中華民國內政部建築研究所中華民國內政部建築研究所

一.研究緣起
本研究主題為「營業使用建築物施工中防火避難與消防安全對策及管理措施之研究」，故本團隊擬蒐集國內外相關文獻，並對各文獻進行研析，針對國內、外相關建築物施工中對於防火避難、消防安全設備停止防護時所採取的必要措施進行檢討、比對及分析，最終對國內施工中防火管理及消防安全設備取代措施進行相關法規檢討修正，提出參考意見。
二.研究方法及過程
本研究擬藉由蒐集國內外關於營業使用建築物施工中建築、消防、營業之管理方式之研析，歸納並提出替代方案，設計問卷調查及召開專家學者座談等方式，進行下列各項研究內容：
(一)了解及蒐集先進國家就營業使用建築物施工中建築、消防、營業之管理方式，其相關機關權責、管理機制等分析。
(二)破壞防火區劃時採「臨時性防火區劃」圍束方式(含圍束施工、圍束材料、圍束完成時間及圖說繪製方式)、施工中假設工程使用耐燃材料等之工法、技術、材料替代方案與可行性，確保施工中建築物之防火區劃與避難。
(三)提出關閉消防安全設備之條件、管理方式及替代措施，如何整合建築物之施工中防火管理，確保整棟建築物之消防安全。
(四)評估施工中建築物全部或一部暫停營業、停止使用之要件、管理機制及可行性，以平衡經濟與安全之需求。歸納出提升施工中建築物建築、消防、營業之管理改善方案，提出建議替代項目及增修定之規範。
三.重要發現
經過國內外關於營業使用建築物施工中建築、消防、營業之管理方式之研析、問卷調查及召開專家學者座談蒐集各方資料，本研究對營業使用建築物施工中防火避難與消防安全對策及管理措施方面，初步摘錄有以下幾點重要發現：
(一)日本、美國的相關法令內容，針對同時營業與施工的規範較少，大多數的規定都規範只要執行施工行為，即需要遵守相關的安全工事之規範，對於同時營業與施工的細項並無特別區分。國內消防法規針對施工中消防安全防護早已訂定，並有「現有建築物（場所）施工中消防防護計畫指導須知」供參考，並且在「建築物室內裝修管理辦法」內建亦有明述施工中做涉及防火區劃變更，則需要提報施工中消防安全計畫書，指導須知為民國90年所頒佈之法令，距現已有20年，指引中所述之消防安全設備替代措施應可增加目前已普及的設備及技術，有較多之選擇性。
(二)參考內政部建築研究所過去防火試驗結果作為建築物室內裝修併變更使用時，原有法定防火區劃被破壞時，其等效替代的臨時性防火區劃第一類A種與B種，分別具有60分鐘與30分鐘的防火時效。針對建築技規則規定應適用遮煙性能的昇降機道、管道間維修門，以及進入室內安全梯防火門等因施工而被破壞時，應增築第一類A種的牆體予以完整區劃分隔，施工區域內並應有強制通風換氣設備。
(三)針對許多百貨商場櫃位調整「局部室內裝修」等施工行為，建議於法定防火區劃之內的施工區域與營業範圍，建立完整的「實體區隔」作為屏障，可採本計畫的臨時性防火區劃第二類實體區劃，具有20分鐘的防火時效的簡易輕隔間工法，作為實體區隔之牆體。
(四)對於施工區域火災風險高或探測困難之處所，建議可採新設備或新技術予以強化防護，對於自動撒水設備等滅火設備因施工遭關閉或不能動作時、火警自動警報備因施工遭關閉或不能動作時因應時代演進，皆有新世代產品可參考設置。
(五)針對適用簡易室裝的建築物，目前於請照、施工與竣工階段，皆以書面送審方式進行，建議應於建築機關核發施工許可前，由建築師或消防專技人員或室內裝修專業技術人員進行施工中消防防護計畫檢核與確認。由於目前室內裝修工程並無開工申報制度，許多案件取得建築主管機關的圖說或施工許可函後即開始施工，此時並未取得消防圖說以及施工中消防防護計畫審核通過，建議應採建築與消防聯審機制，同時建管單位(或協審單位)與消防單位。
(六)目前多數室內裝修工程皆無執行定期施工勘驗，為落實室內裝修施工查驗，地方主管機關應依室內裝修管理辦法第31條規定辦理；針對營業中聚集大量人群等封閉式休閒娛樂場所，考量火災風險較高，且基於確保人命安全等因素下，建議施工期間應由地方政府加強監督，或藉由地方政府的建築管理自治條例，訂定委託第三方專業機構協辦之強化施工勘驗機制。
(七)由問卷結果整體分析得知，圍束區劃-水平區劃、火警警報設備與施工者強化自主管理為本計畫替代方案重要性的前三名，故表示若能加強這三部份，其要增加成本則較容易被市場所接受。受訪談對象共分為建築設計、消防安全(含消防單位)、室內裝修與管理權人等4個背景領域，但深究其各別權重分析結果，其實權重區間差異性並不大。
四.建議
建議一
中長期建議：強化管理權人、專技人員、施工者等自主管理的安全意識與職業道德
主辦機關：內政部營建署、消防署
協辦機關：直轄市及各縣市政府、中華民國建築師公會全國聯合會、中華民國室內設計裝修商業同業公會全國聯合會、中華民國室內裝修專業技術人員學會等
應針對92年至今國內營業使用建築物施工中發生火災案例，將其火災發生原因、責任歸屬、違規處罰，及後續策進作為等資料，作為管理權人、專技人員、施工者等相關人員訓練講習之教材，作為後續火災防範之借鏡，並提升相關人員自主管理的安全意識與職業道德。
建議二
立即可行建議：將本研究建置的各項「臨時性防火區劃」的圍束方式、圖例、規格與相關要項函請地方政府及公會參考。
主辦機關：內政部營建署
協辦機關：直轄市及各縣市政府、中華民國建築師公會全國聯合會、中華民國室內設計裝修商業同業公會全國聯合會、中華民國室內裝修專業技術人員學會等
本研究建置「臨時性防火區劃」第一類A種、B種與第二類實體區劃，樓板開孔與區劃貫穿的臨時性防火填塞等各項工法，均有防火實驗與相關資料作為依據，此種臨時性假設工程，除考量防火或阻煙功能外，尚有考量營建成本與施工進度，能夠重複再利用，可避免增加業者太多施工成本。(參考第73 ~ 89頁)
建議三
立即可行建議：將本研究建立的各項施工中消防安全設備替代措施等相關資料函請地方政府及公會參考。
主辦機關：內政部消防署
協辦機關：直轄市及各縣市政府、中華民國消防設備師公會全國聯合會、中華民國消防設備士公會全國聯合會、中華民國消防工程器材商業同業公會全國聯合會等
本研究建立的各項施工中消防安全設備替代措施包含滅火設備、警報設備與避難標示等消防設備，因施工須暫停或關閉時，其相關替代措施，各項替代設備均符合國內審核認可，或是經美國NFPA、UL以及日本的審核認可之新設備與新技術。(參考第100 ~ 111頁)
建議四
中長期建議：鑒於目前室裝工程並無申報開工制度，為加強施工中相關監理措施，建議中央主管建築、消防機關應輔導地方政府建立建管消防聯審機制、施工中消防防護計畫書檢核機制(表3-9)，以及針對大量人群等封閉式營業場所，依室內裝修管理辦法第31條強化施工查驗機制。
主辦機關：直轄市及各縣市政府
可參考臺北市建築管理工程處民國109年5月4日北市都建照字第1093170036號函，以及民國109年5月4日台北市議會第13屆第3次定期大會「台北市中山區4月26日林森北路(錢櫃KTV)火災」專案報告，明定於台北市辦理室內裝修、使用執照變更申請審查階段，採用圖3-15建管消防聯審機制，增加建築管理與消防管管理強化橫向聯繫。針對變更使用(室內裝修)案件，申請人應先行取得消防局施工中消防防護計畫核備文件後，併案向建管處、建築師公會申請許可。另外，為落實室內裝修施工查驗，地方主管機關應依室內裝修管理辦法第31條規定辦理，而針對營業中聚集大量人群等封閉式休閒娛樂場所，考量火災風險較高，且基於確保人命安全等因素下，建議施工期間應由地方政府加強監督，或藉由地方政府的建築管理自治條例，訂定委託第三方專業機構協辦之強化施工勘驗機制。
建議五
中長期建議：強化現有建築物（場所）施工中消防防護計畫指導須知之內容。
主辦機關：內政部消防署
協辦機關：直轄市及各縣市政府消防局
建議現有建築物（場所）施工中消防防護計畫指導須知，第四條第一款有停止消防安全設備機能必要時消防安全設備的替代措施之內容可依第四章第四節進行補充及修正，將施工中消防防護計畫書的附件2消防替代措施內容進行補充，除了施工區域外，非施工區域樓層亦要註記消防安全設備發生故障時的替代措施，施工區內防火門需要指定工區內專人於火災時關閉防火門，加強施工區人員管理，可採用QR Code或其他可回傳機制進行控管，可增強施工業者實際作為及監督人員審查時之參考依據。

1.The origin of the research
The topic of this research is "Research on fire refuge and fire safety countermeasures and management measures in the construction of commercial buildings". Therefore, the team intends to collect relevant domestic and foreign documents, and conduct research and analysis on each document, aiming at the construction of domestic and foreign related buildings.  It reviews, compares and analyzes the necessary measures taken when fire evacuation and fire safety equipment stop protection, and finally reviews and revises relevant laws and regulations on fire management and fire safety equipment replacement measures in domestic construction, and provides reference opinions.
2.Research method and process
This research intends to conduct the following research contents by collecting domestic and foreign research and analysis on the management methods of construction, fire protection and business in the construction of commercial buildings, summarizing and proposing alternatives, designing questionnaire surveys, and holding expert and scholar seminars, etc.
(1)To understand and collect analysis on the management methods of construction, fire protection, and business in the construction of business-use buildings in advanced countries, as well as the powers and responsibilities of relevant agencies, and management mechanisms.
(2)Adopting ''temporary fire zoning'' enclosing method (including enclosing construction, enclosing materials, enclosing completion time, and illustration drawing method) when destroying fire prevention zoning, construction methods, techniques, etc. Assuming that the project uses fire-resistant materials during construction, Material alternatives and feasibility to ensure the fire protection zoning and refuge of buildings under construction.
(3)Put forward the conditions, management methods and alternative measures for shutting down the fire safety equipment, and how to integrate the fire protection management during the construction of the building to ensure the fire safety of the entire building.
(4)Evaluate the requirements, management mechanism and feasibility of all or part of the building's suspension of business or suspension of use during construction, in order to balance the needs of economy and safety. Summarize the management improvement plan for building construction, fire protection, and business during construction, propose alternative projects and add and repair regulations.
3.Important findings
After domestic and foreign research and analysis on the management methods of construction, fire protection, and business in the construction of business buildings, questionnaire surveys, and expert and scholar discussions to collect information from various parties, this research provides measures and measures for fire protection and fire safety in the construction of business buildings. In terms of management measures, the preliminary excerpt has the following important findings:
(1)The contents of relevant laws and regulations in Japan and the United States have few specifications for simultaneous business and construction. Most of the regulations stipulate that as long as the construction is performed, the relevant safety fortification specifications need to be observed. For the details of simultaneous business and construction There is no special distinction. Domestic fire protection laws and regulations have been formulated for fire safety protection during construction, and there are "Guidelines for Existing Buildings (Places) Construction Fire Protection Plan Guidance Notes" for reference, and the "Building Interior Decoration Management Measures" also has a clear description of construction. In the case of changes in fire protection zoning, it is necessary to submit a fire safety plan during construction. The instructions for guidance are the decree promulgated in 1990. It is 20 years away. The alternative measures for fire safety equipment described in the guidelines should be added There are more options for the popular equipment and technologies.
(2)When referring to the previous fire test results of the Building Research Institute of the Ministry of the Interior as the interior decoration of the building and changing its use, when the original statutory fire protection zone is destroyed, its equivalent replacement of the first category A and B of the temporary fire protection zone, it has 60 minutes and 30 minutes fire protection aging respectively. In view of the construction technical regulations, when the lift roads, maintenance doors between pipes, and the fire doors of indoor safety ladders that should be applied to the smoke shielding performance, and the fire doors of the indoor safety ladder are damaged due to construction, the first type A wall should be added to divide it completely. There should also be forced ventilation equipment in the construction area.
(3)For many departments store counters to adjust "partial interior decoration" and other construction activities, it is recommended to establish a complete "physical partition" as a barrier in the construction area and business scope within the legal fire protection zone. This plan can be adopted Temporary fire zoning. The second type of physical zoning is a simple lightweight partition construction method with a 20-minute fire protection aging period, which is used as the wall of the physical partition.
(4)For places with high fire risk or difficult detection in the construction area, it is recommended to adopt new equipment or new technology to strengthen protection. When fire-extinguishing equipment such as automatic sprinklers are closed or unable to operate due to construction, automatic fire alarms shall be prepared for damage caused by construction. When it is closed or unable to operate, there are new-generation products that can be set for reference in accordance with the evolution of the times.
(5)For buildings that are suitable for simple room installation, the current stage of application for license, construction and completion are all carried out in writing for review. It is recommended that architects or firefighting specialists or interior decoration should be carried out before construction permits are issued by the construction authority. Professional technicians check and confirm the fire protection plan during construction. As there is currently no system of declaration for the start of construction of interior decoration projects, many cases start construction after obtaining the drawings or construction permits from the competent authority of the building. The fire protection joint audit mechanism is to construct the management unit (or co-audit unit) and the fire protection unit at the same time.
(6)At present, most indoor decoration projects do not carry out regular construction inspections. In order to implement indoor decoration construction inspections, local competent authorities should handle them in accordance with Article 31 of the Interior Decoration Management Measures; for closed leisure and entertainment places such as large crowds in business, Considering the high fire risk, and based on factors such as ensuring the safety of human life, it is recommended that the local government should strengthen supervision during the construction period, or through the local government's building management autonomy regulations, entrust a third-party professional organization to co-organize an enhanced construction inspection mechanism .
(7)Based on the overall analysis of the questionnaire results, it is known that the confinement zoning-horizontal zoning, fire alarm equipment and the strengthening of the constructor’s self-management are the top three important alternatives to the plan. Therefore, it is said that if these three parts can be strengthened, It is easier to be accepted by the market if it wants to increase the cost. The interviewees were divided into four background areas: architectural design, fire safety (including fire protection units), interior decoration and management rights holders, but after studying the results of their individual weight analysis, in fact, there is not much difference in the weight interval.
4.Suggestions
(1)Suggestions 1:
Immediately feasible suggestions: Strengthen the safety awareness and professional ethics of independent management by management rights holders, specialists, constructors, etc. through the reasons for the occurrence of fire cases in the past, attribution of responsibilities, penalties for violations, and policy actions, etc.
Organizer: Relevant training organization
Co-organizers: Ministry of the Interior Construction Department, Fire Department, municipalities and county and city governments
According to the fire cases in the construction of domestic business buildings from 1992 to the present, the cause of the fire, the attribution of responsibility, the penalties for violations, and the follow-up strategy should be used as management rights, specialists, constructors and other relevant personnel The training materials are used as a reference for follow-up fire prevention, and to enhance the safety awareness and professional ethics of relevant personnel in independent management.
(2)Suggestions 2:
Immediately feasible suggestions: Share the enclosing methods, legends, specifications and related key items of the various "temporary fire protection zones" established by this plan.
Organizer: Construction Agency, Ministry of Interior
Co-organizers: municipalities and counties and cities, architects associations, interior decoration associations, etc.
This project establishes "temporary fire zoning" category I, category B, and category II physical zoning, floor openings and temporary fire fills through the zoning, and other research results, all with fire protection experiments and related materials. As a basis, this kind of temporary hypothetical project not only considers the function of fire prevention or smoke suppression, but also considers the construction cost and construction schedule. It can be reused and can avoid adding too much construction cost to the industry.
(3)Suggestions 3:
Immediately feasible suggestions: Publicly share relevant materials such as alternative measures for fire safety equipment during construction established by this plan.
Organizer: Fire Department, Ministry of the Interior
Co-organizers: municipalities and counties and cities, firefighting specialist associations, etc.
The alternative measures for fire safety equipment during construction established by this plan include fire-fighting equipment, guard equipment and evacuation signs. When the construction needs to be suspended or closed, the relevant alternative measures and all alternative equipment are in line with the domestic audit and approval. Or new equipment and new technology approved by NFPA, UL and Japan.
(4)Suggestions 4:
Mid-to-long-term recommendation: In view of the absence of a start-up reporting system for indoor installation projects, in order to strengthen relevant supervision measures during construction, it is recommended that the central competent building and fire-fighting agencies should guide local governments to establish a joint construction management and fire-fighting review mechanism and review the fire protection plan during construction. Nuclear mechanism (Table 3-9), and for closed business places such as a large number of people, strengthen the construction inspection mechanism in accordance with Article 31 of the Interior Decoration Management Measures.
Organizers: municipalities directly under the central government and county and city governments
Co-organizers: Construction Department, Fire Department, Ministry of the Interior
You can refer to the Taipei City Building Management Engineering Office dated May 4, 1991, Beishi Dujianzhaozi No. 1093170036, and the Taipei City Council's 13th regular meeting "Taipei Zhongshan District 4 On the 26th, the Linsen North Road (Qiangui KTV) Fire" project report is clearly scheduled to go through the review stage of the application for interior decoration and use license change in Taipei City. The joint review mechanism of construction, management and fire protection is adopted in Figure 3-15 to increase building management and fire management management. Horizontal connection. For changes in use (indoor decoration) cases, the applicant should first obtain the approval documents of the fire protection plan during the construction of the fire station and apply for permission from the Construction Management Office and the Architects Association. In addition, in order to implement the inspection of interior decoration construction, the local competent authority should handle it in accordance with Article 31 of the Interior Decoration Management Measures, and for closed leisure and entertainment venues such as large crowds in business, the risk of fire is higher, and it is based on ensuring the safety of human life, etc. Due to factors, it is recommended that the local government should strengthen supervision during the construction period, or through the local government’s building management autonomy regulations, entrust a third-party professional organization to co-organize an enhanced construction inspection mechanism.
(5)Suggestions 5:
Medium and long-term recommendations: Strengthen the content of the guidance notes for fire protection plans during the construction of existing buildings (sites).
Organizer: Fire Department, Ministry of the Interior
Co-organizers: Municipalities and the fire bureaus of the county and city governments
It is recommended that existing buildings (sites) are in the construction of fire protection plan guidance instructions. Article 4, paragraph 1, has alternative measures to stop the function of fire safety equipment when necessary. The content of fire safety equipment can be supplemented and amended in accordance with Chapter 4, Section 4, Supplement the content of alternative fire protection measures in Annex 2 of the fire protection plan during construction. In addition to the construction area, the floors in the non-construction area should also note the alternative measures when the fire safety equipment fails. The fire door in the construction area needs to designate the work area A dedicated person closes the fire door in case of a fire, strengthens the management of personnel in the construction area, and can use QR Code or other returnable mechanisms for control, which can enhance the actual work of the builder and the reference basis for the supervisory personnel in the review.