and, if necessary, air logistics support units.

A. Organization of National Fire-Service Teams(A) Command Support Battalion
The Command Support Battalion is tasked withthe duty of urgently heading to afflicted regions via
helicopter or the like when large-scale disasters or
special disasters occur to gather information related tothe disaster and convey this to the Commissioner of theFDMA, the governors of the relevant prefectures, and(D) Special Battalions
Besides the prefectural battalions, there are special task
forces: Integrated Mobile Unit, National Fire-Service
Team for Energy/Industrial Disaster, NBC Disaster
Battalion, Mobile Support Battalion for Landslide, Storm
and flood. (Table 2-8-1)

Fig 2-8-1 Organization of teams comprising National Fire-Service Teams

38

Chapter 2 Fire and Disaster Prevention Organizations and Activities
Table 2-8-1 Tasks and organizations of special battalions
Name

Objective

MissionComprising unit

Integrated Mobile Unit

Established at the time of the 3rd
Basic Plan to create a more rapid unit
deployment system.

After a request or instruction by the
Director-General to mobilize, to mobilize
promptly, to conduct firefighting activities
urgently in the disaster area, and tocollect and provide information that
contributes to the smooth activities of theprefectural battalion in the case that theprefectural battalion follows.

Integrated Mobile Command Unit, Firefighting Units,
Rescue Units, First-aid Units, Logistical Support Unit, andCommunication Support Unit take the lead, respond withflexible organization and operation according to the typeof disaster being responded to and the objective of therapid dispatch and information collection.

National Fire-Service
Team for Energy/
Industrial Disaster

Established at the time of the 3rd Basic
Plan to strengthen emergency response
capabilities for petroleum complex
disasters, etc., based on lessons learned
from the Great East Japan Earthquake.

Command Unit of National Fire-Service Team for Energy/
To conduct advanced and specialized
Industrial Disaster, Special Disaster Company（equipped
firefighting activities quickly andwith large elevated water truck, hose extension vehicle
accurately in response to special
with a large water cannon, chemical fire truck, large
disasters in areas where energy andelevated water truck, and foam solution transport vehicle),industrial infrastructure such as petroleum Firefighting Company (equipped with chemical fire truck)complexes and chemical plants are
In addition to the above Special Equipment Unit,
located.
Logistical Support Unit, Communications Support Unit,
and Water Unit are added depending on local conditions.

Established at the time of the 4th Basic
Plan to establish a system to promptly
dispatch the NBC Disaster Battalion in
NBC Disaster Battalion the event of an NBC terrorist disaster, inlight of the occurrence of terrorist attacks
in other countries and the scheduled
Olympic and Paralympic Games.

To conduct advanced and specialized
firefighting activities against NBC
disasters in a prompt and accurate
manner.

NBC Disaster Command Unit, Toxic and Hazardous Unit
In addition to the above, Logistical Support Units etc. areadded depending on local conditions.

Established at the time of the 4th Basic
Plan as a mobile unit to be deployed to
Mobile Support
disaster areas in order to strengthen the
Battalion for Landslide,rescue system in the event of wind andStorm and flood
flood damage, which has become more
frequent and severe in recent years.

In response to landslides or wind andflood disasters, conduct firefighting
activities using heavy equipment, etc.,
in cooperation with other prefectural
battalions, etc., in a prompt and accurate
manner.

Mobile Support Command Unit for Landslide, Storm
and flood, Rescue unit（equipped with response vehicle
for handling tsunamis and large-scale storm and flood
damage and rescue work vehicle), Special Equipment Unit(equipped with heavy machinery and heavy machinerytransport vehicle, amphibian motor vehicle and amphibian
motor vehicle transport vehicle), Logistical Support Unit
In addition to the above, necessary units are added
depending on local conditions.

B. Dispatch Plans(A) Basic Dispatch Plans
When large-scale disasters occur, the Commissionerof the FDMA makes efforts to gather information andclosely coordinate with the prefectural governor of theafflicted prefecture and other officials. They also decideon whether or not it is necessary to dispatch National FireService Teams, and take the measures to request or ordertheir dispatch based on Article 44 of the Fire Defense
Organization Act. Dispatch plans are to be establishedahead of time to enable their prompt and precise dispatchin such cases.
Specifically, for each prefecture in which a disasteroccurs, they designate prefectural battalions that
dispatched to provide support as “first response prefectural
battalions” and prefectural battalions that provide
additional support according to the scale of the disaster as“reserve response prefectural battalions.”

teams in the event of a disaster, the FDMA may request
prefectures and fire departments to prepare for dispatch
and receive reports on the number of teams available fordispatch when there is a threat of wind or flood damage,etc. In the event of sudden incidents such as sudden riverflooding or landslide, the Commissioner of the FDMA will
immediately request or instruct dispatch without going
through a request for preparation for dispatch.
When a National Fire-Service team is dispatched, thecommand support battalion and the integrated mobile
unit are to be dispatched immediately ahead to collectinformation and facilitate the activities of subsequent
units. (Fig. 2-8-2)(D) Dispatch Plans for the Nankai Trough Earthquake andOther Potential Earthquakes
It is envisioned that the Nankai Trough Earthquake,
Tokyo in Land Earthquake would produce considerable
damage that would extend over multiple prefectures. The
thinking is that the firefighting capabilities of just thefirst response prefectural battalions and reserve response
prefectural battalions alone would be insufficient for this.
Therefore, in order to dispatch National Fire-Service
Teams at a national scale, each prefecture will formulate
its own action plan for National Fire-Service Teams at thetime of a disaster, and all National Fire-Service Teams
will be deployed simultaneously and rapidly.
In addition, the plans for the Nankai Trough Earthquake
stipulates measures to be taken in the event of asubsequent earthquake to allow for flexible operation
based on damage conditions and other factors. (Fig. 2-8-3)(B) Rapid Dispatch Standards for when Large-scale
Earthquakes Occur
When large-scale earthquakes occur, communications
infrastructure is disrupted and a considerable length oftime is needed in order to determine the overall extent of
the damage, and it is possible that requests for dispatch
may not be implemented quickly.
For this reason, the Commissioner of the FDMA has
had prefectural governors and municipal mayors fromaround the country prepare Requests for the Dispatch of
National Fire-Service Teams pursuant to the Fire Defense
Organization Act in advance since July 2008, so thatthey can dispatch upon the occurrence of a large-scale
earthquake.

(E) Operational Plan for NBC Disaster
When a large number of people are injured due to an
NBC disaster, the firefighting capability of the firefightingorganization with jurisdiction over the disaster area and(C) Rapid Dispatch
In order to rapidly dispatch National Fire-Service

39Chapter 2 Fire and Disaster Prevention Organizations and Activities
Fig 2-8-2 Rapid dispatch

the firefighting organization in the prefecture to which thedisaster area belongs alone is considered to be insufficient,and it is necessary to implement advanced and specialized
firefighting activities quickly and accurately. For thisreason, a special operation plan has been established and
NBC disaster response units will be dispatched promptly.

In the same way, each fire department is required
to formulate its own plan for receiving the prefectural
firefighting support and emergency fire rescue teams in its
own area, while ensuring consistency with the prefectural
support and disaster prevention plans and adding
necessary items such as the command structure for the
prefectural battalion of the prefectural firefighting supportand emergency fire rescue teams, the communication
system with fire departments and relevant organizations,and the implementation of training for receiving support.

(F) Assistance Plans by the Prefectures, etc.
Each prefecture formulates its own Implementation
Plans for Assistance from National Fire-Service Teams
based on the registration status of National Fire-Service
Teams within the prefecture in question. These plans are
based on consultations with the firefighting agencies ofeach prefecture in question with regard to the organizationof prefectural battalions and other teams, meeting
locations, information communication structures, andother necessary items concerning the prompt dispatch of
National Fire-Service Teams to afflicted regions.

(3) Number of National Fire-Service Teams
Registered and Their Equipment
A. Number of Teams Registered
The stipulations of the Fire Defense Organization Act
states that the Commissioner of the FDMA must register
National Fire-Service Teams based on applications to doso from the prefectural governors or municipal mayors.
In March 2019, the basic plan was revised and a target
for the number of teams registered was set for the endof FY2023 that would substantially increase the numberof teams from its current level of roughly about 6,000
to roughly 6,600 teams. This is to be done because it is
crucial to set in place a structure for deploying teams
quickly and at a large scale in preparation for large-scaledisasters such as the Nankai Trough Earthquake or Tokyoin Land Earthquake, for which damage that is worse thanthat from the Great East Japan Earthquake is envisioned.
Since the launch of the 1,267 National Fire-Service
Teams in September 1995, there has been a growing

C. Plans for Receiving Assistance
Each prefecture formulates Plans for Receiving
Assistance from National Fire-Service Teams by
hypothesizing situations in which said prefecture itself
falls victim to a disaster. This is done through consultations
with the firefighting agencies within the prefecture overnecessary matters regarding the acceptance of National
Fire-Service Teams, which includes the management
method of the Coordination Headquarters for Firefighting
Support Activities and the Air Operations Coordination
Team, requests for support, command system, advancebases, camping sites, and fuel supply bases.

40

Chapter 2 Fire and Disaster Prevention Organizations and Activities
Fig 2-8-3 Basic dispatch and action plans for National Fire-Service Teams

recognition of the importance of their activities during
disasters. As a result, the number of teams registered has
been on the rise, and as of April 1, 2023, 6,629 teams havebeen registered from 720 fire departments nationwide(roughly 99% of the fire departments nationwide). This isalmost 5 times more than its launch. (Attachment 2-8-2,
3 untranslated)tax grant rate) that were established in FY2011 wereexpanded in FY2013 to newly encompass “Equipment
for vehicles for the functional enhancement of National
Fire-Service Teams” and “Facilities to serve as bases
for rescue and other activities for National Fire-Service
Teams.”
Furthermore, the stipulations of the Fire Defense
Organization Act provide for a system for using
equipment free of charge. Under this system, some of theequipment needed by National Fire-Service Teams fortheir team activities and logistical activities is allocatedto fire departments and other sites throughout Japan.
Such equipment includes systems for water sources for
firefighting capable of handling disasters at energy andindustrial infrastructure, response vehicles for handlingtsunamis and large-scale storm and flood damage. In
recent year, in order to establish a logistical support
system in each prefecture and to strengthen the systemfor prompt information collection and sharing among
related organizations, operation base vehicles and highperformance inflatable tents, high-spec drones, andvideo transmission equipment have also been deployed.
(Attachment 2-8-4, untranslated)
The FDMA will continue working to round-out andenhance the equipment of National Fire-Service Teamsin a systematic manner to ensure that they can effectively
carry out their activities.

B. Equipment
Since they were first launched, the FDMA has
formulated standards for the equipment for National
Fire-Service Teams. Moreover, since their enshrinement
into law in 2003, it has included provisions for this in its
basic plan as it has worked to round-out their line-up ofequipment.
Starting from 2006, government subsidy measures
have been taken through a subsidy for outfitting National
Fire-Service Teams with facilities and equipment.
Through this, progress has been made in equipping themwith special disaster-response fire pump vehicles, rescue
work vehicles, special disaster-response ambulances,
as well as the support vehicles active teams need to act
in a self-contained manner in afflicted regions, and also
fiberscopes and other sophisticated rescue equipment andsupplies.
Moreover, the emergency and disaster prevention andreduction business debentures (100% allocations, 70%-omitted-

41

Attachment☞ Japanese Original P.6 (Attachment)
Attachment 1-1-2 Extent of fire damage by prefecture
Classification
Prefecture
Hokkaido
Aomorilwate
Miyagi
Akita
Yamagata
Fukushima
IbarakiTochigi
Gunma
Saitama
Chiba
Tokyo
Kanagawa
NiigataToyamaIshikawa
Fukui
Yamanashi
NaganoGifu
Shizuoka
Aichi
Mie
Shiga
Kyoto
Osaka
Hyogo
Nara
Wakayama
Tottori
Shimane
Okayama
Hiroshima
Yamaguchi
Tokushima
KagawaEhime
Kochi
Fukuoka
Saga
Nagasaki
Kumamoto
Oita
MiyazakiKagoshima
Okinawa
Prefectural total
Sapporo city
Sendai City
Saitama City
Chiba City
Special wards
Yokohama City
Kawasaki City
Sagamihara City
Niigata City
Shizuoka City
Hamamatsu City
Nagoya City
Kyoto City
Osaka City
Sakai City
Kobe City
Okayama City
Hiroshima City
Kitakyushu City
Fukuoka City
Kumamoto City
21 city total(During 2022)

No. of fires
Total
1,639
485
341
587
314
284
569
1,091
640
655
1,701
1,833
3,970
1,895
516
154
232
172
316
735
634
908
1,865
617
429
530
1,844
1,568
377
352
193
292
722
877
603
232
376
474
314
1,417
330
507
698
558
468
599
401
36,314
387
209
307
250
2,897
639
345
166
146
142
180
508
193
643
182
416
153
242
247
266
191
8,709

Buildings

Forests

Vehicles

986
277
194
348
165
176
309
530
317
325
1,039
940
2,859
1,175
353
106
140
95
142
352
333
502
1046
286
243
343
1,272
798
174
181
95
113
327
414
249
114
164
255
147
758
122
206
300
204
220
277
196
20,167
282
127
193
162
2,131
416
242
92
102
84
109
335
147
505
127
248
80
152
139
176
114
5,963

24
27
30
20
27
17
35
34
20
14
7
59
4
9
8
1
12
6
10
21
22
14
23
24
6
13
9
57
13
6
5
37
83
77
33
20
23
25
24
56
23
35
70
57
34
33
32
1,239
1
0
0
1
0
0
0
4
0
3
6
2
2
0
0
5
7
3
8
2
4
48

256
30
50
60
33
30
73
111
94
81
168
138
189
173
64
26
29
21
37
57
71
119
209
61
53
48
166
154
32
28
17
13
64
75
45
18
39
28
26
106
31
33
58
47
44
47
57
3,409
51
14
25
12
119
67
15
20
18
24
22
54
15
36
17
39
20
18
17
20
19
642

No. of buildings burned
Ships

Aircrafts

2
1
1
0
0
0
1
1
1
0
0
2
3
3
1
1
1
2
0
0
0
0
2
0
1
1
4
0
0
1
2
3
1
5
5
2
1
8
4
1
1
5
4
2
1
2
2
78
0
0
0
0
3
0
0
0
0
0
0
1
0
2
0
0
0
2
1
0
1
10

0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
1
0
0
0
1
2
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0

(Note) The “21 city total” is found within the prefectural total.

42

Other

Total

371
150
66
159
89
61
151
415
208
235
487
694
915
535
90
20
50
48
127
305
208
273
585
246
126
125
393
559
158
136
74
126
247
306
271
78
149
158
113
496
153
228
265
248
169
240
113
11,419
53
68
89
75
644
156
88
50
26
31
43
116
29
100
38
124
46
67
82
68
53
2,046

1,294
489
339
589
274
256
566
844
511
506
1,596
1,379
3,273
1,465
538
193
198
140
243
518
530
771
1,348
417
348
493
1,592
1,071
252
262
167
214
496
637
379
164
257
381
232
1,208
191
343
521
318
362
401
229
28,795
325
184
296
222
2,419
497
277
121
161
124
188
369
205
584
189
319
118
216
272
214
158
7,458

Totally
destroyedHalfdestroyed

Partially
destroyed

Minor fire

321
177
147
169
106
82
227
324
180
148
311
332
130
163
140
71
42
33
107
185
164
169
217
107
70
115
132
199
58
71
49
73
143
190
120
54
81
105
75
321
61
132
173
112
116
139
31
6,672
24
24
50
36
57
34
9
22
32
19
42
16
28
17
12
33
30
33
83
18
26
645

112
27
19
31
10
26
35
56
28
27
68
64
90
44
25
16
10
7
11
31
26
49
74
14
16
21
75
69
15
20
11
6
36
22
21
2
17
17
14
56
13
12
22
21
24
9
15
1,434
21
6
11
4
61
19
5
5
10
6
14
13
4
27
10
27
9
7
16
7
7
289

351
121
92
144
86
71
138
182
134
150
413
319
530
318
139
35
60
40
55
143
141
192
341
125
62
114
437
254
72
50
56
53
166
158
111
42
84
113
75
283
68
77
128
83
115
92
55
7,068
87
39
76
64
390
119
51
23
35
27
59
102
50
170
42
76
35
41
73
61
28
1,648

510
164
81
245
72
77
166
282
169
181
804
664
2,523
940
234
71
86
60
70
159
199
361
716
171
200
243
948
549
107
121
51
82
151
267
127
66
75
146
68
548
49
122
198
102
107
161
128
13,621
193
115
159
118
1,911
325
212
71
84
72
73
238
123
370
125
183
44
135
100
128
97
4,876

Attachment
Attachment 1-1-2 Extent of fire damage by prefecture (continued)
Classification
Prefecture
Hokkaido
Aomorilwate
Miyagi
Akita
Yamagata
Fukushima
IbarakiTochigi
Gunma
Saitama
Chiba
Tokyo
Kanagawa
NiigataToyamaIshikawa
Fukui
Yamanashi
NaganoGifu
Shizuoka
Aichi
Mie
Shiga
Kyoto
Osaka
Hyogo
Nara
Wakayama
Tottori
Shimane
Okayama
Hiroshima
Yamaguchi
Tokushima
KagawaEhime
Kochi
Fukuoka
Saga
Nagasaki
Kumamoto
Oita
MiyazakiKagoshima
Okinawa
Prefectural total
Sapporo city
Sendai City
Saitama City
Chiba City
Special wards
Yokohama City
Kawasaki City
Sagamihara City
Niigata City
Shizuoka City
Hamamatsu City
Nagoya City
Kyoto City
Osaka City
Sakai City
Kobe City
Okayama City
Hiroshima City
Kitakyushu City
Fukuoka City
Kumamoto City
21 city total

Area burned
Building
Building
floor area (㎡) surface area(㎡)57,41623,71432,035
21,76046,117
14,42228,286
61,23824,44919,43339,08538,062
22,812
20,17534,507
15,545
7,004
4,976
9,802
24,027
27,95323,70636,333
14,5759,560
15,35523,19732,602
7,668
10,51821,09728,71017,97036,395
14,911
5,850
12,172
14,3299,736
43,473
11,776
17,39823,806
16,031
24,31914,577
5,991
1,064,873
3,956
2,720
7,549
3,832
12,063
4,721
1,854
2,586
4,172
2,848
4,061
3,711
3,046
4,763
2,157
7,212
4,638
12,884
11,532
1,983
3,438
105,726

5,499
2,302
1,319
1,668
1,129
1,156
1,809
2,387
1,699
1,851
5,825
4,727
6,795
3,283
1,109
665
1,052
2,568
520
2,140
1,706
3,137
3,665
2,044
627
2,495
5,572
3,474
733
441
373
542
950
1,608
978
284
702
1,353
1,095
6,010
937
636
1,641
1,047
2,636
1,031
933
96,153
1,547
606
926
1,092
4,449
1,280
567
328
176
232
1,829
688
626
2,255
532
941
210
662
2,856
954
133
22,889No. of casualties
Forests (a)
2,279
3,784
1,045
933
409
452
750
717
1,283
138
102
579
24
294
77
9
43
82
164
1,143
394
295
286
193
26
72
77
2,797
108
21
161
469
1,318
934
297
574
823
2,474
773
13,362614
151
12,796
2,390
3,836
259
710
60,517
0
0
0
0
0
0
0
17
0
29
46
33
7
0
0
90
22
7
2,016
7
13
2,287

Fatalities

Injured

81
30
27
29
26
20
37
43
28
28
69
64
90
50
35
16
17
10
11
32
34
31
75
19
14
24
53
65
24
10
15
11
26
43
17
8
15
26
10
55
6
31
29
17
16
22
13
1,452
25
7
6
7
55
14
5
3
5
8
5
17
4
21
4
15
3
9
12
10
8
243

239
69
69
89
36
71
85
187
83
85
266
297
743
296
117
28
34
39
38
125
95
125
311
70
55
107
389
259
63
56
35
38
110
129
70
28
52
72
50
206
45
53
112
54
66
59
45
5,750
59
36
52
45
536
88
64
35
30
22
26
123
45
153
36
81
27
44
50
41
38
1,631

(Note) The “21 city total” is found within the prefectural total.

43(During 2022)
No. of households affected

Total
756
247
152
336
143
157
267
477
221
267
1,114
889
2,475
1,159
308
121
126
73
113
294
306
498
847
219
215
386
1,453
702
161
162
77
99
256
355
240
92
131
261
126
753
114
242
316
170
202
207
130
18,415
256
132
244
155
1,785
436
235
107
97
102
115
299
152
602
157
248
57
141
165
164
117
5,766

Totally
destroyedHalfdestroyedMinor
destruction

173
91
59
97
56
47
98
177
81
67
214
238
204
156
89
44
32
18
38
82
85
97
143
53
46
80
192
146
41
37
20
30
72
96
71
29
48
68
39
160
33
72
98
50
63
77
22
4,029
19
24
52
36
138
54
30
14
18
18
26
25
19
50
17
48
18
25
31
19
22
703

61
17
8
14
9
15
15
36
5
24
73
50
152
59
12
8
6
4
5
20
18
42
55
10
8
11
104
51
11
10
7
3
18
9
16
2
4
17
11
34
12
9
12
10
10
7
13
1,107
19
5
14
10
97
20
9
15
6
2
6
20
7
43
14
20
6
3
10
11
7
344

522
139
85
225
78
95
154
264
135
176
827
601
2,119
944
207
69
88
51
70
192
203
359
649
156
161
295
1,157
505
109
115
50
66
166
250
153
61
79
176
76
559
69
161
206
110
129
123
95
13,279
218
103
178
109
1,550
362
196
78
73
82
83
254
126
509
126
180
33
113
124
134
88
4,719

No. of people
affected
1,413
528
374
762
329
354
624
977
505
569
2,431
1,917
4,694
2,347
768
293
297
175
245
685
687
1,090
1,897
457
465
767
2,759
1,475
346
323
167
236
605
730
504
172
274
535
257
1,496
274
502
730
326
421
388
288
38,458
462
258
499
303
3,357
812
490
216
245
222
245
568
288
1,040
304
476
117
275
311
286
258
11,032

Attachment
Attachment 1-1-2 Extent of fire damage by prefecture (continued)
Classification
Prefecture
Hokkaido
Aomorilwate
Miyagi
Akita
Yamagata
Fukushima
IbarakiTochigi
Gunma
Saitama
Chiba
Tokyo
Kanagawa
NiigataToyamaIshikawa
Fukui
Yamanashi
NaganoGifu
Shizuoka
Aichi
Mie
Shiga
Kyoto
Osaka
Hyogo
Nara
Wakayama
Tottori
Shimane
Okayama
Hiroshima
Yamaguchi
Tokushima
KagawaEhime
Kochi
Fukuoka
Saga
Nagasaki
Kumamoto
Oita
MiyazakiKagoshima
Okinawa
Prefectural total
Sapporo city
Sendai City
Saitama City
Chiba City
Special wards
Yokohama City
Kawasaki City
Sagamihara City
Niigata City
Shizuoka City
Hamamatsu City
Nagoya City
Kyoto City
Osaka City
Sakai City
Kobe City
Okayama City
Hiroshima City
Kitakyushu City
Fukuoka City
Kumamoto City
21 city total

Total
2,962,153
1,016,779
2,373,793
1,890,884
2,501,829
735,288
1,281,010
15,593,742
1,900,361
1,317,376
3,523,794
3,723,302
5,484,466
1,790,135
2,461,122
860,810
530,427
298,517696,194
1,388,408
2,722,372
3,539,916
3,384,575
1,690,340
710,239
1,142,575
3,622,516
2,744,891
671,068
1,069,052
1,232,585
1,103,716
1,134,447
7,183,048
910,813304,394
702,879
827,888590,892
2,854,406
730,338
759,253
1,207,186
840,670
6,122,674
656,755
952,836
101,742,714
281,809606,365
531,221429,179
3,058,567
446,61293,461
142,221267,772
1,182,336
602,974
458,422
297,498
506,718
154,570
845,937
267,966
5,615,923
927,021
152,655
187,885
17,057,112

Subtotal
2,662,545
938,555
2,323,105
1,332,723
2,453,475
702,923
1,170,044
14,684,241
1,820,441
1,233,035
3,267,112
3,489,774
5,351,011
1,598,710
2,378,221
829,010
500,887
282,659
657,838
1,276,909
2,649,836
3,311,410
3,019,441
1,624,737
649,680
1,117,876
3,353,085
2,500,930
630,273
1,053,588
1,219,585
925,712
982,035
7,033,840
817,954283,887
669,041
641,694
549,4392,625,394
702,359
726,809
1,024,312
763,513
5,946,679
620,258
931,562
95,328,147
274,733
268,476
486,608
388,117
2,959,718
412,110
66,169137,509257,641
1,141,424
548,422425,790
286,341
436,558
147,280
716,024
211,952
5,599,167
868,448
136,593
180,150
15,949,230

Building

Buildings
1,773,865
766,246
1,884,960
1,097,209
1,642,317
527,333
830,550
8,190,194
1,346,805
985,963
2,146,819
2,503,712
3,367,864
1,253,396
1,677,109
558,580
391,309
227,515
530,686
995,565
1,224,066
2,291,480
2,218,338
1,404,073
473,586
920,085
1,643,538
1,664,673
488,099
811,093
638,335
524,738
762,654
4,782,148
637,525
233,039496,554493,388344,458
1,637,986
535,999538,273
831,124434,7444,298,833
358,078
577,876
63,962,780
213,729
197,400
321,019
269,378
1,831,314
354,422
48,507104,962
144,353
1,028,516
451,463309,683
244,835
226,561
122,353
403,012
153,594
3,818,334
421,224
80,784
156,440
10,901,883(During 2022) (Unit: 1,000 yen)Amount of damages
Contents
888,680
172,309438,145
235,514811,158
175,590
339,4946,494,047
473,636
247,072
1,120,293
986,062
1,983,147
345,314701,112
270,430
109,578
55,144
127,152
281,344
1,425,770
1,019,930
801,103
220,664
176,094
197,791
1,709,547
836,257
142,174
242,495
581,250
400,974
219,3812,251,692
180,429
50,848172,487
148,306
204,981
987,408
166,360
188,536
193,188328,769
1,647,846
262,180
353,686
31,365,367
61,00471,076
165,589
118,739
1,128,404
57,68817,66232,547113,288
112,908
96,959116,10741,506
209,997
24,927313,01258,358
1,780,833
447,224
55,80923,7105,047,347

Forests
50
18,694
8,631
4,281
1,918
358
2,409
216
3,300
678
0
308
340
0
180
935
386
537
0
9,233
3,041
781
243
5,101
95
2
3
7,199
62
939
0
2,657
451
1,040
160
603
293
119,228
11,195411
793
136
96,44637,288
3,026
1,031
0
344,678
0
0
0
0
0
0
0
0
0
14
681
0
2
0
0
0
0
1
7
0
15
720

(Note) The “21 city total” is found within the prefectural total.

-omitted-

44

VehiclesShips

215,098
19,14329,09534,70533,806
18,74989,302
105,205
54,19859,313103,301
108,666
84,339117,166
72,764
13,996
10,1807,446
20,364
74,38243,800143,075
227,442
31,04945,614
11,61068,687
91,63430,053
8,410
2,592
6,515
54,26752,20038,8086,274
21,871
21,746
10,58769,452
12,46322,51440,914
26,13732,15826,336
8,123
2,425,549
5,201
7,517
20,487
3,333
59,965
21,643
2,742
3,746
6,979
27,87544,80918,517
5,858
6,749
4,564
24,574
11,2498,704
15,481
9,624
4,127
313,744

1,900
9,245
490
0
0
0
1,500
759,250
0
0
0
1,635
34
20,956
600
343
0
51
0
0
0
0
155
0
80
633
2,779
95
0
563
170
153,642
3,000
6,811
23,311844
3
2,630
11,737
1,410
2,000
2,730
4,201
1,395
6,000
25
1,800
1,022,018
0
0
0
0
34
0
0
0
0
0
0
105
0
47
0
0
0
5,236
1,260
0
2,500
9,182

Aircraft
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
225
0
0
0
3,500
3,725
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0

Other
82,46930,225
12,452
493,391
12,38013,147
16,032
41,252
22,17424,283
109,216
121,753
44,19952,091
9,153
16,526
18,974
7,824
17,457
17,05525,69584,630133,273
29,36013,926
12,451
107,245
144,896
10,508
5,424
10,23815,14594,55689,14330,514
12,786
11,66242,306
7,934
132,006
12,723
3,045
41,088
11,725
134,493
9,105
7,835
2,395,765
1,875
330,344
24,12337,72936,614
12,85924,550966
3,152
13,023
9,062
14,010
5,294
8,787
2,726
105,339
44,7652,813
41,785
6,356
1,093
727,265

Explosions
91
917
20
25,784
250
111
1,723
3,578
248
67
44,165
1,166
4,543
1,212
204
0
0
0
535
10,829
0
20
4,021
93
844
3
90,717
137
172
128
0
45
138
14
66
0
9
284
0
25,733
0
4,019
0
612
318
0
16
222,832
0
28
3
0
2,236
0
0
0
0
0
0
0
3
54,577
0
0
0
2
40
82
0
56,971