The Application of the Swiss Cheese Model to Construct the 5E Framework in Hong Kong Construction Safety: Evidence from Tai Po Wang Fuk Court Fire Incident

The construction industry is a critical pillar of Hong Kong’s economic development and urban growth, yet it continues to face significant safety challenges amid increasing construction activity and workforce demands. While efforts to accelerate housing development and infrastructure projects are essential for addressing societal needs, they must be balanced with effective measures to prevent accidents and manage workplace hazards. This paper reviews the common causes, patterns, and emerging trends of construction-related accidents in Hong Kong and examines the Tai Po Wang Fuk Court fire as a representative case study of systemic safety failure. Using documentary evidence on a fire that caused 168 deaths, 79 injuries, and spread across seven of eight towers, the study identifies five aligned failure layers. Drawing upon archival records, official reports, legislative documents, and public accounts, the study applies James Reason’s Swiss Cheese Model to demonstrate how deficiencies in material selection, worker behaviour, fire protection systems, contractor management, and regulatory oversight aligned to enable the incident. Building on these findings, the paper proposes a 5E framework—Engineering, Education, Enforcement, Engagement, and Evaluation—to provide a structured approach for strengthening construction safety management and fire risk governance. The framework offers practical guidance for policymakers, regulators, contractors, property managers, and other stakeholders seeking to enhance safety culture, improve regulatory compliance, and promote resilience in the construction sector. The findings contribute to the broader discourse on construction safety by demonstrating how systemic failures can be translated into targeted interventions for preventing similar incidents in the future.