1 Introduction

1. Successful accident prevention requires a minimum of four basic activities, namely:

a. a study of all working areas to detect and eliminate or control physical or environmental hazards which contribute to accidents (create a safe environment).

b. a study of all operating methods and practice (create a safe system of work).

c. education, instruction, training incentives and discipline to minimize human factors which contribute to accidents (create the capability and motivation to work safely).

d. thorough investigation of every accident. Accidents which do not result in personal injury (so called near-misses) are warnings and should not be ignored. (Accident investigation is a defence against hazards that are overlooked in the first three activities, those that are less obvious, or hazards that are the result of combinations or circumstances that are difficult to foresee.

2 Safe working environment

2. Most accidents in worksite are caused by workers falling from height and workers struck by falling object. In fact, from past records, these two causes contribute more than fifty per cent of all cases and seventy per cent of all fatal cases. (Please see Table 1). Hence if one were to be able to control these two types of accidents more than half the problem would have been solved. These accidents are made dangerous also because multi-storey buildings are being built.

3 Measures against fall of persons

3. To combat against fall of persons, two approaches are adopted. First, a proper working platform should be provided to the worker whenever practicable. The working platform should be of adequate width, carrying capacity and with sufficient guardrails to afford a safe and steady foothold and handhold. Normally a platform of width 635mm is sufficient. However, if a platform cannot be provided for reasons of space constraint etc. one can provide the workers with safety belts and lifelines which are adequately anchored. A good advice to workers is to use safety belts whenever they work at heights. But looking at these two types of provisions one can see that safety belts, in fact, mitigate against serious injury and do not "actually" prevent falls - a "fait accompli" type of provision.

4. Platforms would be difficult to provide if scaffolds and especially access scaffolds are not provided a priori. Access scaffolds have transformed the method of construction, making building construction much safer. They are periphery scaffolds provided from the ground upwards to the floor under construction, enveloping the building. The envelopment facilitates the provision of platforms to formwork workers and has prevented many fatal falls of persons. (It must be noted that it is extremely difficult to claim to have prevented any accidents at all!)

4 Measures against persons struck by falling objects

5. Measures against person struck by falling objects include, among others, (a) minimizing debris being generated, hence less falling material, (b) systematic and regular disposal of accumulated debris, provision of perimeter overhead shelters, (c) access and egress shelters to building and (d) the compulsory wearing of safety helmets. Exploring deeper one can see that the first two measures are active in the sense that they remove the potential problem, the remaining measures are passive in nature.

6. One can also segregate activities which are likely to generate falling objects away from potential victims working at the ground level. This segregation can be both time and space for double safety. Areas likely to have falling objects are then cordoned off with barricades and attended by guards to prevent inadvertent entry.

5 Measures against aggravated accidents

7. "Aggravated accidents" are obvious hazards complicated or made more dangerous by conditions immediately surrounding it. As an example, the daily clearing of debris from the floors of the workspace and the edge of opensides can effectively contribute to the reduction of hazards. Good housekeeping, hence, is the answer. Conditions which create an unsafe working environment are created by workers carrying out their normal daily construction activities. Hence it is absolutely necessary at regular intervals to carry out cleaning, clearing and rearrangement of the workspace so that the site is returned to the state of orderliness and safety.

6 Safety Programme Organization

8. Now let us look at the software of accident prevention - the safety programme organization. It is defined as a method employed by management to share and to assign responsibility for accident prevention and to ensure performance under that responsibility. A safety programme is not something that is imposed on company organization. Safety must be built into every process and into every operation. It must be an integral part of company operations. The prevention of accidents and injuries is basically achieved through control of the working environment and of people's actions. Only management can implement such control. A company that has an effective safety programme will be able to conduct its operations economically, efficiently and safely.

7 Assumption of responsibility

9. Top management's attitude and approach toward accident prevention is reflected in the attitude of the supervisory force similarly, the workers' attitude is the same as his supervisors. Hence if top management is not genuinely interested in preventing accidents, no one else is likely to be, except to save his own skin. Consideration for others would be absent. So, if an accident programme is to be effective, the program must result from top management's announced and demonstrated interest if workers' co-operation and active participation are to be obtained. The basic safety policy must be from the top.

8 Safety policy

10. If an acceptable safety performance is to be achieved, management must first write a safety policy and have it publicized and promoted. It should be brief, to the point, clear and define management attitude. Basic to a policy declaration are these statements:-

a. Safety of employees, the public and company operations are paramount.

b. Safety will take precedence over expediency or short cuts.

c. That every attempt will be made to reduce the incidence of accidents.

d. That the company intends to comply with the Factories Act and all other safety laws.

9 Implementing the safety policy

11. Once a safety policy statement is established, it should be publicized so that every employee becomes familiar with it. The effectiveness of any safety program hinges on the amount of support given to it by management. Expressions of management support include enforcement of policy and programme, recognition of good safety records, review of safety reports, participation in meetings, safety campaigns and other events to show their support.

10 Assignment of responsibilities - Safety professionals

12. While top management has the ultimate responsibility for safety, it delegates authority for safe operation all the way down through all management levels. The supervisor is the key man in a safety programme because he is in constant contact with employees. The safety progressional acts in a staff capacity to help administer policy to provide technical support and information, to help train and to supply programme material. In Singapore, the employment of safety officers for some "factories" is mandatory while for construction worksites the employment of safety supervisors is compulsory by law. For more complex industries a more qualified safety professional may be in order.

11 Duties of site safety supervisor

13. In Singapore, the site safety supervisor is obliged by law to ensure that the provisions of the Factories Act and other safety regulations are complied with; and is expected to promote the safe conduct of the work generally within the site.

He is also expected to correct any unsafe practice, rectify any unsafe place of work and check sub-contractors work to ensure compliance of the Factories Act. He shares all these duties with the contractor's safety supervisor (safety supervisors employed by sub-contractors). A site safety supervisor is also required to conduct/attend meetings of the safety committee as its secretary.

12 Safety Committees

14. The main contractor of a worksite in which 50 or more persons are employed is required by law to establish a safety committee. This is one of the measures to counter the ill-effects of multi-tier contracting. Its main mission is to bring all "employers" involved, together to keep under review matters, in the worksite, which may affect the safety and health of the persons employed. For best results, the safety committee is recommended to meet as frequently as practicable since as the site changes, safety requirements deemed adequate earlier, may be insufficient at a later date. The committee should meet at least once a month.

15. A safety committee should comprise representatives of both the employee and the management. The number of representatives of the employees should be as large as possible in order to develop and maintain their interest in establishing safe and healthy working conditions. Only matters relating to safety and health in the worksites should be discussed at any meeting of a safety committee. For a sense of reality, a safety committee could invite injured workers who had met with an accident or dangerous occurrence to attend a meeting during which such accident or dangerous occurrence is being discussed. Minutes of meetings should be kept and any decisions reached must be disseminated to all involved for implementation and follow-up.

A safety committee is expected to inspect the worksite at least once a month and also immediately after any accident or dangerous occurrence had happened.

SAFETY LEGISLATION IN SINGAPORE WITH SPECIAL REFERENCE

TO THE CONSTRUCTION INDUSTRY

1 Introduction

1. The main Act of Law concerning industrial safety is the Factories Act. Since 1921 when the first legislation was introduced to prevent accidents resulting from the use of machinery, the then Machinery Ordinance, had since metamorphosised into what is now known as the Factories Act, Chapter 104 (1985). As a matter of interest, the Machinery Ordinance originated from the concept that machinery could cause accidents, hence if machinery was safe, there would be no accident.

The Factories Act, however, from hindsight, takes into cognizance that the safe act of workers, through proper training and orientation, can better contribute and ensure a safe workplace.

2. Building Operations and Works of Engineering Construction Regulations, 1971 had been promulgated to spell out in greater detail the safety requirements for various operations carried out at worksites. In 1977, the Building Operations and Works of Engineering Construction Regulations 1977 was promulgated superceding the 1971 version. In the 1977, versions, timber scaffolds were detailed to help contractors to erect safe timber (bintangor) scaffolds. Among other changes, the employment of safety supervisors at worksites and the formation of safety committees were made compulsory. In 1985, prompted by the construction of the Mass Rapid Transit in Singapore as well as to answer to the need to upgrade and modernise the construction in Singapore, the Factories (Building Operations and Works of Engineering Construction) Regulations, 1985 was promulgated superceding the 1977 version.

3. In the 1985 version, which will be reviewed in the paragraphs that follow emphasis was placed on the use of metal scaffold and provision of work platform.

The major changes in the Law include: -

a. the safe use of metal scaffolds were detailed with controls on quality of scaffolding material, training of scaffolders and scaffolds supervisors, the workmanship, etc.

b. the mandatory provision of work platforms for workers working at heights.

c. the detail guidelines on the safe use of compressed air for construction purpose. (Compressed air is used quite extensively in the tunnelling of the Mass Rapid Transit).

2. Review of the Factories Act, Chapter 104, 1985

4. Worksites are defined as "factories" under the Factories Act and thus the whole of the same applies. However, in this review, only those sections of the Act which are "more' relevant to worksites are considered. This review is not intended to be a precise interpretation of the Factories Act. If in doubt, the Factories Act should be consulted.

Definition of a Factory (Section 6)

5. Under Section 6 of the Act, a factory includes, among other workplaces, any premises in which building operations and works of engineering construction is being carried on. According to section 7, the term "building operations" is given to mean "the construction, structural alterations, repair or maintenance of a building (including repainting, redecoration and external cleaning of the structure), the demolition of a building, preparation for, and laying the foundation of an intended building." However, the expression "Works of Engineering Construction" is given the meaning of "the construction, structural alteration or repair (including the repointing and repainting) or the demolition of any dock, harbour, inland navigation, tunnel, bridge, viaduct, waterworks, reservoir, pipeline, aqueduct, sewer, sewerage work or gas holder and shall include such other works as may be specified by the Minister by Order, published in the Gazette."

Registration of Worksite as "factory" (Section 9)

6. Since construction worksites are considered "factories", they are to be registered with the Chief Inspector of Factories. Failure to register the "factory" is an offence which carries a maximum penalty of a fine not exceeding S$5,000.00 or to imprisonment for a term not exceeding 6 months or both.

The mandatory registration of a factory serves to inform the Department of Industrial Safety of its existence. This would enable the Department among other activities to schedule inspections to uncover unsafe workplaces and unsafe method of work.

Health (General Provision)

7. Part IV of the Act covers general provisions of health which include lighting, ventilation, drainage, overcrowding and cleanliness. An example is:- "Sufficient and suitable sanitary convenience for the persons employed in the factory shall be provided, maintained and kept clean" and effective provisions shall be made for lighting the conveniences, and, where persons of both sexes are or are intended to be employed, such convenience shall be reasonably arranged for persons of each sex.

Safety Provisions

8. Part V of the Act covers the safe use of machinery and provisions for safe access to and from work, and safe place of work. Moving parts of prime movers, electric generators, transmissions machinery such as belt and pulley must be securely fenced. The construction of every mechanically driven machine must satisfy certain safety requirements. No person is allowed to let or sell machinery in which dangerous parts are unguarded. Adequate training and supervision of operators of machinery are also emphasised and made mandatory (Section 28).

Hoists and Lifts (Statutory Equipment) (Sections 29 to 32)

9. Hoists and lifts must be of good mechanical construction, made of sound material and of adequate strength. They must be maintained in good condition. A half yearly inspection by an Approved Person is mandatory. Other requirements in the use of these equipments include the following:-

a. Enclosure of hoist ways or lift ways to prevent people from falling;

b. Efficient interlocking or other similar devices must be provided at the gates to the hoists and lifts so that the gate cannot be opened unless the cage or the platform is at the landing.

c. The maximum working load must be clearly marked on it.

d. Automatic devices to prevent the cage from over-running must be provided.

Every liftino gear had to be examined before initial use and examined by an Approved Person. Lifting appliances with the safe working loads greater than 150kg and all lifting machines must be examined by an Approved Person before use and subsequently, yearly. Operators of lifting machines must be trained and competent.

Access and Place of Work (Section 33)

10. The duty of employers to provide a safe place to work and safe access to and egress from work generally, is central to the Factories Act. The following are some of the more important details:-

a. All access such as steps, stairs, passages and gangways must be of sound construction and properly maintained.

b. All openings in floors must be securely fenced unless it is impracticable because of the nature of the work.

c. On the openside of staircase, handrails and midrails must be provided.

d. Any workplace from which a worker is liable to fall a distance of 3 metres or more, or into water, dangerous substances ...... must be provided with fencing or other means (eg. safety belt and lifeline) to prevent this fall.

Dangerous fumes and lack of oxygen (Section 34)

11. This section specifies requirements for the safe working in "confined spaces". Tunnels, sewers and boreholes are examples of "confined spaces" found in construction worksites. Confined spaces must be tested for sufficiency of oxygen and absence of dangerous gases/fumes before workers are allowed to work in them. Workers entering or remaining in such workplace should wear suitable breathing apparatus and where practicable be wearing a belt with a rope securely attached. A person must be deployed to keep watch outside and be capable of pulling him out. Confined space also should be continuously tested for intrusion of dangerous gases or the depletion of oxygen.