I. Basic matters

1 The nature and problems of press machine

(1) The incidence of accidents

Based on a review of recent press machine accidents, the major problems concerning press machine accident prevention are as follows.

A. While press machine accidents have shown a declining trend, the pace of this downturn has slowed down in recent years, with a reported 2,400 accidents involving fatalities and injuries in 1997, 40 percent of which resulting in physical impairments.

B. By operational method, accidents involving foot-pedal press machine, which constitute some 20 percent of the total in terms of the number of press machine installed, constitute the bulk of these accidents.

C. In terms of the types of clutche, the ratio of accidents caused by positive clutche press machine, which occupied the highest share in the past, has substantially decreased. In turn, the ratio of accidents caused by friction-clutch press machine has now become the highest.

D. An appraisal of the state of safety measures with respect to press machine involved in accidents reveals that those lacking safety devices, etc., including the device specified in the proviso of Paragraph 1, Article 131 of the Ordinance on Industrial Safety and Health (MOL Ordinance No. 32, 1972; hereinafter called the "Ordinance"), constitute some 40 percent among total accident cases, and those which had safety device, etc., but the functions and/or installation methods were defective or improper represent approximately 25 percent. This means that accidents involving press machine whose safety device, etc., were inadequate make up some 65 percent of the total.

E. An examination of the behavior of workers at the time of accidents indicates that many accidents involved unsafe activities, such as using one's hands instead of hand tools and/or removing safety device. Such accidents show a slow declining trend while the total number of press machine accidents has been decreasing.

F. By type of business, many accidents occur in metal product manufacturing, general machinery and tool manufacturing, transportation machinery and tool manufacturing, etc.

(2) Overview of safety steps for press machine

With respect to the general implementation of safety steps for press machine, there are still many workplaces that have press machine for which the steps in Paragraph 1 or 2, Article 131 of the Ordinance are not taken.

At the same time, the ongoing progress in the introduction of presence sensing device initiation equipment (hereinafter referred to as "PSDI") is creating the need for disseminating knowledge on safety management that remains abreast of the functions and characteristics of such equipment.

(3) Situation regarding the appointment of press machine operation chief, etc.

There are still many workplaces with five or more units of power-driven press machine involved in press machine work where no press machine operation chief has been appointed, or where such an appointment is made but the actual duties are neglected.

(4) Situation regarding the implementation of special voluntary inspections

There are still many workplaces where special voluntary inspection is not conducted. Moreover, as there are many cases in which such inspections do indicate abnormalities in positive clutche press machine, it is necessary to thoroughly undertake appropriate steps such as proper repairs in such cases.

(5) Situation regarding the proper reporting of plans

The reporting of plans based on Article 88 of the Industrial Safety and Health Law (Law No. 57, 1972; hereinafter called the "Law") in case of newly installing or changing power-driven press machine is not thoroughly implemented.

2 Emphasized measures

(1) Promoting the safety of press machinery

In order to prevent press machine accidents, the safest measure is to take the "no hand in dies" approach, which prevents any part of the body from entering the danger limit by using such means as installing safety enclosures as described in Paragraph 1, Article 131 of the Ordinance. While this is the basic step among measures that should be promoted, accident prevention steps that use the safety presses as prescribed in the proviso of Paragraph 1, Article 131 of the Ordinance shall be taken in cases where the "no hand in dies" approach is difficult to apply due to the nature of the work. It is necessary to take accident prevention steps by installing the safety device prescribed in Paragraph 2, Article 131 of the Ordinance only in cases where the use of safety presses is also difficult.

A specific safety promotion measure that is effective for many types of press machine is to switch from foot-pedal operation to the use of push buttons that require both hands to operate. In all cases, however, it is necessary to give particular attention to improvements that adopt the "no hand in dies" method as a fundamental accident prevention measure.

(2) Full implementation of press machine safety device, etc.

With respect to safety device and the safety mechanisms of safe presses (hereinafter called "safety device, etc."), it is important to fully implement the appropriate selection, use, etc., of press machine safety device, etc., in order to prevent accidents stemming from the failure of safety device, etc., to function effectively. Such reasons are often related to the fact that the type of safety device, etc., are not appropriate for the type of press machine or the work contents, and/or the usage method is not appropriate due to such reasons as an insufficient safety distance.

This requires that careful attention and consideration be given to appointing a press machine operation chief, etc., and that the duties of this appointee be thoroughly carried out. In addition, it is necessary that positive safety management activities centered around the press machine operation chief be implemented through safety education, etc., for employers, press machine operation chiefs and press workers.

(3) Effective measures in accordance with the situation at workplaces where press machine is installed

In large-scale workplace and his affiliate company group, it is important to make efforts to establish an organization to discuss safety related to press machine and to carry out voluntary safety activities through this organization, and that multiple subcontractor be included in these activities.

In industrial accident prevention organization, press-related industrial association, etc., it is necessary to make efforts to enhance voluntary safety activities including the promotion of new membership by non-member workplace that have press machine installed. Moreover, in small and medium-sized workplace where it is difficult to fully take press machine accident prevention steps due to technical and financial reasons, it is important to carry out continuous voluntary safety activities by receiving external technical guidance, etc., as well as by utilizing various assistance systems such as the safety loan system.

II. Specific implementation items

1 Implementing safety activities such as establishing an organization for safety management

(1) Establishing an organization for management

Safety supervisors, safety and health promoters, press machine operation chief, etc., shall be appointed in accordance with the scale of the workplace, the situation of press machine work, etc., and the respective scope of his responsibilities and work assignments shall be clarified.

(2) Deliberations at the safety committee

The safety committee shall discuss and deliberate such matters as the preparation of rules on press machine work safety and the prevention of dangers concerning press machine to be newly introduced.

(3) Scrupulous management by operation chief, etc.

In order to firmly establish the maintenance and inspections of press machine and appropriate work in the workplace, the necessary number of press machine operation chief shall be appointed to fully carry out the assigned duties in consideration of the number of press machine units installed, the situation of press machine work, etc., and the management responsibilities and authority for each press machine unit shall be clarified to promote the establishment of safety management activities. For this purpose, the appointment of press machine operation chief shall be implemented without fail where required. In addition, workplace not required to make such appointment shall designate personnel in charge of Items 1, 2 and 4, Article 134 of the Ordinance, and shall instruct such personnel to take charge of the practical application of the following matters.

In addition, the name of the press machine operation chief, etc., in charge of the management, as well as the names of personnel in charge of installing and adjusting metal dies and safety device for each press machine unit shall be conspicuously posted.

A. Special voluntary inspection and checks before starting work

The special voluntary inspection based on the inspection items, inspection methods and judgment standards stipulated in the periodical voluntary inspection guidelines for power-driven press machine (Voluntary Inspection Guidelines Notice No. 18, 1997), shall be established and checks shall be fully implemented before the start of work.

B. Safety inspections

In order to maintain the safety and functions of machines and equipment, safety inspection manuals shall be prepared that stipulate the personnel in charge of inspection, specific inspection items, inspection methods, judgment standards for acceptance and rejection decisions, inspection timing (frequency), etc., and such inspection shall be fully implemented on the basis of such manual.

The definite implementation of these inspections shall be confirmed by the press machine operation chief, etc.

C. Early detection of abnormalities (faults) and countermeasures

Any abnormalities observed as the result of said safety inspections and special voluntary inspection, or any abnormalities (faults) detected during work processes shall be reported to a superior manager such as a foreman. In such an event, the foreman, etc., receiving such a report shall immediately suspend the work, and take appropriate repair steps by contacting outside specialist organizations such as the manufacturer of the press machine if necessary.

2 Promoting press machine safety

(1) Steps to secure the safety of press machine

In preventing press machine accident, the steps specified in Paragraph 1, Article 131 of the Ordinance should be undertaken as a fundamental measure. Accordingly, it is necessary to limit the number of press machine units that require other safety measures as much as possible. Safety steps involving the installation of safety device as specified in Paragraph 2, Article 131 of the Ordinance shall be taken only in cases in which the usage of the fundamental measure alone is difficult due to the nature of work.

A. Steps under Paragraph 1, Article 131 of the Ordinance

As steps to prevent any body part from entering the danger limit, safety measures that include one or more of the following shall be adopted: using press machine equipped with safety enclosures (i.e., those that enclose the danger limit, thus preventing hands and fingers from entering); the use of safety dies (i.e., metal dies constructed with an aperture of 8 mm or less, thus preventing any body part from entering); using exclusive press machine (i.e., those that can be used for specific purposes only, and which have a structure that prevents any body part from entering the danger limit); or using automatic press machine (i.e., those in which the materials are automatically fed and discharged).

However, in case it is difficult to take steps to prevent hands from entering the danger limit, such as the need for large apertures for feeding and discharging materials due to the nature of work, safety press machine equipped with a safety mechanism at the time of manufacturing shall be used.

B. Steps under Paragraph 2, Article 131 of the Ordinance

Only in cases in which it is difficult to take the steps prescribed in Paragraph 1, Article 131 of the Ordinance in A above due to the nature of work, the following safety device shall be installed: units with movable barriers (safety device); unit with two-hand control (safety device); unit with PSDI functions; unit with photoelectric beams (safety device); unit with pull-out function (safety device); or unit with sweeping functions (safety device). In addition, efforts shall be made to further improve safety by installing multiple safety device or using a structure that does not allow safety features to be easily removed or deactivated.

With respect to the installation of such safety device, care shall be taken to ensure that enclosure-type safety device cover all moving parts of the machine except for apertures where materials are inserted or removed.

(2) Appropriate selection and management of safety device

The appropriate selection and use of safety device shall be thoroughly carried out on the basis of the guidelines prescribed in Labor Standards Bureau Notice No. 446-2 (Guidelines for Safety Device Management of Press machine) dated July 9, 1993, and the safety standards indicated in Labor Standards Bureau Notice No. 130 (Special Cases in Applying Press Machine or Shearing Machine Safety Device Structural Standards and Power-Driven Press Machine Structural Standards to Presence Sensing Device Initiation Equipment) dated March 26, 1998, and steps in the installation, use, maintenance management, etc., of PSDI prescribed in Labor Standards Bureau Notice No. 130-4 (Handling of Presence Sensing Device Initiation Equipment) dated the same.

(3) Switching from foot-pedal to both-hand push button operation

As many accidents still occur in the case of press machine operated by foot-pedals, it is important to switch from foot-pedal operation to push button operation requiring both hands for press machine that involve not only positive clutche but also for friction clutche as well. In making such a switchover, it is necessary to improve the metal die or use a pedestal for operation that require holding the processing object by hand. In this connection, implementing the switchover from foot-pedal operation of press machine with friction clutche to push buttons that require both hands shall be positively carried out by conforming to the procedures outlined Labor Standards Bureau Notice No. 459-2 (Determining the Guidelines To Switch From Foot-Pedal to Two-Handed Push-Button Operation in Press Machine with Positive Clutche) dated July 15, 1994.

In switching press machine with positive clutche to two-handed push-button operation, there are many cases in which it is generally difficult to secure a safe distance. As installations of this type do not conform to the steps prescribed in Paragraph 2, Article 131 of the Ordinance, due attention must be given in such cases to the appropriate use of pull-out safety device.

(4) Improving the safety of press machine operation

In addition to promoting the safety of press machine, safety device and related equipment in order to prevent press machine accidents, work standards shall be prepared and efforts shall be made to ensure that all operation are organized and implemented on the basis of these work standards. Such work standards shall cover not only regular operation, but also non-regular operation such as safety inspections, steps at the time of abnormalities, and the installation and adjustment of metal dies and safety device.

(5) Using proper metal dies

In order to prevent accidents caused by the scattering of metal parts from dies broken at the time of processing, metal dies shall be properly designed and manufactured on the basis of the technical guidelines concerning the safety standards for metal dies used in press machine (Technical Guidelines Notice No. 9, 1977), and inspection shall be carried out before use, and appropriate life-cycle management shall be implemented.

In addition, in order to prevent accidents during operation to replace metal dies (which are heavy objects), appropriate safety measures such as reducing the manual labor in handling metal dies shall be carried out.

(6) Securing safety at the manufacturing and installation stages

Press machine, safety device and metal die manufacturers shall make efforts to conform to the structural standards as well as make efforts to manufacture safer press machine, etc. In addition, they shall establish maintenance structures that can appropriately deal with repair requests from user.

Under the proviso of Article 88 of the Law, moreover, employer installing or changing power-driven press machine shall full comply with all reporting requirements in submitting such plans to the applicable labor standards inspection office. Each manufacturer shall also inform users of the system to report plans.

3 Safety education

The legally required safety education programs such as education for press machine operators at the time of hiring as well as special education related to such topics as handling metal dies shall be fully implemented. In addition, positive steps shall be taken to encourage participation in safety and health seminars for management executives, skill improvement courses for press machine operation chief, and safety education for press machine operators.

All of these educational programs shall be conducted on a systematic basis.

4 Carrying out voluntary safety activities

(1) Affiliated company groups

In affiliated company group which conduct press machine operation such as general machinery and tool manufacturing, automobile manufacturing and electric machinery and tool manufacturing, voluntary safety management activities led by the parent company shall be carried out by installing a safety consultative organization, observing all related laws and regulations, and implementing safety education for press machine operator in affiliated company.

(2) Small and medium-sized workplace

Small and medium-sized workplace shall examine the possibility of utilizing the industrial safety and health loan system, the small and medium-sized safety and health activity promotion subsidy system for company group, etc., and positively introducing technologies concerning safety from the outside.

(3) Press machine accident prevention conferences, etc.

Small and medium-sized workplace in particular shall be encouraged to participate in press machine accident prevention conference, etc., conducted by accident prevention organizations, press-related industry association, etc., and voluntary safety management activities by member workplace shall be activated by preparing press machine accident and improvement case files, preparing model work standards and safety inspection manuals, and implementing voluntary safety patrols. Efforts shall be made to spread these activities not only to workplace represented in such conference, but also to other local workplace that conduct related operation.