Another issue is the difficultly of prosecution under the Order, where there is a two part test, there must be a breach and that breach must result in a threat of serious injury or death. The first part is normally easy it is the second part that can cause the problem. Looking at reports none of the people who in the building when the fire started were injured or died. The only person who did, as wee brian says, was aware of the fire and entered the building therefore imperiling themselves.
The easy way is via enforcement or prohibition orders, either the RP complies, in which case job done or he doesn't, in which case he is done for not complying with the orders.
If you take the other case such as Penhallow then someone did die as a result of a breach, then direct prosecution is easier.
