Japan -the Philippines International Forumon Fire and Disaster Management

FDMA
Fire and Disaster Management Agency

Fire Prevention Measures
in JapanIchiro NAGAO

Director
National Research Institute of Fire and DisasterNov. 28, 2018
Seda Vertice North
Astra corner Lux Drives, Vertice North,
Quezon City, 1105 Philippines

Fire Service Act 消防法
Act No.186,1948 昭和23年法律第186号
CHAPTER 1 GENERAL PROVISIONS(Purpose)
Article 1 The purpose of this Act is to maintain peace and order andpromote public welfare by preventing, guarding against andcontrolling fire, protecting people’s lives, persons and property
from fire and minimizing the damage caused by fire, earthquakes
or other disasters.
第１章 総則(目的)
第一条 この法律は、火災を予防し、警戒し及び鎮圧し、国民の生命、身体及び財産を火災から保護するとともに、火災又は地震等の災害による被害を軽減するほか、災害等による傷病者の搬送を適切に行い、もつて安寧秩序を保持し、社会公共の福祉の増進に資することを目的とする。
1

CHAPTER 2 PREVENTION OF FIRE 第２章 火災の予防
The Fire Service Act contains various provisions concerning fire prevention. It grants fire
chiefs, fire station chiefs, and other firefighters the right to give orders if they judge thatplaying with fire or an outdoor bonfire is dangerous from the viewpoint of fire prevention.
It grants fire defense personnel the right to enter any place, the right to order the submissionof documents, and the right to collect reports. It also contains provisions concerning thefollowing: the right to order the suspension of use of property under fire prevention measures
regarded as dangerous from the viewpoint of fire prevention; fire chiefs’ or fire station chiefs’
consent to building permission; the system for management of fire prevention; inspection
and report of property under fire prevention measures; fire defense organizations; andequipment that uses fire.

CHAPTER 3 HAZARDOUS MATERIALS 第３章 危険物
With regard to hazardous materials, the Fire Service Act prohibits the manufacture, storage,or handling of them at places other than designated facilities for manufacture, storage, or
handling and specifies the following: procedures for applying for the construction of amanufacturing, storage, or handling facility; procedures for permission, inspection,
maintenance, and revocation of permission; and methods for holding examinations for
qualified inspectors to be stationed at facilities for hazardous materials.
2

CHAPTER 3-2 HAZARDOUS MATERIALS SAFETY TECNIQUESASSOCIATION 第３章の２ 危険物保安技術協会
CHAPTER 4 FIRE DEFENSE EQUIPMENT , ETC. 第４章 消防の設備等
With regard to fire defense equipment, the Fire Service Act specifies standards for fire
defense equipment that must be installed according to the purpose, size, structure, andcapacity of property under fire prevention measures; and methods for holding examinations
for fire defense equipment officers, who are qualified to inspect, install, and maintain fire
defense equipment.

CHAPTER 4-2 INSPECTION, ETC. OF A MACHINE, APPLIANCE, ETC.
USED FOR FIRE DEFENSE
第４章の２ 消防の用に供する機械器具等の検定等
CHAPTER 4-3 JAPAN FIRE EQUIPMENT INSPECTION INSTITUTE, ETC.
第４章の３ 日本消防検定協会
CHAPTER 5 GUARDING AGAINST FIRE 第５章 火災の警戒
CHAPTER 6 FIRE EXTINGUISHING ACTIVITIES 第６章 消火の活動
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CHAPTER 7 INVESTIGATION OF FIRE 第７章 火災の調査
CHAPTER 7-2 AMBULANCE SERVICE 第７章の２ 救急業務
CHAPTER 8 MISCELLANEOUS PROVISIONS 第８章 雑則
CHAPTER 9 PENAL PROVISIONS 第９章 罰則The penal provisions specify penalties for violation of the provisions of the Fire Service Act
and clarify smooth promotion of the purpose of the Act and strict attitude toward violators.

APPENDED TABLE 1 別表第１
APPENDED TABLE 2 別表第２
APPENDED TABLE 3 別表第３

http://www.kaigai-shobo.jp/pdf/Fire_Service_Act_eng.pdf
4Overall Picture of Major Systems concerning Fire Prevention Administration
Example: Building and structures

Where many people enter and or live.

HousesSinglehousesInstallation andmaintenance ofresidential fire
alarms[Regulations
by laws+ ordinances]

ApartmenthousesFire services authority• On-site inspection and order of action (e.g,prohibition of use etc.)• Effective security by penal provisions

Examples: Hotels, hospitals, welfare institutions, schools, factories, underground malls, etc.

Fire protection management/General fire protection management.
•Election of fire prevention managers, creation and notification of
firefighting plan, and implementation of training(+ periodical inspection system).
•E.g., election of general fire prevention managers and creation ofwhole fire plan (in the case of multiple administrators).
Response to disaster prevention management, earthquakes, and otherdisasters (Large-scale establishments only).

5

Example: Building and structures

Where many people enter and or live.

HousesSinglehousesApartmenthousesFire services authority• On-site inspection and order of action (e.g,prohibition of use etc.)• Effective security by penal provisions

Examples: Hotels, hospitals, welfare institutions, schools, factories, underground malls, etc.

Installation and maintenance of firefighting equipment (the latest regulations apply toexisting facilities such as hotels, welfare facilities, hospitals, etc.).
• Firefighting equipment: Sprinklers, indoor fire hydrants, gas fire extinguishers, etc.
• Alarm equipment: E.g., automatic fire alarms and fire alarm equipment to bereported to firefighting institutions.
• Evacuation equipment: Emergency exit lights, guide signs, and fire escapeapparatus

Flameproof regulations: Use of fire-retardant carpets, curtains, etc.

6

Example: Building and structures
Fire services authority• On-site inspection and order of action (e.g,prohibition of use etc.)• Effective security by penal provisions

Restrictions on fire facilities, fire equipment, etc.:
Structures and locations stoves, boiler, etc.
Regulated by laws and ordinances
In addition, regulations concerning fire protection management(regulating ordinances) of outdoor events, and regulations
concerning the handling of hazardous materials (e.g., gasoline)
are specified (Chapter 3).
7

Structure of laws and regulations concerning the installationand maintenance of firefighting equipment.
Article 17, Fire Services Act

Parties concerned with fire preventive objects (e.g., owners of the objects) in
hotels, hospitals, welfare facilities, underground malls, etc. are obliged to installand maintain firefighting equipment.
Aiming to reduce damage caused by fire, according to the purpose of fire
prevention objects from a physical point of view.

[Fire Services Act Enforcement Ordinance: Chapter 2 (Articles 6 to 36)]
■ Technical standards related to the installation and maintenance of firefighting equipment.
■ Fire prevention objects obliged to install firefighting equipment→ For each firefighting equipment etc., according to the purpose, size, accommodation personnel etc. of objects to be protected,
regulations subject to installation obligation are stipulated.
(Example: Ryokan and hotel with a total area of 150 m² or more must install fire extinguishers.)[Fire Services Act Enforcement Ordinance: Chapter 2 (Article 5 - Article 33)]
■ Detailed technical standards concerning installation and maintenance (* Partly covered
by notices)(Example: Fire extinguishers shall be installed for areas within a walking distance of 20
meters from any part of the areas.)■ Procedure for reporting on firefighting equipment.

8

Types of fire-fighting equipment
1 Equipment used for firefighting• Fire extinguishing equipment (e.g., fire extinguishing appliances, indoor
fire hydrants, and sprinklers)• Alarm equipment (e.g., automatic fire alarms)• Evacuation equipment (e.g., refuge appliances and induction lights)

2 Firefighting water supply
3 Facilities necessary for firefighting activities (e.g., connected water pipes,
smoke evacuation equipment, and emergency power outlet equipment)
9

A check system for installation and maintenance-Confirmation at fire headquarters-

At planning firefighting consent
Before installation Notification of construction commencement
Upon completion of installation Installation inspection
Maintenance control Inspection report by stakeholders
To be confirmed during the on-site inspection by fire headquarters
10

Fires in the past (60s-90s) and countermeasures 1
A number of fires accompanied by numerous victims occurred in large-scale attracting facilities such as hotels and department stores between the latter half of the 60s andearly in the 90s.
Gradually strengthening installation standards of sprinklers and automatic fire alarms in order to take advantage of lessons learned.
The installation standards of firefighting equipment etc. were applied retroactively to existing buildings in 1974.
Fire preventive institutional systems, including the fire prevention manager system (1960) and the certificate for the fireproofing system (1981) were developed as well.

Fire
Date

Fire name

Total floor
area
(㎡)

Death toll
(persons)

Number of
injuredpersons(persons)

Main response with consideration of fire disasters

1948 Fire Services Act enacted

Feb
1958

Fire at the Tokyo
Takarazuka Theater

15,764

3

25

Mar
1966

Fire at Fuji Hotel in
Minakami-machi

7,465

30

29

Nov
1968

Fire at Ryokan
Ikenobo Mangetsujo
in Kobe11,258May
1972

Fire at Sennichi
Department Buildingin Osaka

25,924

30

118

44

81

Establishment of fire prevention manager
Establishment of technical standards offirefighting equipment

Jul 1960 Fire
Services Act revised

Joint fire prevention management and fire
retardant regulations establishedReinforcement of standards of automatic fire
alarms[Automatic fire alarms] <Ryokan
accommodations> Retroactive application toexisting buildings

Jun 1968 Fire
Services Act revised
Mar 1969 Cabinet
Order revised

Fire protection management reinforced[Appointment of fire prevention managers]<Department stores etc.>
50 people → 30 people
Reinforcement of installation standards ofsprinklers, automatic fire alarms, etc.
[SP] <Multipurpose> Judgment by purpose→ Specific purpose 3,000m²[Automatic fire alarms] <Multipurpose>
Judgment by purpose→ 500m² (Specific purpose 300m²)

Dec 1972 Cabinet
Order revised

11

Fires in the past (60s-90s) and countermeasures 2
Fire
Date

Fire name

Total floor
area
(㎡)

Death toll
(persons)

Number of
injuredpersons(persons)

Main response with consideration of fire disasters

Nov
1973

Fire at Taiyo
Department Store in
Kumamoto

19,074

100

124

The installation standards of firefighting
equipment etc. applied retroactively.
Reinforcement of standards of sprinklers etc.
[SP] <Department store etc.> 11th floor ormore → Buildings over 11 stories
Establishment of instructive authority
concerning fire protection management

Nov
1980

Fire at Kawaji Prince
Hotel in Fujiharamachi

3,582

45

22

Establishment of certificate for fireproofing
system (operation)

Feb
1982

Fire at Hotel New
Japan in Chiyoda
Ward46,697

33

34

Jun
1987

Fire at Shojuen in
Higashimurayama

Mar
1990

Fire at Nagasakiya
Department Store in
Amagasaki

2,014

5,140

17

15

Jun 1974 Fire
Services Act revised
Jul 1974 Cabinet
Order revised25

Reinforcement of standards of sprinklers etc.
[SP] <Part of social welfare facilities>
6,000m² → 1,000m²

Oct 1987 Cabinet
Order revised

6

Reinforcement of installation standards ofsprinklers, etc.
[SP] <Department stores etc.>
6,000m² → 3,000m²

Jun 1990 Cabinet
Order revised

12

Recent fires and countermeasures 1
In recent years, fires accompanied by numerous victims occurred frequently in
relatively small facilities, business establishments, and multipurpose buildings.
Reinforcing installation standards of sprinklers and automatic fire alarms insocial welfare facilities with consideration of recent fire trends. Responding tocircumstance changes and the progress of technology as well as well as
measures related to the development of packaged automatic fire
extinguishers, water connection type sprinklers, and measures related towireless automatic fire alarms.
Reinforcing institutional countermeasures, such as the introduction of the fire
prevention objects (2002) and the violation object announcement system(2014).
Obligatory to install and maintain fire alarms for houses (2006) based on an
increase in the number of deaths due to housing fires.
Reduction of fire damage realized by the accumulation of preventive
administration efforts in both hardware and software.
13

Recent fires and countermeasures 2
Fire
Date

Sep
2001

Jan
2006

Jan
2007

Fire name

Fire at a
multipurpose
building in
Kabukicho,
Shinjuku Ward

Fire at a grouphome in Omura

Fire at a karaokebox in Takarazuka

Total floor area
(㎡)

516

279

218

Death
toll
(persons)

44

7

3

Numberof injured
persons(persons)

Main response with consideration of fire disasters3

Periodic inspection reporting for fireproof
objects introducedReinforcement of standards of automatic
fire alarms[Automatic fire alarms] <Multipurpose>
500m²(specific purpose 300m²)→300m²
Reinforcement of on-site authority andgranting order authority to fire staff

Apr 2002 Fire
Services Act
revised
Aug 2002
Cabinet Order
revised3

Reinforcement of installation standards ofsprinklers, automatic fire alarms, etc.
[SP] <Part of social welfare facilities>
1,000m² → 275m²[Automatic fire alarms] <Part of social
welfare facilities> 300m² → 0m²
Fire protection management reinforced[Election of fire prevention managers]<Part of social welfare facilities>
30 people → 10 people

Jun 2007
Cabinet Order
revised5

Reinforcement of standards of automatic
fire alarms[Automatic fire alarms] <Entertainment
shops with individual rooms >Newly mandated

Jul 2008
Cabinet Order
revised14

Recent fires and countermeasures 3
Fire
Date

Fire name

Total floor area
(㎡)

Death
toll
(persons)

Numberof injured
persons(persons)

Oct
2008

Fire at an audio
video arcade in
Osaka

1,318

15

10

Mar
2009

Fire at an elderly
nursing home (3buildings) in
Shibukawa

388

10

1

May
2012

Fire at a hotel inFukuyama

1,361

7

3

Feb
2013

Fire at a grouphome in Nagasaki

Aug
2013

Fire at
Fukuchiyama
Fireworks

Oct
2013

Fire at medical
clinics with bedsin Fukuoka

529

―

682

5

7

3

56

10

5

Main response with consideration of fire disastersReinforcement of installation standards ofsprinklers, automatic fire alarms, etc.
[SP] <Part of social welfare facilities>
275m² → 0m²[Automatic fire alarms] <Ryokan
accommodations> 300m² → 0m²
Mandatory installation of fire extinguishers
at outdoor events that use fire equipment

Dec 2013
Cabinet Order
revisedReinforcement of installation standards ofsprinklers, etc.
[SP] <Part of hospital facilities>
3,000m² → 0m²
Introduction of disclosure system on
violating objects (operation)Oct 2014
Cabinet Order
revised15

Laws to regulate hazardous materials

Hazardous materials
High pressure gases(including combustible
gases)High Pressure Gas
Safety Act

Hazardous materials(including
combustible liquids)

Poisonous
substances &Toxic substancesRadioactive
materials

Fire Service Act

Poisonous andDeleterious
Substances Control
Act

Atomic Energy
Basic Act, etc.

Acetaldehyde, Phosphorus,
Hydrogen peroxide,
Petrochemical products,
Explosives

16

Hazardous materials
Those materials listed in the Appended Table 1 of the Fire Service Act,
which have the properties listed in the Nature column of said Table
according to the Categories specified in said Table. (Article 2,
Paragraph 7 of the Fire Service Act)
Hazardous materials are classified into 6 categories I through VI
according to their chemical and physical properties.
Category I
Category II
Category III
Category IV
Category V
Category VI(Oxidizing solids)(Combustible solids)(Spontaneously combustible substances and water-reactive substances)(Flammable liquids)(Self-reactive substances)(Oxidizing liquids)

To identify whether a material falls within the hazardous materials, the hazardous
materials identification testing is conducted.
17

Hazardous materials facilities(Manufacturing facilities, etc.)
Hazardous materials of the designated quantity or a larger quantity shallnot be stored or handled at facilities other than manufacturing facilities,
storage facilities, or handling facilities (Article 10, Paragraph 1 of the Act).

・Permission of establishment and any changes (Article 11 of the Act)・Technical standards for the location, structure, and equipment(Article 10, Paragraph 4 & Article 12 of the Act)・Technical standards for storage and handling (Article 10, Paragraph 3 of the Act)・Designation of hazardous materials supervisor (Article 13 of the Act), etc.
・Authorization of fire prevention rules (Article 14-2 of the Act), etc.
Exceptions
Temporary storage or handling for not more than 10 days with theapproval of the competent fire chief or fire station chief with jurisdiction(saving clause in Article 10)18Classification hazardous materials facilitiesThose facilities capable of storing or handling hazardous materials of the designated quantity or a larger quantity

Manufacturing facilities
The places approved by the head of the municipality for handlingof hazardous materials of more than the designated quantities
in order to manufacture the hazardous materials.
Storage facilities
The places approved by the head of themunicipality in order to store hazardous
materials of the designated quantity or alarger quantity
Underground storage tankfacilities
Simple storage tank facilities
Mobile storage tank facilities
Indoor storage tank facilities

Handling facilities
The places to handle hazardous
materials for any purposes other thanmanufacturing of hazardous materials

Filling stations
Sales stations
Conveyance stations
General handling facilities

Outdoor storage tank facilities
Indoor storage facilities
Outdoor storage facilities

19

Hazardous materials control
Establishment and/or changing of hazardous
materials facility

Regular inspection(Legal inspection)

Application for permission
Self-inspection

Notification
Voluntary safety management▪ Notification of changes in the type, the quantity, or themultiple of the designated quantity of hazardous materials▪ Discontinued operation of any hazardous materials facility
Fact-finding survey

Guidance of ensuring safety

Workplaces

Legal control▪ Transfer and/or handover of hazardous materials facility

Fire Department

Manual control

Physical control

Permit, Completion inspection, Inspection prior to the completion inspection

Fire prevention rules
Establishment
Application for approval

Approval

Designation

Hazardous Materials Manager(Direction)
Notification

Hazardous Materials Supervisor(Direction & Supervision)

Hazardous Materials
Security Personnel
Designation

Hazardous Materials Engineer(Observation & Direction)
Hazardous materials handling workers(Those who do not hold any Hazardous Materials Engineer’s License)(Source) 2008 Tokyo Fire Department Informational Book published by Tokyo Fire Department

Employee training

Private fire drills

20History of the Hazardous materials countermeasures 1

Over the course of rapid economic growth and energy transformation, from
1955-1969, huge petroleum industrial complexes were built one after anotherin coastal areas in various parts of Japan, and the consumption of petroleum
and the number of facilities handling hazardous materials rapidly increased.
With this increase, fires or explosions with many fatalities at industrial facilities
also occurred frequently.
Triggered by this series of accidents in 1964: the propylene oxide explosion at
Showa Denko KK Kawasaki Plant (with 15 fatalities), the crude oil tankburning accident at Niigata Refinery, Showa Shell Sekiyu K.K. due to the 1964
Niigata earthquake, and the organic peroxide explosion at the Katsushima
warehouse of Takaragumi Co., Ltd. (with 19 fallen firefighters or volunteer
firefighters), hazardous materials regulations were significantly revised andstrengthened.

21

History of the Hazardous materials countermeasures 2

In addition, triggered by the large-scale heavy oil spillage accident at
Mizushima Refinery, Mitsubishi Oil Co., Ltd. in Kurashiki in 1974, the Act on
the Prevention of Disaster in Petroleum Industrial Complexes and Other
Petroleum Facilities was enacted, the Hazardous Materials Safety Techniques
Association was set up in 1976, and the structural standards for outdoor
storage tanks, etc. were significantly strengthened in 1977. In this way,
regulations for facilities handling hazardous materials came to be drasticallyrevised or strengthened.
At facilities which handle hazardous materials, because of the effects of
the regulations being strengthened in series from 1965-1978 and promotion of
the businesses’ own safety measures, based on the stable development of
the Japanese economy, the number of accidents steadily decreased fromaround 1975-1990.
But !, A state of deterioration due to old age or long use.
22

Implementation and Support of Cause Investigation of Fires and Hazardous Materials Spill Accidents―For recurrence prevention of fires and accidents and promotion of preventive measures
1 Investigation on the causes of fires and hazardous materials spill accidents
Researchers and investigators with expertise conducted a fire cause investigation in cooperation with the fire
department headquarters by the order of the Director General of the Fire and Disaster Management Agency.
Large-scale experiments for verification are carried out according to each case.

Fire at a large-scale warehouse in
Saitama Prefecture (February 2017)

Fire at a refinery fire in Wakayama
Prefecture (January 2017)

Status of verification experiment of a fire at a cheaploading house in Kawasaki(Large-scale fire experiment building, Fire Fighting
Research Center)

2 Assistance for identification and judgment
Officials of the National Research Institute of Fire and Disaster with expertise supports the fire investigationof fire department headquarters at the request of the fire department headquarters.
Dispatching of investigators to fire sites and conducting identification and judgment at the laboratory of the
National Research Institute of Fire and Disaster.

Vehicle identification

Laboratory (Fire and Disaster
Research Center)23

Changes surrounding Firefight
Population decline and declining birthrate and aging
With the trend of recent years unchanged, the population decline, thedeclining birthrate, and aging population are expected to progress rapidly.
Measures to prepare for an increase in the number of supporters are
required along with countermeasures against a reduction in the numberof people responsible for disaster prevention measures.
Depopulation, hollowing out of rural areas and aging and population
concentration in urban areas
Population declines, aging, depopulation have progressed rapidly in rural
areas while urban population will increase. Therefore, each region has
different problems.
Measures are required according to each local condition.
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Japan -the Philippines International Forumon Fire and Disaster Management

FDMA
Fire and Disaster Management Agency

Thank you for your attention

Fire and Disaster Management Agency FDMA
http://www.fdma.go.jp/neuter/about/pdf/en/2015/all.pdf
Fire and Disaster Management College, FDMA
http://fdmc.fdma.go.jp/procedures/docs/7-1.pdf
National Research Institute of Fire and Disaster, FDMA
http://nrifd.fdma.go.jp/about/summary/files/summary201607.pdf
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