V To Prevent Fires In Tokyo buildings are becoming large-sized, higher and deeper underground, while their management styles and types of businesses are diversified with the progress of globalization and information technologies. On the other hand, new technologies and performance-based standards are adopted more frequently in fire protection and evacuation measures, as well as in fire protection equipment technologies. The environment surrounding the fire prevention administration is thus changing dramatically. The TFD is actively promoting fire safety for workplaces to meet these changes. It takes comprehensive fire safety measures suitable for the features of each building, and restructured the TFD s fire prevention system, making full use of the organization s mobility. In August 2013, a fire broke out at a food stall which opened for a firework event in Fukuchiyama, Kyoto. Learning lessons from the incident, the Fire Prevention Ordinance was revised in August 2014. The TFD promotes fire prevention education particualtly to event organizers. The TFD will continue to promote fire protection and safety measures actively, following the social trend and revision of laws and regulations. 5-1 Fire Prevention Advice on Buildings - 61 -
1 Fire Chief's Consent on Buildings To prevent fires in buildings, and to protect lives and property, consideration for fire protection must be paid at designing stages of buildings. For that purpose, the Fire Service Law and the Building Standard Law stipulate that city building supervisors or designated inspection specialists must obtain consent from the Fire Chief or a local fire station chief before they give building construction permission to expectant building owners. The houses to be constructed in the areas out of fire resistive zones or the like (e.g. suburban areas) are exempted from this rule. Based on this consent system, the fire department reviews building plans, referring to the Fire Service Law, the Building Standard Law and other related laws and regulations, and gives fire safety instructions from a fire professional's standpoint. Number of Fire Chief s Consent Processed (In 2014) Occupancy Processed Processed Occupancy Cases Cases Theaters, cinemas, playhouses, venues 38 Land transport stations/stops, seaport or airport 104 Public halls, assembly halls 9 Shrines, temples, churches 181 Cabarets, cafes, nightclubs Factories, workshop 211 Amusement halls, dancing halls 24 Movie or television studios 1 Adult entertainment businesses Garages or car parks 297 Karaoke boxes, Net-cafes, etc. 7 Hangers for aircrafts & helicopters Machiai restaurants and other similar ones 1 Warehouses 608 Eating and drinking houses 214 Offices, banks, other workplaces 3,113 Department stores, supermarkets 685 Multi-use occupancy buildings 2,773 Ryokan, hotels, inns 73 Underground shopping arcades Dormitories, boardinghouses, apartment houses 7,042 Quasi-underground shopping arcades Hospital, clinics 194 Important cultural property Welfare facilities 574 Arcades 5 Kindergartens, schools for children with special needs 91 Private residences 30,211 Primary schools, high schools, colleges & universities 712 Town houses 3,716 Libraries, museums, art museums 10 Others 950 Sauna or steam bathhouses, public bathhouses 17 Total 51,681-62 -
2 Reporting on the Use and Modification of Buildings According to the Fire Prevention Ordinance, the following actions should be taken if there are any changes regarding the use of buildings. Those who will undertake construction, repairs or occupancy changes of a building shall report to a fire station chief with necessary information seven days before prior to the start of the work. Those who will use a building or part of a building shall report to a fire station chief with necessary information, and undergo an inspection seven days prior to the use. Those who will use a building or part of a building temporarily as a shop, etc. visited by unspecified people shall report to a fire station chief seven days prior to the temporary use, and undergo an inspection. Those who will install a kitchen, a warm-air heating system, transformation equipment and fuel cell generator equipment, in a certain specified size, shall report to a fire station chief seven days prior to the start of the installation, and undergo an inspection. 3 Start of the Training Program of Fire Protection Safety Engineering Recently, remodeling work that does not require building confirmation by the owner or a designated certification inspection agency is increasing in buildings in Tokyo. To further improve the fire protection performance of these buildings, a training program was launched to develop fire protection safety engineering specialists who can check the fire protection safety level of these buildings under construction based on the Fire Prevention Ordinance revised in April 2006. Over 5,800 people have completed the training since the system started. 4 Proper Execution of the Intermediate Inspection and the Inspection for Use In accordance with the Fire Prevention Ordinance, the TFD executes the Intermediate Inspection and the Inspection for Use to check strictly if the buildings conform to the fire safety standards. 5-2 Reporting on Fire Protection Systems and Special Fire Protection Systems 1 Installation and Maintenance of Fire Protection Systems and Special Fire Protection Systems Fire protection systems are fire extinguishing system, fire alarm system, escape equipment, firefighting water supply and facilities which help firefighters work, as prescribed in the Fire Service Law Enforcement Order. Persons related to fire prevention property such as owners, managers or occupiers must install and maintain such fire protection systems according to the - 63 -
technical standards prescribed in the Fire Service Law or the Fire Prevention Ordinance so that such equipment retains performance required for firefighting and other emergency operations Persons related to fire prevention property can install special fire protection systems in place of fire protection systems, if such special fire protection systems are those approved by the Minister of Internal Affairs and Communications for installation and maintenance. Those who conduct construction work on these fire protection or special fire protection systems and equipment in buildings are required to submit the following reports, according to the Fire Service Law or the Fire Prevention Ordinance. Notification of the Subject Equipment for Work (Fire Service Law) Notification of Installation Plan of Fire Protection Systems/Special Fire Protection Systems (Fire Prevention Ordinance) After making the following notification, persons related to fire prevention property must have their equipment inspected by the fire department, according to the Fire Service Law and the Fire Prevention Ordinance. Notification of Installation of Fire Protection Systems/Special Fire Protection Systems (Fire Service Law and Fire Prevention Ordinance) Fire protection systems and special fire protection systems must be managed and maintained properly after their installation. The Fire Service Law therefore requires the party in charge of the fire prevention property to have legally certified persons to periodically inspect such systems and notify the inspection result to the head of the fire department. 2 Guidance of Fire Protection Engineers Those who conduct legally approved construction work on the fire protection systems or special fire protection systems specified in the Fire Service Law are required to have a qualification certificate of fire protection engineers. In addition, technological innovations have been made in fire protection systems, and laws and regulations are being revised according to the changes in society. With this in mind, the TFD gives training to qualified fire protection engineers and other technicians who conduct construction and maintenance work to update them on new technology and revised related laws. - 64 -
5-3 Fire Prevention Inspection 1 Fire Prevention Inspection Fire prevention is, in its nature, among the responsibilities of each individual including companies. The Fire Service Law requires that owners of department stores, theaters, facilities storing or handling hazardous materials, or large plants and factories, do good fire protection management on those facilities, or safety management on hazardous materials. On the other hand, the fire service does on-the-spot building inspections with the following building factors taken into consideration: use purposes, sizes, construction, facilities, management, fire hazards, etc. In case of no corrections made to illegal conditions by building personnel, the fire service promptly issues warnings and orders to violators as life safety measures. On-the-spot inspections are also given to the hazardous materials facilities on the Izu Islands. The Fire Service Law states that in the municipalities with no fire departments/stations provided, on-the-spot Hazmat facility inspections should be conducted under the authority of governors. In Tokyo, Fire Chief is given this authority and entrusted to do this service on the Izu Islands. In the TFD, on-the-spot inspection of the Izu Islands is the responsibility of the Fire Inspection Section, which covers about 428 (As of December 31, 2014) Hazmat facilities on 13 islands. 2 Promotion of Safety and Security Information The Certified Fire Safety Building Indication system, which was implemented on October 1, 2006, requires that the fire station chief review and inspect buildings upon request from the management of the building. If the building is classified as above standard or excellence in fire safety, the Fire Safety Building Certificate (Excellence Mark) can be displayed on the building. - 65 -
This mark, posted in a visible place, allows citizens to confirm at a glance that the building complies with fire safety standards. On the other hand business managers are expected to be motivated to improve the fire safety of their buildings in order to obtain this official certification. On April 1, 2011, the TFD website started to provide building information for everyone to make sure of building fire safety. Eight years have passed since the start of the Certified Fire Safety Building Indication System. On April 1, 2014, the revised System including the Fire Safety Building Certificate with English translations Fire Safety Building was enacted. Certificate ( Excellency As part of information disclosure and to help citizens make a decision Mark ) on the use of a building, TFD s website provides information on known fire prevention-related violations under the Fire Prevention Ordinance and a list of the buildings with violation correction orders given according to the Fire Service Law. 3 Restriction on Smoking, Open flame, and Hazardous Items at Designated Places The TFD controls the smoking, open flame producing, and hazardous items accompaniment at the public facilities casually visited by many people, designated as designated place. This applies to theaters, department stores and others where congestion may lead to heavy casualties in case of fires. These actions, if totally banned, will hinder cultural/economic/social activities. So the TFD gives approval to those who applied beforehand and whose plans are recognized by fire station chief to be up to the standards specified by Fire Chief. As of December 31, 2014, there were 25,357 designated places in the TFD s service area. The number of the applications for lifting the ban on the use of fire or hazardous items amounted to 6,854 in 2014. About 80 percent of them were request for the use of open flames in theaters and TV studios. Designated places are required to place the following signs at the entrance or other visible places to show the prohibited actions or goods. - 66 -
Violations (In 2014) No. Violation Items Warnings Orders Special Recognition Cancellation 1 Fire protection management regulations 241 8 2 Fire protection equipment technical standards 135 6 3 Fire protection equipment inspection & reporting standards 57 1 4 Fire protection/evacuation facility standards 41 230 7 5 Fire-using/electrical facilities standards 24 4 6 Hazmat facilities standards 3 7 7 Fire service-related laws and regulations 20 Total 521 247 16 Safety and Security Information Announcements (In 2014) Number of buildings Certificate of fire safety 877 Public announcement of the buildings with violation (buildings with serious 267 violation and/or multiple failures to observe the management rules) - 67 -
TOPIC 5 Fire Safety for Large Events Due to the fire incident in August 2013, which ooccured during a firework festival in Fukuchiyama, Kyoto, the Fire Prevention Ordinance was revised to reinforce fire safety for large events, such as festivals, ceremonies, night markets, fireworks, and exhibitions, where a lot of people gather. According to the new Ordinance, event organizers and stall owners are obliged to take the following actions: For Large Events (including large outdoor events) Stall owners are required to prepare fire extinguishers if they use fireusing appliances Stall owners are required to report their event participation to the designated fire station. Early stage fire fighting is highly effective to prevent fire disasters. The fire station checks for safety before the event starts. Generator For Large Outdoor Events (More than 100 thousand visitors and 100 stalls) Event organizers are required to make a fire prevention plan for the event and submit it to the designated fire station. *In case of failure, a penalty is imposed. The Tokyo Fire Department provides safety and security information on its website and through other media. *The information about event names, venues, dates, fire prevention plans, submission status, and others is posted. The responsibility and role of event organizers is clearly allocated for greater fire safety. The fire station checks for safety before the event starts. The Tokyo residents feel secure and enjoy the event safely. - 68 -
5-4 Safety Measures for Hazardous Materials 1 Control on Hazardous Materials Facilities Gasoline, petroleum, and other flammable or combustible liquids are listed as hazardous materials in the table of the Fire Service Law, together with other hazardous materials. Those who want to build or modify facilities, which store or handle hazardous materials of quantities more than the amount designated by the Law, are required to get permission from the head of a local government, and to undergo the completion inspection by a local government head. Those who want to change the kind of hazardous materials, or their quantities are also required to report to the head of the local government (to Fire Chief in Tokyo). The TFD assures the safety of hazardous materials facilities through the review of permission applications and fact reports, and facility inspections. Hazardous Materials Facilities (As of March 31, 2014) Storage Handling Place Category Number of Facilities Factory 77 Indoor Storage 1,826 Outdoor Storage Tank 392 Indoor Storage Tank 1,138 Underground Storage Tank 2,930 Simple Storage Tank 8 Mobile Storage Tank 1,602 Outdoor Storage 167 Gas Station Commercial 1,156 Private 672 Sales Place 348 Transporting Place 13 General Place 2,434 Total 12,763 (Note) 1. General Place: a boiler facility or painting factory consuming or spraying the hazardous materials which exceed a designated amount. 2. The fact of hazardous materials facilities includes the number of those on islands. - 69 -
2 Safety of Hazardous Materials Facilities Most of the incidents in Hazmat facilities are caused by 1) human factors, such as improper maintenance, poor management, careless manipulation, and 2) physical factors, such as deterioration caused by metal fatigue and corrosion, and poor work in construction. Against such a backdrop, the number of spill incidents at Hazmat facilities is on the increase in recent years, and therefore a partial revision is being applied to the hazardous materials control regulations, which mainly stipulate measures to prevent spill incidents of underground tanks (effective February 1, 2011). The Fire Service Law requires assignment of Hazardous Materials Engineers to ensure safety of hazardous materials facilities. Further, depending on the scale of the facilities, the law requires assignment of Hazardous Materials General Manager, Hazardous Materials Supervisor (both for management and supervision) and Hazardous Materials Security Person (for maintenance and management of facilities in terms of security). 3 Promoting anti-earthquake measures in hazardous materials facilities To prepare for large-scale earthquakes, TFD is promoting anti-earthquake measures relating to the structure and equipment of hazardous materials facilities. These include not only measures to increase earthquake resistance, but also guidance for the inspection of facilities and the implementation of emergency measures when an earthquake occurs. 4 Cooperative disaster prevention system for business establishments which store large quantities of hazardous materials In Tokyo, facilities that store large quantities of hazardous materials are concentrated near ports and along rivers. In the event that an accident involving storage facilities with large quantities of hazardous materials occurs, damage localized within a single business establishment poses the risk of spreading. For this reason, business establishments in particular must consider area-wide disaster prevention systems. In response to this necessity, 41 business establishments with facilities that store large quantities of hazardous materials in the Tokyo metropolitan area organize the Tokyo Mutual-Support Council for Hazardous Materials Disasters, a cooperative disaster preparedness system that offers mutual support when an accident occurs by providing fire extinguishing agents and disaster equipment. The TFD actively supports the cooperative fire prevention training and research activities concerning combined fire training and facilities safety implemented by the Council. - 70 -
5 Fire prevention for small quantities of hazardous materials and specified combustible materials In accordance with the Fire Prevention Ordinance, when facilities that store and handle small quantities of hazardous materials or specified combustible materials are established, operators are required to submit a report to the fire station chief with jurisdiction 10 days in advance concerning such matters as conditions on the periphery of the installation location, building and structures, and the structure of machines and equipment. Through this system, TFD provides guidance in fire prevention measures for these facilities. 5-5 Safety Measures for City Gas and LPG 1 Safety Measures for City Gas To prevent the explosions and other incidents caused by the city gas in high-rise buildings or underground arcades, in March 1979 the Fire Prevention Committee presented two recommendations to the fire department - Life Safety in High-rise Buildings and Fire Protection in Underground Arcades. Based on the recommendations, the TFD requested city gas companies that gas leak alarm devices and automatic gas shut-off devices be installed in gas servicing systems. On August 16, 1980, a big gas explosion incident occurred in an underground arcade in front of Shizuoka Station. Learning lessons from the disaster, the Fire Service Law Enforcement Order was amended in January 1981. The amended Enforcement Order required gas leak alarms in underground arcades. At the same time, gas regulations were also amended, and the amended regulations required automatic gas shut-off devices in underground arcades. - 71 -
Also the TDF is working to strengthen independent fire protection management systems for the event of gas leaks in underground arcades. 2 Safety measures for flammable natural gas On June 19, 2007, an explosion occurred at a hot spring pumping facilities in Shibuya ward, Tokyo. Based on this, the Order for the Enforcement of the Fire Service Act was revised in July 2008, in order to strengthen legislation concerning hot spring pumping facilities, including making the installment of gas leak and fire alarm equipment mandatory. 3 Fire Department Measures for LPG Safety Because of the LPG laws, when people want permission from the Prefectural Governor to install facilities to store or supply LPG gas of 3,000kg or more, they must attach the `Comment Sheet' written by the Fire Chief or fire station chief to the application form. When the Minister of Economy, Trade and Industry, or the Prefectural Governor gives permission, he/she must inform of it to the Commissioner of the Fire and Disaster Management Agency or the Fire Chief. If the Fire Chief noticed the violation of regulations, or dangerous conditions on the part of LPG retailers, he/she informs and requests the Prefectural Governor to take necessary measures. 4 Report of Compressed Gas, Poisonous and Corrosive Substances In the event of a fire in facilities where compressed gas, liquefied gas, radio isotope, poisonous and corrosive substances, etc. are stored or handled, the hazardous materials will endanger the citizens in the neighboring area or firefighters on the scene. Therefore, according to the Fire Service Law or the Fire Prevention Ordinance, the owners of the facilities must report the names of the substances, their quantities, and necessary information on storing and handling to the local fire station in advance. 5 Report of Fireworks Anyone who makes a large smoke or flame which is likely to be mistaken as a fire, or who sets off fireworks, or who holds entertaining events at other places than theaters, must report it to the fire station chief beforehand. Also, works on the water mains which will stop or limit the water supply, repairing works of streets or the setting up of stores by street vendors, which will obstruct the passage of fire apparatus, must be reported to the fire station chief beforehand, together with the date and time, location, and what is to be done, according to the Fire Prevention Ordinance of Tokyo. - 72 -