SECTION_NAME:MOTIONS

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SAFETY AT WORKPLACES:

(Motion) Dr Teo Ho Pin (Holland-Bukit Panjang): Mr Speaker, Sir, I beg to move,

That this House, noting the two recent construction-related accidents at Nicoll Highway and Ayer Rajah, urges the Government to (a) re-emphasise the importance of safety at workplaces in Singapore ; (b) review current safety standards and practices; and (c) recommend appropriate measures, including legislative changes, to further enhance the safety of workers in the construction industry.

Sir, first of all, I wish to express my deepest condolences to the family members of the victims of the recent Nicoll Highway and Ayer Rajah construction-related accidents. I also wish to put on record in this House to acknowledge the courageous act of Mr Heng Yeow Pheow, who lost his life while saving his fellow workers. My salute goes to all the rescue workers and helpers who performed the risky rescue operations. The well-coordinated emergency rescue operations clearly reflect the sense of readiness of our emergency task force and their sense of mission. I am glad to learn that the Government will be recognising the courageous acts of all these Singaporeans.

Sir, many Singaporeans were shocked by these two accidents. Many were surprised that such accidents can occur in

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Singapore, despite our stringent safety legislation. These accidents have eroded the confidence of construction workers in the industry. They serve as sombre wake-up calls for all stakeholders in the construction industry to relook into their safety practices. The impact of the accidents has also raised concerns among many Singaporeans who are questioning whether their buildings are safe or not, due to the extensive underground construction works that are still ongoing. The two accidents have indeed raised many questions concerning safety at workplaces in the construction industry.

Sir, in 1998, the Ministry of Manpower and the Ministry of National Development formed the Construction 21 Committee to look into the multitude of problems faced by the construction industry. The Committee held extensive consultations with various stakeholders of the industry and made recommendations to transform the construction industry, which is perceived to be a demanding, dirty and dangerous industry, into a professional, productive and progressive industry. Despite the introduction of safety legislation and safety measures, such as the Factories Act, safety regulations, safety standards and code of practice, the construction industry continues to have high accident rates.

Sir, let me refer Members to chart 1 [C opies of charts distributed to all Members ]. This chart shows the statistics of industrial accidents between 1992 and 2002, as compiled by the Ministry of Manpower. The number of industrial accidents in the construction industry had increased from 802 cases in 1992 to 1,337 cases in 2002. This is an increase of 67%. As a percentage of all industries, construction accidents had increased from 17% in 1992 to 39% in 2002.

If we were to analyse the fatality rate of construction accidents as shown in

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chart 2, the results are more alarming. Between 1992 and 2002, a total of 518 workers had died due to construction-related accidents. The fatality rate in the construction industry accounts for between 52% and 74% of all fatal accidents in all industries. In terms of man-days lost, the construction industry has consistently more man-days lost, ranging from 405 to 1,150 man-days lost, as compared to all other industries as shown in chart 3.

Sir, this situation is definitely not desirable, and reflects poorly on the effectiveness of our safety legislation and safety measures in the construction industry. I certainly do not think that MOM should take comfort that the fatality in construction had dropped from 72 cases in 1997 to 27 cases in 2001. We must strive to achieve a zero fatality rate in the construction industry.

Sir, over the years, the Ministries have been reviewing our Factories Act and Building Control Act to tighten safety practices in the construction industry. Safety training, seminars, awards and punitive measures were introduced to enhance safety at construction sites. Despite these measures, the number of accidents in the construction industry continues to increase. So, what are the root causes of these high accidents in the construction industry? In my opinion, there are three contributing factors which hinder safe practices in the construction industry. They are as follows:

(1) Lack of integration of our safety and building legislation to provide an integrated safety infrastructure for the construction industry;

(2) Lack of safety culture among various stakeholders in the construction industry; and

(3) Lack of commitment to design and implement a comprehensive safety

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management system where independent checks and enforcements are carried out diligently.

Sir, we need to adopt a holistic approach to enhance safety in the construction industry. Safety is the responsibility of all stakeholders in a construction project. The authorities, developers, consultants, contractors, suppliers, sub-contractors and all workers must play a role to develop a safety culture in our industry. The ad hoc review of legislation as a result of construction accidents is piecemeal and does not address safety issues effectively. What is needed is a consistent and total approach whereby all stakeholders fully commit to safe practices. In this regard, I would like to urge the Government to form an inter-Ministry committee to review the current legislation and recommend appropriate measures to enhance safety in the construction industry. I wish to propose the following measures to enhance safety in the construction industry.

(1) Promoting "Safety First" in the construction industry

We need to re-emphasise the importance of safety in the construction industry. The "Safety First" slogan must be constantly reinforced among various stakeholders of a construction project. Everyone must adopt the correct attitude towards safety, from the authorities down to the last construction worker. A study by Dr Evelyn Teo and various researchers of the National University of Singapore has identified two main reasons for unsafe behaviours of construction workers.

(a) Lack of awareness about safety.

ie, the "I don't know" attitude; and

(b) Poor attitude towards safety, ie, the "I don't care" attitude.

The study also found that the most effective methods to improve safe work behaviours are:

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(a) To send workers for safety and health training;

(b) Have close and strict supervision; and

(c) Impose fines.

Sir, knowledge on safety and attitude towards safety are key pillars in fostering a safe work environment in the construction industry. But we face a huge problem of a transient workforce in our construction industry.

Many construction workers are foreigners with diverse backgrounds. Many are here to work for a specified duration. Many work long hours with little rest so as to make enough money to support their families. The diverse composition of construction workers has made it difficult to implement effective safety training and improve communication among the workers. Very often, breakdown in communication is cited as one key contributing factor in construction-related accidents. This problem is further compounded by the multi layer sub-contracting system in Singapore. Construction work is usually sub-contracted down many tiers. As a result, the last person on the job may not know exactly what is going on. This practice of multi-tier sub-contracting is unhealthy, and has adverse effects on the quality and safety of construction work. Thus, I would urge the Minister for National Development to consider reviewing the sub-contracting practices in the construction industry.

Sir, I hope the Manpower Minister will also review the policies on foreign workers, allocation of man-year entitlement, training and retraining of workers and the granting of permanent residence status to foreign skilled construction workers so as to build a

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stable construction workforce in Singapore.

In Singapore, it is common to see many sub-contractors working concurrently at different parts of a construction site. As such, it is crucial for management to develop effective communication on safety to their workers.

In Japan, safety briefings are diligently conducted daily to ensure that all workers present on site understand the construction activities of the day. Such practices increase safety awareness among workers and avoid accidents. One key success factor in Japan and the United Kingdom is the strong support of their unions in promoting worksite safety. In the United Kingdom, the trade unions have developed their own safety inspection system supported by the UK Government and industry players. Unions are usually familiar with worksite practices, and thus can provide invaluable input to improve worksite safety. Therefore, I would urge the Building Construction and Timber Industries Employees' Union of the NTUC to step up its efforts to convey the "safety first" message to all construction workers in Singapore. Sir, we need to be more proactive and effective in increasing the safety awareness of our construction workers.

Sir, to re-emphasise safety, we must organise more safety campaigns and training for all stakeholders in the construction industry. In Japan, safety campaigns and discussion workshops were regularly held to constantly enhance safety in the industry. In Singapore, we seem to lack the will power and momentum to sustain our safety campaigns to make sure that they are effective in improving construction safety. No one seems to be interested to seriously improve safety standards in the construction industry. Although the Ministries, industry players, associations,

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such as the Singapore Contractors' Association Limited, and unions have come together to organise various safety campaigns and programmes, we lack the follow-up actions to ensure that safe practices are indeed carried out throughout the development of a project.

Sir, we should not be too obsessed with statistics on the number of workers trained, number of participants for safety campaigns or the number of firms achieving certification for OHSAS 18001 which is their Occupational Health and Safety Management System.

The key performance indicator of our safety efforts must be the rate of decline of construction accidents and fatalities in the industry. At present, the risks of construction projects are poorly managed by various stakeholders, thus resulting in an apathetic and reckless attitude towards safety. There is an urgent need for the industry to re-emphasise safety.

(2) Integrating the building and safety legislation

Sir, the Building Control Act and the Factories Act are administered by the Ministry of National Development and the Ministry of Manpower respectively. While the Building Control Act ensures safety with regard to the design and construction of buildings and structures, the Manpower Ministry is responsible for workers' safety. But safety in construction projects is affected by both the design and construction of the projects.

A European study of the construction industry's fatal accidents showed that although the primary cause of 37% of accidents were failures of the construction site management and workers, 28% of accidents could be attributed to poor planning, and 35% due to unsafe design. The findings show that over 60% of accidents were due to

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decisions made before work began on site. Therefore, it is crucial that safety is addressed at the planning and design stage of a project.

In Singapore, both developers and designers do not conduct extensive safety audit on the designs of projects. The building contract only specifies the need to have an Accredited Checker (AC) for structural works. Designers rarely consider the health and safety requirements of a project. They also do not conduct comprehensive safety audit to determine the impact of their designs on safety during construction or maintenance. Such practices will result in unsafe designs which will inherently increase the risk during construction and maintenance. These risks will aggravate if untried designs were implemented. Sadly, the risks of such designs will be transferred to the contractors who may not be in a position to manage such risks.

The contractors' all-risk insurance policy is inadequate to cover such risks, especially when projects are under intense tender competition. Sir, we must reduce construction risks through safer designs of buildings and structures. The designers owe a duty of care to make sure that their designs are not only safe for building users, but also safe to construct. To avoid accidents during construction and maintenance stages, we have to adopt a risk reduction strategy at the design phase. International developments in occupational health and safety have now shifted focus on the designer instead of the principal contractor. The designer is regarded as the main party who can influence the prevention of ill health and accidents in construction. Besides the designer, the client also plays a significant role in the safety of a construction project. The appointment of competent consultants, specification of a reasonable construction period, award of tender to competent contractors and the provision

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of safety measures will have a direct impact on construction risks and safety on site.

To facilitate better risk reduction, allocation and management among different stakeholders in a construction project, I would propose that we adopt the United Kingdom's Construction (Design and Management) Regulations 1994, which is the CDM Regulations model. This proactive safety management system emphasises the management of health and safety throughout all stages of construction projects. The CDM Regulations place the duty upon clients, consultants and contractors to coherently and methodically think about their contributions to project health and safety. Moreover, their inputs must be coordinated and managed throughout all phases of the construction process. It also highlights the health and safety roles, duties and responsibilities of all parties involved in the project. This will provide better accountability and risk management of a construction project, thus enhancing safety.

Sir, as design has a direct impact on the safety of a construction project, it will be appropriate to integrate the Building Control Act and the Factories Act so as to provide a total approach to safe design and construction practices. A single agency will also facilitate efforts to foster a safety culture in the construction industry. Thus, I would like to urge the Ministers to consider merging the relevant sections of the Factories Act - safety regulations, safety standards, code of practice - into the Building Control Act.

(3) Providing a one-stop agency for monitoring construction works

Sir, I have raised a Question in this House before to ask the Minister for National Development whether there is

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any compelling reason to build so many basements in Singapore. Basement construction and deep excavation works are often complex and risky, due to the uncertain behaviour of soil conditions. In Singapore, two-thirds of our soils are alluvium and marine clay. These soft clays have high potential of soil failures, such as soil movement and soil settlement which will result in the consequent sinking of ground and failure of support systems. Thus, extensive and simultaneous underground construction works will increase the safety hazards of both construction worksites and its surroundings if not properly coordinated. Today, many public agencies and private developers are concurrently carrying out deep excavation works, such as MRT construction, deep tunnel sewerage system, underpasses, drainage works, underground expressways and various building developments. There is no single agency to coordinate and evaluate the impact of these construction works on the safety of worksites and its surroundings. Thus, each construction site will determine its safety measures based on its own assumptions, which may sometimes be wrong, due to a lack of information on activities around the construction sites.

Furthermore, temporary work designs, such as retaining walls for deep excavations are presently under the responsibility of the main contractors. The provision of temporary works is normally subjected to a competitive tendering and safety may be compromised if cost-cutting measures were undertaken by the contractors. Sir, although I do not wish to speculate on the causes of the Nicoll Highway accident, I hope to ask the Transport Minister the following questions:

One, what are the compelling reasons for LTA to award Nicoll Highway and Boulevard stations, including the tunnels contract, to Nishimatsu Construction

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Company and Lum Chang Building Contractor Private Limited Joint Venture as their tender bid was about $70 million lower than the rest of the tenderers? Please look at the tender results in chart 4. The difference between the lowest and the second, third and fourth bids is about 25%. In tendering, we would call such a bid an outlier, which is likely to be an erroneous bid. I would like to ask the Minister what is the cost estimate for this project as determined by LTA.

Two, are there independent checks on the design of the temporary works, that is the retaining wall? What is the safety factor for such temporary work designs?

Three, what are the monitoring mechanisms in place to measure soil movements during construction? Sir, the present approach whereby various public agencies or developers will self-regulate safety at their respective worksites must be refined. The Building and Construction Authority must exercise centralised control for all deep excavation and tunnelling works. It must be a one-stop centre that provides information on on-going construction works and approve all design submissions for both temporary and permanent works. There must be a centralised tracking system in place to monitor all deep excavation and tunnelling works. This will serve as a check and balance for designers of temporary and permanent works in deep excavation and tunnelling works.

(4) Developing a safety culture in the construction industry

As compared to countries like Japan, the United Kingdom, the United States and Australia, the safety culture among construction firms is very lacking in Singapore. Presently, contractors adopt the minimum compliance mindset in providing safety measures at worksites. The contractors' attitude is that the Government will provide all the safety

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legislation and standards while they concentrate on complying with the legislation and standards. This apathy among contractors impedes the development of a good safety culture in the industry.

Sir, I visited a number of construction sites in Japan. I am indeed very impressed by the strong safety culture in their construction industry. The stakeholders of their construction projects take a serious view on safety and implement safety measures beyond their regulatory requirements for safety. The Japanese contractors take pride to ensure that their worksites are safe

and kept in a hygienic condition for their workers. Their housekeeping on sites is first class. Safety measures are meticulously planned and implemented on site. Safety designs and messages are displayed prominently to constantly remind workers of safety. In addition, all staff working on site are briefed daily on site safety, including the conduct of morning exercises to keep workers alert.

The state of construction sites in Singapore is a far cry from that of Japan. Housekeeping is usually poor resulting in unsafe and unhygienic working conditions. Hazard areas are usually not or poorly demarcated. Workers are equipped with personal protective equipment which are not in very good working condition. Such practices have resulted in many construction accidents, such as fall of persons, hit by falling debris, stepped on or struck by objects, caught in or between objects, fire or explosion, contact with hot substances or objects, electrocution, exposed to harmful substances and dangerous occurrences.

Sir, I support the Manpower Ministry's change of emphasis to move from a compliance to a performance approach for safety. The way forward is to inculcate a sense of responsibility and accountability among various stakeholders on safety.

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Many studies have highlighted the importance of top management's role in affecting safety behaviour. Contractors must not only comply with regulations and standards but must be committed to constantly review and improve safety on sites. But in today's intense competition climate, many contractors are unable to provide adequate resources in a competitive tender to provide a safe working environment for their workers. We need to address this issue of putting safety provisions for competitive pricing in the tender.

The recent announcement by LTA to set aside 1.5% of its contract value for safety is a step in the right direction in enhancing safety on sites. We should develop this idea further by segregating safety provisions from competitive tendering, such as providing a fixed sum for safety provisions based on the contract value. In this way, contractors will be better positioned to ensure effective implementation of their safety management system.

Sir, a study by the National University of Singapore has identified key success factors which help to improve safety in the shipbuilding and repair industry. These lessons are applicable to the construction industry, as both industries share very similar characteristics.

The key success factor is the constant emphasis on safety which entails the implementation of a comprehensive safety and health system, adoption of safe work practices, compliance of safety regulations, top management support, strong union cooperation and workers' involvement in safety programmes which help to drive home the safety message to both direct and contract workers in the shipyard. To develop a good safety culture, there must be a firm commitment from the top management of construction

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firms. Contractors must make sure that they have a good safety management system which is clearly communicated to all personnel in the company. Inhouse rules, regulations and safety procedures must be adhered to diligently by all staff. Appropriate incentives and disincentives can be introduced to change the safety behaviour of workers.

The adoption of a code of practice for a safety management system for construction worksites, the CP 79 (1999) will provide a good framework for developing a consistent and comprehensive safety management system.

(5) Implementing independent monitoring and checks on safety

To be effective, there must be independent monitoring and checks on the safety management system of firms. Sir, who can be truly independent checkers to ensure safety through the delivery of a construction project? First, we need to identify who has a direct interest on construction safety. I suppose it must be the insurance company which should be liable for compensation if any accident occurs. Therefore, it is crucial that insurance firms play a more active role in conducting safety audit during the design and construction phases. Insurance firms will be able to provide a more independent and effective check on safe designs and site practices as they have direct liability.

Independent consultants can be engaged by insurance firms to assess the risk of a design and its contruction so that appropriate measures can be taken to reduce the risk of harm to people, property and the environment to a level as low as reasonably practicable.

The role of the planning supervisor as set out in the CDM Regulations can be undertaken by an insurance firm. In addition, the planning supervisor can also act as an independent safety auditor for

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safety management system of site works. This arrangement will provide an independent check and balance approach to enhance the safety of a construction project. It will also make the guilty participant who is responsible for the accidents accountable. A person who is found responsible for negligence will ultimately pay a higher premium or be ousted from the industry.

Sir, I understand that some developers have also implemented independent safety audit in their projects in Singapore. One local developer went to the extent of developing a five-star assessment system to assess the performance of their contractors on safety and environmental health issues. Similar to the Construction Quality Assessment Scheme, the five-star assessment scheme will grade and benchmark the safety performance of contractors. It provides a platform for contractors to share experiences and improve their safety performance. I would urge the Minister for National Development to consider instituting a safety audit system whereby both developers and insurance firms can provide a truly independent checking system on safety for construction projects.

To further improve the safety management and safety audit, we must develop a consistent method to measure the effectiveness of the safety system. Researchers from the National University of Singapore have developed a 3P+I model as shown in Chart 5 to assess construction sites safety. This model is made up of four main factors - policy factor, process factor, personnel factor and incentive factor. Each factor is further categorised into more distinct attributes providing a systematic checklist for auditing covering all clauses of CP 79. I would propose that the Ministry consider this 3P+I model to improve the quality of safety audit in the construction industry.

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Sir, safety is about life and death. Safety is about our attitude to life. I would like to urge this House to support this motion to enhance safety at our workplaces and safeguard the lives of all our workers in Singapore.

Sir, I beg to move.

Question proposed.