Industry Speed Bumps on Local Tobacco Control in Japan? The Case of Hyogo.

BACKGROUND: Despite being a signatory since 2004, Japan has not yet fully implemented Article 8 of the World Health Organization's Framework Convention on Tobacco Control regarding 100% protection against exposure to second-hand smoke (SHS). The Japanese government still recognizes designated smoking rooms (DSRs) in public space as a valid control measure. Furthermore, subnational initiatives for tobacco control in Japan are of limited effectiveness. Through an analysis of the Hyogo initiative in 2012, we identified key barriers to the achievement of a smoke-free environment. METHODS: Using a descriptive case-study approach, we analyzed the smoke-free policy development process. The information was obtained from meeting minutes and other gray literature, such as public records, well as key informant interviews. RESULTS: Hyogo Prefecture established a committee to propose measures against SHS, and most committee members agreed with establishing completely smoke-free environments. However, the hospitality sector representatives opposed regulation, and tobacco companies were allowed to make a presentation to the committee. Further, political power shifted against completely smoke-free environments in the context of upcoming local elections, which was an obvious barrier to effective regulation. Throughout the approving process, advocacy by civil society for stronger regulation was weak. Eventually, the ordinance approved by the Prefectural Assembly was even weaker than the committee proposal and included wide exemptions. CONCLUSIONS: The analysis of Hyogo's SHS control initiative shed light on three factors that present challenges to implementing tobacco control regulations in Japan, from which other countries can also draw lessons: incomplete national legislation, the weakness of advocacy by the civil society, and the interference of the tobacco industry.

Designated smoking areas in streets where outdoor smoking is banned.

Although Japan has been a signatory to the Framework Convention on Tobacco Control since 2004, progress in translating the recommendations into national policy has been limited. Globally, outdoor smoking bans cover outdoor dining areas, beaches, public parks, schools, etc. In Japan, most of existing outdoor smoking bans allow designated smoking areas (DSAs) in the no-smoking zones, thus limiting protection from second-hand smoke (SHS). We examined the impact of DSAs on air quality in the areas of Kobe City where such ordinance is in force. Air quality measurements were conducted near two DSAs in August 2012 by using personal aerosol monitors. Three measurements were performed, each for 15 minutes, by four investigators: a line-up measurement, a vertical and horizontal measurement, and a circle measurement. In the line-up measurement, over 150 µg/m³ of PM2.5 was detected by the monitor four metres from the ashtray, gradually reducing as the distance increased. In the vertical and horizontal measurement, 80-110 µg/m³ of PM2.5 was detected at 4, 11, 18 and 25 metres. In the circle measurement, similar concentrations of PM2.5 were detected at all testing points (mean concentration 94 µg/m³). The study indicates that DSAs are sources of SHS in zones where a street smoking ban is in force, since SHS spreads widely, both vertically and horizontally. Street smoking bans that permit DSAs strongly limit protection from SHS and should be eliminated if protection against SHS is to be effective where such bans are in force.