REPORT OF COMMISSION OF INQUIRY INTO FIRE AT ROBINSON DEPARTMENTAL STORE (Statement by the Minister for Social Affairs)

2.35 p.m.

Encik Othman Bin Wok: Mr Speaker, Sir, the Report of the Commission of Inquiry into the Robinson's fire has been tabled in this House earlier for the information of Members. This valuable report, which has been accepted by the Government, is the culmination of careful deliberations by the 3-man Commission headed by Mr Justice F. A. Chua and assisted by Mr C. A. V. Chew and Mr Jimmy Chen Wie Ying, and I wish to record Government's appreciation of their public service. I also wish to thank the various individuals and organisations listed in the Appendices to the Report, who submitted memoranda or otherwise assisted the Commission in its work.

Mr Speaker, Sir, the Commission has found that the fire that destroyed Robinson's Departmental Store at Raffles Place on the morning of 21st November, 1972, resulting in the death of nine persons and the destruction of property worth approximately $21 million, was caused by a short circuit as a result of the overloading of an electrical branch circuit on the ground floor. The Commission is satisfied that the criticisms levelled at the Fire Brigade of poor fire-fighting performance are unjustified, and that the Fire Brigade fought the fire under trying conditions and had done well in containing the fire from spreading to other buildings in that area. The Commission is of the view that by the time the Fire Brigade was summoned, Robinson's Departmental Store could not have been saved. The fire had been allowed to be nursed in the loft stores without being detected, and the domestic fire-fighting squad was fighting the fire at the wrong locations. It is appropriate at this juncture for me to congratulate the Fire Brigade not only on its commendable performance on that occasion, but also on the general manner in which it had performed its role for the benefit of the community.

In regard to the recommendations made by the Commission, Members many wish to know that many of the recommendations have, in fact, been implemented and some are being actively pursued.

In order to prevent the recurrence of such a catastrophe, the Commission has recommended the introduction of legislation to enable appropriate authorities to implement a system of periodic inspections of places of public resort to check on unauthorised additions and alterations to buildings which might endanger the safety of the public. The Building Control Bill, now before this House, strengthens the law in respect of building control to enable the Building Authority to take more speedy and effective action against unauthorised building works and dangerous buildings, and provides for enhanced penalties in respect of offences. Provision to control, regulate and supervise places to which the public have access, has also been provided for.

The Commission has recommended that for electrical installations of a stipulated higher current rating, consideration be given by the Public Utilities Board to grade the licensing of electrical contractors so as to ensure that only contractors with the requisite professional expertise and experience are allowed to undertake such work. It was also suggested that the 1947 Municipal Wiring Rules and Conditions of Supply should be updated. In this connection, I must state that towards this end, the Public Utilities Board has already initiated action to draft appropriate legislation and set up the necessary administrative machinery.

A further recommendation of the Commission is that a public authority be charged with the responsibility for ensuring the proper construction and maintenance of lifts to which the public may have access. The Ministry of National Development has decided in this connection to place the control of the installation of lifts and escalators under its Building Control Division, and the control of their maintenance under the Commissioner of Buildings appointed under the Building and Common Property (Maintenance and Management) Act.

The Commission has also suggested that a Committee be formed to look into ways and means of rescuing people trapped in lifts in situations of power failure. Representatives from the Ministry of National Development, the Building Control Division, the Singapore Fire Brigade, the Singapore Institute of Standards and Industrial Research and the Commissioner of Buildings are now actively looking into the question of installation, in lifts, of equipment to facilitate emergency rescue operations and the operational aspects of rescuing people trapped in lifts.

Another recommendation of the Commission is that all lift attendants be given proper training to deal with emergencies and that managements of establishments of public resort be required to provide effective training for all staff and domestic fire-fighting squads in preparation for any emergency. Here, I wish to point out that the Singapore Fire Brigade has always assisted with such training on request. The necessity of amending existing legislation to make it mandatory for managements of establishments of public resort to provide for the recommended training in fire-fighting and in dealing with emergencies is being looked into.

Finally, Sir, a few recommendations pertaining exclusively to the Singapore Fire Brigade have also been made by the Commission, viz: -

(i) that officers of higher rank in the Fire Brigade should supervise the Control Room operations;

(ii) that the formal training of firemen should include lift rescue operations; and

(iii) that service conditions of serving officers be improved.

Action on all these matters has already been initiated and is in hand.

The Commission also suggested that the Fire Brigade should be responsible for the regular inspection of all fire hydrants in the Republic, although they are maintained by the Public Utilities Board. This recommendation has already been implemented and regular inspections of fire hydrants are now being conducted by the Fire Brigade.

Members may also wish to know that very soon all fire regulatory functions, including those pertaining to dangerous trades, will be transferred from the Fire Brigade to the Building Control Division under the Ministry of National Development. The Assistant Director (Building Control Division) will be responsible for all matters pertaining to safety in buildings. This will lessen the administrative burden on the Fire Brigade and allow it to concentrate solely on fire-fighting, devoting more time to the study of new techniques of fighting fires.

Mr Speaker, Sir, although an efficient and modern fire service is essential for saving lives and property, the primary objective should be preventing the outbreak of fires. This requires the insistence of a high standard of fire safety requirements in buildings, and educating the public on fire safety.

The fatalities as a result of fire were five in 1970, eight in 1971 and twelve in 1972. This year, to-date, fires have claimed nine lives and it is essential that such tragic losses should be prevented. The figures for fire loss have steadily increased over the last three years - from $4 million in 1970 to $6.2 million in 1971, with a jump to $30.6 million in 1972. The fire loss in 1973 to-date amounts to $7.6 million. The indiscriminate discarding of lighted cigarette butts and matches and electrical short circuits have been the direct causes of many a fire. Undoubtedly, greater vigilance and care by everyone would minimise the incidence of fires.

Insurance companies can also play a vital role in reducing fire losses by giving meaningful discounts on fire premiums where fire protection facilities are of a high standard. They could also increase the premiums or even refuse to underwrite if the fire protection measures are inadequate.

The tragedy at Robinson's Departmental Store has highlighted the need to give fire-fighting and fire-prevention greater priority in our society. As we become increasingly more urbanised and industrialised, and with the rapid development of high-rise buildings, fire prevention requirements, the training of staff in fire-fighting, as well as the education of workers on fire preventive measures and emergency requirements, will have to be constantly reviewed and regularly stressed. We need to overcome the common human tendency to shrug off measures laid down to cope with unpleasant emergencies (such as fire drills) as being unnecessary, tedious and a waste of time. A small country, like ours particularly, can ill-afford the heavy fire losses, both in terms of manpower and property, which constitute a heavy drain on our economy.

Finally, I would like to stress that fire safety is a community obligation, and every man, woman or child has a social responsibility to ensure that vigilance is exercised at all times to prevent an outbreak of fire. History is harsh to those who only know how to use fire but fail to exercise caution and vigilance and to take the necessary steps for its effective control.