MOM OSH 50Y eBook

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50 YEARS, ONE VISION:TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE

CONTENTS02 Foreword by Prime Minister, Mr. Lee Hsien Loong04 Foreword by Minister for Manpower, Mr. Lim Swee Say06 Foreword by Commissioner for Workplace Safety and Health, Er. Ho Siong Hin08 Introduction10 A Young Nation Rises to Challenges (1965–1974)32 Growing to Meet Industry and Population Needs (1975–1984)54 Evolving Alongside the Industry (1985–1994)74 Staying Adaptive in the New Millennium (1995–2004)98 Reforming Our Workplace Safety and Health Landscape (2005–2014)126 Championing Workplace Safety and Health Standards on an International Scale (2015–Future)138 The Resounding Voices of WSH148 Closing Words150 Editorial Team151 Acknowledgements152 References

The Occupational Safety and Health Division (OSHD) is a division under the Ministry of Manpower that promotes Occupational Safety and Health at the national level. OSHD assists employers, employees and all other stakeholders to identify, assess, andmanage Workplace Safety and Health risks so as to eliminate death, injury and ill-health.OSHD is also the World Health Organization Collaborating Centre for Occupational Health, and the International Labour Organization-CIS National Centre for Singapore.

FOREWORD BYPRIME MINISTER I n just 50 years, Singapore’s economy has grown evidence for WSH policies, solutions for businesses to into one of the most developed and vibrant in the manage safety and health issues at their workplaces, region. Singaporeans today can pursue fulfilling and as well as anticipate new and emerging WSH trends. rewarding careers in many industries – from banking These efforts have made our workplaces safer, and and finance, retail and hospitality, and even energy reduced workplace injuries and fatalities. and chemicals. However, we are far from as good as we should But economic progress must not come at the be. Many other countries have better workplace safety cost of our workers’ safety and health. Over the past records. Each time I read of a workplace accident, I ask five decades, Workplace Safety and Health (WSH) in myself whether that was preventable, and if so, why we Singapore has improved in step with our economy. allowed it to happen. Our approach to safety and health, be it enforcement or engagement, has evolved over the years. Many of Even one injury is still one too many. I am glad these changes were deliberate and planned; but a few, that our tripartite partners have committed themselves unfortunately, were spurred by tragic accidents. to the Vision Zero movement. We must continue to improve WSH to safeguard the well-being of our This book tells the Singapore WSH journey. It workers. I urge everyone to do our part and strive is a journey made possible only because of a strong towards a culture of prevention to make Vision Zero a tripartite partnership – Government, employers and reality for every worker, in every workplace. workers, coming together to keep every worker safe and healthy, so that we can all enjoy the fruits of our Mr. Lee Hsien Loong labour. We can celebrate the milestones in our journey. Prime Minister For example, we set up the industry-led WSH Council in 2008, which now plays a key role in promoting awareness of good WSH systems and practices, setting standards and building capabilities of companies. We established the WSH Institute in 2011. It provides02

“Economic progress must not come at the cost of our workers’ safety and health. Over the past five decades, WSH in Singapore has improved in step with our economy and we must continue to improve WSH to safeguard the well- being of our workers.”

FOREWORD BYMINISTER FOR MANPOWER J ust over 10 years ago, Singapore had a high workplace safer workplaces and fewer accidents at the national fatality rate of 4.9 per 100,000 employed persons level, bringing us a step closer to this improbable vision in 2004. With the strong support  of our tripartite of zero fatality in our nation. partners, we brought it down to 1.9 in 2015. It is a big improvement. However, the journey towards excellence This book tells the journey of safeguarding the in Workplace Safety and Health (WSH) will never end, lives of our workers over the last 50 years, and the because every life is precious, and every fatality is one story of the passionate people behind this shared cause. too many. Their tireless efforts have ensured that fewer lives were lost at work and more workers were able to We launched the Vision Zero movement in go home safely to their families at the end of each 2015, which aims to develop a mind set that all working day. injuries and ill-health due to work can be prevented. Some had challenged us that Vision Zero is not Let us build on the foundation of these pioneers, realistic. They reminded us that zero fatality had and strive for Vision Zero to create safer and healthier not been and will never be achieved by any country, workplaces for all workers in Singapore. including Singapore, at the national level. They  are probably correct. However, while it may not be possible Mr. Lim Swee Say at the national level, it is certainly possible to achieve Minister for Manpower Vision Zero at the enterprise level, even at the industry level, if we all work hard and are committed to the cause. This is why we are determined to spread the Vision  Zero movement on the ground. Imagine, if many more enterprises and industries can make their  workplaces accident-free, the sum total of these Vision Zero enterprises and industries must mean04

“It is certainly possible to achieve Vision Zero at the enterprise level, even at the industry level, if we all work hard and are committed to the cause.”

FOREWORD BY COMMISSIONER FORWORKPLACE SAFETY AND HEALTH T his commemorative book is aptly titled “50 Years, of these changes, launching industry-driven initiatives One Vision: Transforming Singapore Into a such as Total WSH and Vision Zero, together with the Nation of WSH Excellence”. The chapters capture the WSH Council and the WSH Institute. These two bodies shared spirit of our Workplace Safety and Health (WSH) offer updated solutions while retaining expertise in stalwarts and the rigorous journey they went through addressing existing risks. Their partnerships with together. With their efforts, Singapore has emerged as industries will continue to keep companies and WSH a nation renowned for its best practices in WSH. practitioners at the heart of our WSH developments, just like the last 50 years. Over the years, we have improved our WSH performance. This was no mean feat; employers and The journey towards WSH excellence has been unions worked as one to build WSH capabilities, a meaningful and worthwhile one for us at OSHD, enhance regulatory frameworks, and reach out to a and we will soldier on with relentless passion and range of stakeholders. The immense contributions determination. We hope our readers will enjoy this from our colleagues and the unwavering support of book as much as we enjoyed sharing our story. our tripartite partners have made safe and healthy More importantly, we hope this book will provide workplaces a reality today. This book is a fitting the inspiration for others to write new chapters of tribute to them. our WSH story as we move towards the vision of “A Healthy Workforce in a Safe Workplace”. But having come so far, we cannot afford to be complacent. We must look ahead and chart Er. Ho Siong Hin our future as  we continue our pursuit of WSH Commissioner for Workplace Safety and Health excellence. Tomorrow’s WSH landscape, together with and Divisional Director of the Occupational changing a demography and new technology, will pose Safety and Health Division a different set of risks to an ageing but higher skilled workforce. The Ministry of Manpower’s Occupational Safety and Health Division (OSHD) has been at the forefront06

“The journey towards WSH excellence has been a meaningful and worthwhile one for us at OSHD, and we will soldier on with relentless passion and determination.”

INTRODUCTION T o a young nation, Workplace Safety and Health (WSH), or the area concerning the safety, health08 and welfare of workers, had not always been a priority. Indeed, the journey to inculcate WSH in Singapore was defined by long, winding turns and no shortage of challenges. Preceding Singapore’s independence, regulations for occupational safety and workmen’s compensation had already been established as early as the 1920s. Modelled after British labour laws, these ordinances became the starting point in the nation’s wide-ranging efforts to make safety and health integral to every workplace.

INTRODUCTIONTOP: With every new decade thereafter, the WSH man-hours lost to injuries. Maintaining an excellentSamsui women laboured in landscape grew by leaps and bounds, adapting to the safety record also reflects well on businesses and addsconstruction sectors as early as the challenges of each time period. New strategies and to their competitiveness.1930s, contributing significantly to initiatives were drawn to transform Singapore into aSingapore’s building foundation. Nation of WSH Excellence. Our success in reducing the number of industrial accidents has inspired confidence among investors and The road was a voyage of many threads. It was made Singapore a more attractive place for businesses. paved by a multitude of people, voices and perspectives. This in turn delivers better jobs and economic The first strides were made by the nation-builders who opportunities to the reach of workers in Singapore. pioneered the foundations of industrial safety and health while the nation was still in its infancy. We also believe that a safer and healthier working environment is a social imperative. Every individual in They were not alone. Gradually, various our workforce deserves to work in a safe environment governmental departments, industry stakeholders, and in good health, and to return home to his or her educators, professional associations and public interest waiting families every day, regardless of choice of groups came to play their part. It was their combined industry or profession. efforts that allowed Singapore to achieve one WSH milestone after another. Thus, it falls on each and every person to ensure that safety and health remains the top priority at any It took a span of almost 50 years and a string of given moment. Prime Minister Mr. Lee Hsien Loong inter-departmental evolutions before our Division – eloquently conveyed this message at the launch of the the Occupational Safety and Health Division (OSHD) National WSH Campaign 2013: “Let us maintain the under the Ministry of Manpower – took its present focus on improving workplace safety. Human beings form. Conceived at the turn of the millennium prior matter to us. Human capital is our only resource. Never to the introduction of the new WSH framework in trade off workers’ safety for cost or for time. Because 2005, OSHD now promotes WSH at a national level. every life counts and every worker matters.” We work closely with employers, employees and other stakeholders to identify, assess and manage WSH risks, Today, this call to action has reverberated in many and push for higher WSH standards in Singapore. ways. We have reduced our fatality rate to 1.8 per 100,000 employed persons earlier in 2014. A growing On top of working together with all entities within number of companies have made it their mission to the WSH ecosystem, we also adopted a systemic and integrate WSH into every aspect of their business. More proactive approach to achieve four strategic outcomes – individuals have also come aboard to take up the role of reducing workplace fatality and injury rates, advancing safety champions and to inculcate a progressive safety safety and health as an integral part of business, culture within their own work environments. This is developing Singapore into a centre of excellence for the hallmark of our achievement. WSH and inculcating a progressive and pervasive safety and health culture in Singapore. With such an extensive WSH history, we turn the clock to the early days of Singapore’s independence in Kindling all these efforts are a deep and shared 1965 and retrace the many steps that have brought us belief that WSH is not only advantageous, but also to where we are today. an essential partner in the growth of Singapore. If industrial development was the engine that propelled Singapore into an economic success story, WSH is the backbone that protects the nation’s workers amidst the breakneck pace of growth that has turned humble shacks into skyscrapers and muddy roads into highways. The social and economic benefits of advancing WSH are abundantly clear. From an economic standpoint, the widespread adoption of good WSH practices has resulted in greater productivity and fewer 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 09

A YOUNGNATION RISESTO CHALLENGES(1965 –1974)



TOP & RIGHT: TAKING THE FIRSTYang di-Pertuan Negara STRIDES AS A YOUNG ECONOMYMr. Yusof Ishak, former PrimeMinister Mr. Lee Kuan Yew and In the 1960s, Singapore embarked on its first chapter as ushering rapid advances of modern technology andofficials surveying the Jurong an independent nation. Economic survival was an urgent drawing many workers to labour-driven industrial jobs.Industrial Estate (top), followed imperative in these early years, and industrialisation itsby the group touring the key engine. Then a third-world nation with a modest “Opportunities were plenty, especially in theEstate (right). domestic capital and poor infrastructure, the young oil and gas and marine sectors. There was never a nation stood against staggering odds as it vied to become lull moment. Welders, fitters and those involved in12 a self-sustaining economy. Providing enough jobs for the engineering works were in high demand,” recalls Mr. growing population became its chief challenge. Leong Yee Hong, a pioneering businessman who took advantage of the vibrant economic climate to start his To provide more jobs and spur economic growth, the own business. Government embarked on a massive industrialisation programme. The development plan that was drawn While the rapid pace of industrialisation helped up sought to transform the nation into a thriving drive the economy forward, it also gave rise to new industrial hub. From the success of the first industrial challenges, particularly in the area of Workplace Safety estate in Jurong, the momentum of industrial progress and Health (WSH). grew rapidly. More and bigger factories were built,

A YOUNG NATION RISES TO CHALLENGESIn the 1960s, workers RESPONDING TO THE In addition to hazardous working conditions,and bosses [paid] little WARNING SIGNS OF THE INDUSTRY unhealthy working environments in these early daysattention to health and also took a serious toll on the labourers who spentsafety issues as these Some of these early challenges stemmed from the fact most of their days toiling in enclosed spaces suchcost money and time. that WSH was not yet widely known. Many workers were as mining quarries or underground constructionPeople were working at unaware that they were engaging in unsafe working worksites. Respiratory occupational diseases suchelevated heights without practices. The advancement of technologies employed as silicosis, later dubbed the “number one industrialproper safety gear. Tank in factories during this period also presented a steep killer” in Singapore, became increasingly prevalent.erectors, riggers, welders learning curve. Workers who lacked prior training were In 1965, a radiological survey of 1,188 granite quarrywere walking [or] working left unequipped to operate sophisticated machineries workers revealed that 8 per cent of workers surveyedon roof rafters of storage and suffered serious accidents as a result. Between 1963 had silicosis.tanks with canvas shoes and 1970, the number of fatalities increased by aboutand without harnesses three-fold while the number of accidents increased This finding, as well as other industrial healthor safety belts. They nearly seven-fold. issues that had begun to crop up at the time, promptedwore straw hats rather the Government to look into the matter more closely.than hard hats. Theyfelt the safety gears weremore of a nuisance andrestricted their agilities[or] movements.Mr. Leong Yee Hong,former Chairman andManaging Director,Meng Fatt Company Pte. Ltd.RIGHT:Granite quarries were a commonsight in the 1960s – 1990s. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 13

RALLYING THE SUPPORT OF WSH AFFILIATESBOTTOM: In the following years, the beginnings of WSH in TOP:Dr. Goh Keng Swee receiving a Singapore began to take shape, as different institutions Former Minister for the Interior and Defence, Dr. Goh Keng Swee,silk banner at the inauguration came together to pave the way for better industrial safety inaugurating the National Safety First Council at Victoria Theatre.ceremony of the National Safety and health practices.First Council. Furthering the engagement effort, the National In March 1966, the Government called upon Safety First Council convened the first-ever public14 the services of an industrial health expert from the seminar on occupational safety in Singapore, International Labour Organization (ILO) to help marking a milestone in Singapore’s WSH history. conduct a study on occupational health problems in Inaugurated on 1 July 1966, the Council was first Singapore. A few months later, factory inspectors from set up to focus only on road safety, but had since the Ministry of Labour (MOL), along with health officers expanded to include all manners of safety promotion, from the Ministry of Health (MOH), conducted factory including occupational safety. visits during which they provided factory managers with industrial health information and held safety Established in the same year, the Society of workshops. Following the factory visits, a mass X-ray Occupational Medicine also proved to be a major ally examination of granite quarry workers in Singapore was and advocate in the push for greater occupational organised with the aim of detecting cases of silicosis. health standards. Through its public meetings, seminars, talks, conferences and introductory While there was a greater emphasis on monitoring courses in occupational health, the Society helped and enforcement of laws in these industrial years, educate the general public and industry members the Government also understood that engaging and on the importance of adhering to health practices educating the workforce was just as important. Hence, at workplaces. factories were encouraged to display safety posters, while bigger factories were required to set up safety In 1969, the push toward safer and healthier committees in their factories. working conditions gained further momentum when the Occupational Safety and Health Committee was formed in the National Trades Union Congress. Led by Members of Parliament, the Committee took part in public discussions and provided in-house training courses for union leaders. Their ardent participation helped galvanise a greater sense of consciousness of WSH among the public and general body of workers.

A YOUNG NATION RISES TO CHALLENGESIt’s important because TOP:once you form [the Former Minister for Labour, Mr. Jek Yeun Thing, opening the first Industrial Safety Seminar at the Mobil Oil Refinery in Jurong.Industrial HealthUnit], there’s a focus ASSEMBLING A CAPABLE Deafness, industrial dermatitis and compressed airand concern about the INDUSTRIAL HEALTH TEAM illness as major industrial illnesses of concern.industrial health problemsin the country. So the With so much work ahead and to streamline WSH- During the first half of 1968, Dr. Cressall, anfirst important thing on related efforts between different departments occupational health specialist assigned from ILO,my part was to get the and stakeholders, MOL decided that a specialised also assisted IHU in conducting surveys to assess theorganisation going. You department was needed. occupational health conditions in Singapore. Followingmust start with the law up on previous studies on silicosis, the Unit also[…] My first duty was to The Industrial Health Unit (IHU) was set up in conducted a survey of 27 granite quarries in Singapore.revise the Factories Act conjunction with MOH in 1967. At the helm of this The silicate dust count in these surveyed sites was found[to ensure it was] more pioneering team was Dr. Chew Pin Kee, who headed to be much higher than the maximum permissibleup to date for that time. the Unit on a part-time basis before taking a full-time exposure limits set by international standards. ToOnce you do the legal role as Chief Medical Adviser. mitigate the issue, the granite quarry occupiers wereframework, then okay – instructed to provide means to suppress dust in thesestaff was important. You Working from its office at Halifax Road, IHU working sites.needed nurses, inspectors, conducted investigations relating to reportableengineers and the clerical occupational diseases, provided advice on health and Two years later, on 15 December 1971, MOL tookstaff. The beginning was environmental problems to factory management, and over IHU from MOH, consolidating the Government’sslow, but we started to engaged in training and research. Under the leadership occupational safety and health efforts underbuild up.” of Dr. Chew, the Unit identified silicosis, Noise-induced one Ministry.Dr. Chew Pin Kee, formerChief Medical Adviser of theIndustrial Health Unit,Ministry of Labour 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 15

MR. CHOYCHAN PONG“Being young, we were fearless. We believed we could do everything and solve every problem.” Former Director of the Shipyards Branch, Ministry of Labour

A YOUNG NATION RISES TO CHALLENGES PIONEER PROFILEStories of the Early Years:Hurdles, Camaraderie andthe Labours of LoveM r. Choy Chan Pong looks back at his time in the Ministry with much However, it was not all fun and games. The early industrialisation fondness. His journey began in 1972, when Mr. Choy joined the days saw newspapers headlined with tragedies that resulted in numerousMinistry as a mechanical engineer, working as a team alongside other fatalities, especially in the shipyards. It was a challenge for the hard-young engineers. Then called the Factory Inspectorate, the team was newly working pioneers to keep up with and respond to each case quickly, alwaysset up by the Ministry to focus on checking and regulating worksites with ready for the next move.occupational hazards. “There is a lot of pressure in doing a lot of things very quickly – to As the nation’s early gears of industrialisation began to pick up understand the shipyards, to intensify enforcement […] because while youmomentum in the 70s, the team had to grapple with many things unknown try to improve things, it takes time. You can introduce a procedure butto them. “We had to learn about silicosis, asbestosis – all these terms, we the workers still do not obey it. And the system can still fail. It involveslearnt from scratch,” Mr. Choy says. The Factory Inspectorate also took it training, promotion, persuasion, coercion and finally, enforcement beforeupon themselves to understand the different manufacturing industries – we progressed,” Mr. Choy contends.all of which were new grounds to them – in a comprehensive manner. Amidst the hustle and bustle of work, a surprising turn of events also Mr. Choy alludes to the period as one that was both exciting and came in the form of a serendipitous encounter for Mr. Choy. It was at thedynamic. “Being young, we were fearless. We believed we could do Ministry of Labour (MOL) that Mr. Choy met his wife, now Mrs. Mariaeverything and solve every problem.” Choy, the Head of Workmen’s Compensation at the time. The two had the chance to work together in the Recreational Committee at MOL. This can-do spirit soon became a shared culture amongst the team.Mr. Choy described the rapport between him and his colleagues as one “I married my wife at the Ministry of Labour – one of the romanticthat was tight-knit and highly comradely. “I always make the effort to have successes,” he says with a twinkle in his eye. Talk about being married tolunch together. We would talk about the issues we had and the solutions.” one’s work!The team’s closeness extended beyond office hours – Mr. Choy recallsmany a day when they could be found at the office up till 8 o’clock playing Mr. Choy left the Occupational Safety and Health Division to takecarom. “To us then, the Ministry of Labour was like our second home.” on a completely new challenge at the Urban Redevelopment Authority (URA) in 1990. Once again, he plunged head-on into a new area of work – “We [would] just lose track of time. We could be playing carom or government land sales and property market policy making. He retired inbadminton, go for a run or even a swim. So, when you have this kind of 2000, but continues to work as Senior Adviser in URA. His main focus is inseamless work-life balance […] whether it’s work [or] play – you don’t feel the documenting all the experience and knowledge that URA has accumulatedstress. You can take on any problem.” over the decades for future learning and reference. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 17

BOTTOM: IMPROVING INDUSTRIAL HEALTH a compensable occupational disease under theUnsafe working conditions in THROUGH REGULATIONS Workmen’s Compensation Act.the 1960s often led to dangerousaccidents at worksites. The effort to curb industrial illnesses, with silicosis Another key legislation, enacted in 1974, also being one particular focus, began to make inroads as proved to be an effective measure against silicosis. The more industrial health regulations came into force. Abrasive Blasting Regulations prohibited the use of sand as an abrasive for blasting. Since its enactment, The enactment of the Sand and Granite Quarries there has been only very few cases of silicosis among Regulations in 1971 played a pivotal role in combating sandblasters in Singapore. silicosis. It required licensees of any quarry to install dust extraction systems, provide dust masks and A slew of measures aimed to protect the safety and organise annual chest X-ray examinations for all quarry health of workers in other ways were also released. One workers. Mandating industry-sponsored chest X-ray such measure was the Building Operations and Works examinations was a big step in protecting workers’ of Engineering Construction Regulations introduced health as it allowed early detection of silicosis before in 1971. Focusing on the health, safety and welfare of the affected worker’s health deteriorated, without construction industry workers, the legislation provided burdening workers with the cost of these medical MOL with the framework to regulate unsafe work screenings. In 1972, silicosis was also declared activities that led to high accident rates between 1963 and 1970.

A YOUNG NATION RISES TO CHALLENGESTAKING A CLOSER LOOK AT LEFT: I am of the view that programmesSINGAPORE’S SHIPYARD INDUSTRY The shipyard industry drew on safety and health in shipyards the highest accident rates in did not keep pace with theWhile regulations and enforcement provided the the 1970s, prompting increased rapid growth of the industry innecessary momentum for change, the Government safety measures, legislation and the 60s and 70s. Neither wereknew that Singapore’s WSH journey had barely begun. public education. they adequate in the face ofMany aspects of Singapore’s industrial safety had yet to pressure imposed by contracts tobe addressed. During our time, the 1970s and complete goals quickly. Priority 1980s, employers were not so [at that time] was given to skills To gain more insight on these matters and safety conscious, not so aware. development and productivity.decide the way forward, the Study Group on Accident Everything was new. I mean,Prevention in Shipyards was convened in 1973. the shipbuilding industry just In the industry where activitiesSpanning two years, the study culminated with a boomed like that […] It was a very were diversified and wide-four-volume report which was submitted to MOL in rapid pace of industrialisation. ranging, and where hot worksMarch 1975. You superimpose that with the in potentially explosive and transitional work site, the height, flammable environment [were] a The report revealed that between 1971 and 1975, the heavy equipment. So it was normal daily operation, shipyardsoccupational accident levels were highest in the just ripe for big accidents to in fact faced a deterioration inshipyard industry since 1971. It also recommended, happen. And workers were also occupational safety and healthamongst other things, more preventive safety not trained. conditions because of the rapidmeasures, further safety legislation, a code of practice, expansion of the industry, influxsafety education and a standardised accident reporting Everything [was also done] in a of new workers, and new processessystem in shipyards. hurry. The shipyards [were] under and activities. pressure all the time to work. I An Advisory Committee was subsequently formed mean, my father was a shipyard Prof. Ang How Ghee, former Memberin May 1975 to advise and assist in the implementation worker when I was a boy. Very of the Commission of Inquiry of Fatalof the report. often, he came home at 6 a.m. […] Accidents in Shipyard and Chairman of He worked in a tanker overnight the Committee on Accident Prevention then came back in the morning. in the Shipbuilding and Repairing So the pressure of work, the tight Industry, Ministry of Labour deadline, the ad hoc nature of work – all these [added together], then you will have a very unsafe industry. Mr. Choy Chan Pong, former Director of the Shipyards Branch, Ministry of Labour 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 19

DR. CHEWPIN KEE“The new generation will face different challenges but they must continue to improve the health of workers.” Former Chief Medical Adviser of the Industrial Health Unit, Ministry of Labour

A YOUNG NATION RISES TO CHALLENGESPIONEER PROFILEThe Humble Visionary He recalls leading the team to conduct X-ray examinations forWho Started It All Singapore’s granite quarry workers. “We used a mobile X-ray van to go to the granite quarries because it was very difficult for the workers to comeS till waters run deep. No man embodies this proverb better than out and go to Tan Tock Seng Hospital,” explains Dr. Chew. Dr. Chew Pin Kee. Even as he sits down to recount his role as an industrial health pioneer, The partnership with Tan Tock Seng Hospital was something Dr.the affable Dr. Chew modestly deflects the spotlight away from his own Chew welcomed with enthusiasm. “The hospital’s chest physicians wereachievements. For Dr. Chew, the work has always been more important very interested in learning more about these diseases. They also got thethan any accolade received. necessary treatment and facilities for follow-ups.” And his legacy speaks for itself. Without Dr. Chew’s tenacious efforts, His open-mindedness proved crucial in 1971, when the Unit wasSingapore’s first chapter in industrial health would never have been transferred to its new home under the Ministry of Labour (MOL). Forwritten. This chapter started in the early 1960s, when the birth and rise Dr. Chew, the transition was significant.of industrialisation in Singapore became the key driver in the growingconcern for workers’ well-being. Having worked with MOH for a good part of his career, he had to quickly adapt to a new working environment. Being the leader, he needed Those years were certainly not easy for Singapore’s working population. to ensure that his team was able to adjust to their new ‘home’ smoothly.This was especially true for blue-collar workers who had to cope with unsafeor unsanitary working conditions. As industry development was still new In this time of rapid change, Dr. Chew remained a perceptive thinker,back then, there was almost no system to regulate workplace practices, and keeping his eyes on the big picture. Rather than dwelling on the challenges,it was the workers who suffered the cost of this neglect. he saw the move to MOL as a golden opportunity, providing the Unit with the capacity to carry out their role more effectively. The Ministry of Health (MOH) decided then that something needed tobe done. However, there was one problem: the field of industrial health was Looking back, what would he consider as his proudest achievements?still virtually unknown in Singapore. Dr. Chew ponders this question with an earnest smile. “Well, I think the most important thing is I have trained doctors, nurses, inspectors, As part of the Public Health Division, Dr. Chew was sent to the United and the staff. That’s what I think is important. Of course I also laid theKingdom to study Occupational Medicine. Upon his return, he began infrastructure and laws.”to look into the matter of industrial health with MOH. However, it wasapparent that the enormous work at hand could not be undertaken by a Dr. Chew also beams with pride as he recalled the book that he hadsingle person. The idea of creating an Industrial Health Unit (IHU) within written during his time with the Unit – A Guide to the Assessment ofMOH was then initiated. Traumatic Injuries for Workmen’s Compensation. “At the time, we had the law set up. However, there was no guide,” Dr. Chew says. The development Henceforth, the responsibility of leading this new unit fell on Dr. Chew’s of the guide was of paramount importance to him. “I will always remembershoulders. From the very first day, Dr. Chew was keenly aware of the challenges what my teacher told me: You have to set the standards first.”to come. But he was equally optimistic of the possibilities that lay ahead. Speaking of the state of WSH in Singapore today, Dr. Chew expresses The first hurdle, Dr. Chew recounts, was putting together the right his delight at the progress that has been made. However, true to histeam. “The beginning was slow. There were less than 10 people in the unit, forward-looking mindset, he prefers to set his sights on the future. “Thebut gradually we started to build up.” new generation will face different challenges but they must continue to improve the health of workers,” he says. His determination paid off. Under the leadership of Dr. Chew, IHUmanaged to tackle the more pressing issues immediately. Addressing “Train staff to become skilled. Public education is also important tosilicosis was one of their first priorities. build awareness. Provide the services. Lastly, there is research. You must track the progress in stages; then if there is a lag, you will know why.” More than thirty years after leaving MOL in 1980, Dr. Chew remains active. He now juggles his time between helping out at his eldest son’s family clinic, and studying and preparing for Sunday’s bible study class at his church. Together with his wife, he also enjoys occasional travels, and minding and caring for their three grandchildren. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 21

INCULCATING SHARED OWNERSHIP MOL also produced a monthly newsletter, The New Capability building is theAND BUILDING CAPABILITIES Worker, to help workers stay in touch with the latest in foundation of WSH in all occupational safety and health news. workplaces. It is unlikelyThe beginning of the 1970s also marked a gradual shift to achieve a high standardtowards a more nuanced approach to inculcating WSH. The Ministry also tapped on the expert insights of WSH in all workplacesThere was greater emphasis on shared ownership, self- of an ILO representative to design a formal training in Singapore withoutregulation and empowering all stakeholders to take programme to groom people to be safety officers building up a sound andpart in the WSH journey. champions in the industry. The Safety Officers Training solid foundation. Course (SOTC) was officially launched in 1973. One example was the launch of the first National Every individual in theIndustrial Safety & Health Campaign in 1972, followed Over the years, the initiative bore fruition as industry – the employers,by a series of targeted campaigns for critical, injury- more companies saw the benefits of safety training. the workforce and theprone industries such as construction and shipbuilding Subsequently, SOTC evolved into a relevant avenue for governing authority –and repairing. A campaign on silicosis with mobile the training of WSH professionals today. must be well-equippedexhibits was also launched in 1973 to educate workers with the required WSHand factory operators on the disease and what could be capabilities such asdone to prevent it. knowledge, positive mindset, good safety behaviour and practices, [and] sound technical knowhow in WSH, through proper training and well-designed continuous WSH education programmes. Mr. Ang Tick Bing, former Administrator of the Safety Officer Training Course, Ministry of Labour LEFT: Former Minister of State for Labour, Mr. Sia Kah Hui, at the opening of the Industrial Safety Exhibition in 1972.22

A YOUNG NATION RISES TO CHALLENGESTOP: CONTINUING A DECADE-LONG JOURNEYFormer Minister for Labour, Mr. Ong Pang Boon,visits the exhibition at the launch of the Building MOL’s multi-front efforts were relatively successful. Dust levels in graniteConstruction Safety and Health Campaign at the quarries and silicosis cases in Singapore fell sharply after 1973. Furthermore,Subordinate Law Court Complex Worksite in 1974. IHU recorded a 35 per cent decrease in notifiable occupational diseases in 1977. More industry stakeholders had taken up greater responsibilities to inculcateBOTTOM:The exhibition received an enthusiastic response, safety culture among their peers.drawing huge crowds to its premises. By the end of Singapore’s first decade of independence, the foundation of occupational safety and health in Singapore had already been firmly put in place. However, high industrial accident numbers served as a powerful reminder that there was much work left to do and plenty of improvements to be made. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 23

CASE STUDYBLASTBOANRTHGE E MENDUTOP: A n ordinary day at Jurong Shipyard was rocked by aFive days after catastrophic blast on the vessel Mendu. With fivethe tragic blast men killed and three seriously injured, the incidenton Mendu, First was a wake-up call for the shipyard industry.Magistrate Mr. TanTeow Yeow leads On the morning of 5 March 1972, 10 workers werehis inquiry team aboard the unfinished vessel Mendu, working on aat Jurong Shipyard series of painting and construction operations. Paintingto investigate the works in particular were being carried out at the bottomexplosion. deck of the ship. The paint’s highly flammable vapour and the lack of ventilation created a highly volatileRIGHT: environment, akin to that of a gas chamber.Extendingsympathies: FormerMinister for Labour,Mr. Ong PangBoon, visits injuredworkers of the blastat Outram Hospital.24

A YOUNG NATION RISES TO CHALLENGESTOP:The inquiry into the Mendu blastrevealed various levels of negligence.RIGHT:An official of Jurong Shipyardpresenting a donation to families ofthe victims. However, a trainee hull fitter who was working near with painting work. However, due to the lack of workthe opening of the lower deck was unaware of the danger coordination, the hull fitter had been given instructionsbrewing beneath him. The risk of combustion did not to do welding work, which resulted in the blast.enter his mind as he lit his arc welder, igniting an explosionthat ripped through the bottom deck. The catastrophic Lastly, the Committee was alarmed to find that noincident resulted in five deaths (including that of the hull ventilation had been provided for where the paintingfitter) and three other seriously injured workers. works were being carried out. In the wake of the accident, a Committee of Inquiry Sections 14 and 35(3) of the Factories Act (Cap.was immediately formed to ascertain the cause of the 123, 1970 Ed.) were found to be breached. The formeraccident and make recommendations to prevent similar section required all workrooms onboard the vessel toincidents. The three-man inquiry panel was helmed by be well-ventilated to prevent the build-up of vapourthe First Magistrate, Mr. Tan Teow Yeow and two other or other gases in the work area. The second sectionassessors, Dr. Lee Kum Tatt and Dr. Pang Eng Fong. required that all explosive or flammable substances were to be rendered non-flammable before any Over a span of three weeks, the Committee found welding operations were carried out. Otherwise, thesea series of probable causes that contributed to the blast. substances could not be brought onto a ship if weldingThe first cause was attributed to the fact that no checks operations were taking place.were carried out for flammable substances on deckbefore welding works were instructed. Subsequently, the shipyard was found guilty of negligence and fined a sum of S$900 on account of The lack of communication between various parties breaching the Factories Act.– namely, the yard manager, workmen, supervisors,foremen and section chiefs – was also identified as a The danger posed by flammable substances andcontributing cause. As a safety measure, no welding hot work sparked another tragedy two years later, whenwork was supposed to be carried out simultaneously the bulk vessel Iron Parkgate was engulfed in flames due to regrettable acts of negligence. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 25

CASE STUDYA TRAGEDYGATRTHAEVING DOCK

A YOUNG NATION RISES TO CHALLENGESLEFT: T hirteen lives were lost after shipyard workers failedOne of the perished to observe safety measures aboard the bulk vesselvictims of the deadly fire Iron Parkgate. It remains as one of the worst disastersbeing carried away. in Singapore’s early industrialisation period.RIGHT: 10 December 1974 will forever be remembered as aThe engine room aboard day of tragedy by the families of 14 workers after a seriesIron Parkgate where the of negligent acts ignited a fire aboard Iron Parkgate – aflash fire occurred. bulk vessel undergoing dry docking survey and repair works at Jurong Shipyard. The incident took the lives of 13 workers and left another victim with critical injuries, location of the hot work. Adequate ventilation and shocking many in the industry. safety measures should also be made a priority, and a fireman or workers trained in fire safety had to be In the aftermath of the incident, a Committee of present during the duration of the work. Educating Inquiry was appointed to inquire into the accident. workers was also seen as a way forward. Headed by district judge Mr. S. Chandra Mohan, the Committee submitted an 11-page report to then Heeding the Committee’s recommendations, Minister for Labour, Mr. Ong Pang Boon. The findings campaigns and educational programmes were determined that the fire was due to an ignition of subsequently introduced for workers of all levels, flammable oil in the engine room, as opposed to an especially in the industries most vulnerable to injuries, electrical fault. The shipyard was found to have violated namely construction and shipbuilding and repairing. Sections 14 and 35(4) of the Factories Act, No. 6 of 1973, as it failed to maintain adequate ventilation and to remove the flammable oil in the engine room while welding work was carried out. A machinery engineer in charge of works done to the vessel was also found guilty of negligence as he had not ensured that a fireman was stationed at the work area while hot work was in progress, a requirement under the Act. Furthermore, despite the presence of flammable oil in the vessel’s bilges, no steps were taken to remove the oil or render it non-flammable before the welding operations commenced. Had all these safety precautions been followed, the oil would not have been ignited and the accident would have been prevented. While sharing their findings, the Committee pointed out the importance of maintaining a vigilant attitude to work safety. The Committee found that small fires had previously broken out aboard the vessel, and were quickly put out without any casualties. This might have led those working in the shipyard to underestimate the potential impact of such an occurrence. In its report, the Committee proposed several recommendations. Enforcement of provisions contained in the Factories Act needed to be more stringent. Before hot work was carried out in any ship, the officer-in-charge must provide those supervising safety with a copy of the daily work schedule, as well as information on the nature and 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 27

FEATURE From raising standards to looking after the safety and health aspects of every worker, regulations have always been an integral part of Singapore’sEstablishing the Path WSH development. The genesis of these regulations can be traced back toof Worker’s Protection the 1920s, when laws were established to protect workers in their course ofand Compensation employment, and provide them or their dependents with due compensation in the event of a work-related injury or death.WORKERS’ PROTECTION Over the decades, both the WSH Act and the Work Injury Compensation Act (WICA) have provided much headway in the course of its evolution. The laws are constantly reviewed, discussed and revised to service the nation’s continually changing vocational environment. Today, these regulations continue to endorse Singapore’s commitment to safeguard workers and their rights to a safe and healthy workplace. 1920 THE MACHINERY ORDINANCE 1960 THE FACTORIES ORDINANCE AND PROTECTION OF • Modelled after the Factories Act of 1937 WORKERS ORDINANCE and 1948 of the United Kingdom. • Enacted to safeguard the welfare of workers. • Followed the recommendations set by • However, the law became inadequate as the International Labour Organization factory working conditions changed with convention, but with changes to suit the advent of new technology. Singapore’s factory conditions. 1973 THE FACTORIES ACT 2006 THE WSH ACT • Contained provisions to allow authorities The WSH Act moves away from taking a to combat industrial pollution. prescriptive stance under the former legislation and introduces a performance-based regime. • Certain classes of factories were required It has four key features: to employ full-time safety officers to exercise general supervision and 1. It places the responsibility for workplace promote safe work conduct. safety on all stakeholders along lines of control at the workplace. • Factories employing 50 or more persons were required to set up safety committees 2. It focuses on WSH systems and outcomes, to promote safety, health and welfare in rather than compliance. their establishments. 3. It facilitates effective enforcement through the issuance of remedial orders. 4. It imposes higher penalties for non- compliance and risky behaviour.28

WORKERS’ COMPENSATION A YOUNG NATION RISES TO CHALLENGES1932 1955 1971 THE WORKMEN’S THE WORKMEN’S THE WORKMEN’SCOMPENSATION ORDINANCE COMPENSATION ORDINANCE COMPENSATION ACTProvided payment of compensation to injured (AMENDED) • Increased the quantum of workmen’sworkmen or, in the event of their death, to compensation payable three-fold.their dependents for personal injury arising Employers could be prosecuted for notout of or in the course of employment. complying with the provisions, such as • Provided for a more detailed list of failing to send reports of accidents to injuries for a more accurate assessment their workmen within 10 days of their of compensation. occurrence or neglecting to appear before the Commissioner on being summoned • Included silicosis and asbestosis as for an enquiry. compensable occupational diseases. • Provided for the establishment of medical boards and panels to determine matters relating to medical evidence.1975 2008 2012 THE WORKMEN’S THE WORK INJURY THE WORK INJURY COMPENSATION COMPENSATION ACT COMPENSATION ACT (AMENDED) ACT (AMENDED) • Extended coverage to almost• Streamlined administration all employees*. • Increased compensation limits to and enforcement. account for the change in nominal • Increased compensation limit. median wages and healthcare costs.• Accelerated payment to injured workmen. • Enhanced system to provide a quicker and • Expanded the scope of compensable• Increased compensation amounts. more efficient way to process claims. diseases.• Included Noise-induced Deafness and • Offered workers a capped compensation industrial dermatitis as notifiable and without involving a long drawn civil suit. compensable diseases.* Officers from the Singapore Armed Forces, Home Team and domestic workers are excluded from coverage of WICA. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 29

While the journey towards a safer 1966 • The first-ever public seminar onand healthier workforce was still in industrial safety was held by theits infancy, the early milestones and • The Ministry of Labour invited National Safety First Council.successes showed that the Government an expert from the Internationalwas on the right track. Labour Organization to conduct • The Society of Occupational a study on occupational health Medicine was established. problems in Singapore. • Accompanied by a health officer • The National Safety First from the Ministry of Health, the Council was founded by then Factory Inspectors conducted Interior and Defence Minister factory visits, provided advice Dr. Goh Keng Swee. on industrial health to factory occupiers and conducted a mass X-ray examination of granite quarry workers. 1960 1967 • The Factories Ordinance, which was • An International Labour Organization expert in introduced in the Legislative Assembly Industrial Health assisted the Ministry of Labour in 1958, came into effect. in organising an Occupational Health Service for six months. • The Industrial Health Unit was established under the Ministry of Health.30

1968 1972 A YOUNG NATION RISES TO CHALLENGES• The Industrial Health Unit looked into various industrial • The National Productivity Board 1973 hazards such as silicosis, asbestosis and dermatitis. was founded under the purview of the Ministry of Labour. • The launch of the Safety Officers• Dr. Cressall from the International Labour Organization Training Course marked the conducted surveys to assess the occupational health • The first National Industrial advent of formal WSH training conditions in Singapore. Safety & Health campaign in Singapore. took off. More campaigns• After surveying 27 granite quarries in Singapore, the followed suit, each focused • The New Worker, a monthly Industrial Health Unit discovered that the dust count in on a specific industry. newsletter produced by the these quarries was in excess of permissible limits set by Ministry of Labour, was international standards. Afterwards, granite occupiers published for the first time. were instructed to control their dust levels. • A campaign on silicosis, which included a mobile exhibition visit to 25 quarries, was launched. • The Factories Act 1973 was enacted to raise the standards of safety, health and welfare among industrial workers.1971 • The Workmen’s Compensation Ordinance 1974 was amended and renamed the• The Building Operation and Works of Workmen’s Compensation Act 1971. • The Abrasive Blasting Engineering Construction Regulations Regulations was enacted, and Sand and Granite Quarries • The Ministry of Labour took over the effectively nipping silicosis cases Regulations were enacted. Industrial Health Unit from the Ministry among industrial sandblasters. of Health on 15 December 1971. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 31

GROWING TO MEETINDUSTRY ANDPOPULATION NEEDS(1975–1984)



TOP: CONTENDING WITHBalloons being released at Sembawang Shipyard’s new S$50 million 400,000-ton INDUSTRIAL PROGRESSdry dock during its official opening by former Prime Minister Mr. Lee Kuan Yew. Singapore’s first decade of independence saw the city-I guess those days, the shipyards were deemed as hazardous, dirty and dangerous. But state changing rapidly. Modern housing flats replacedtoday actually they’re very different. If you look at the reputation, the image has changed unhygienic squatter settlements. Infrastructuretremendously. [The improvement] is something very positive if you want to compare the and industries grew by leaps and bounds, furtherdifferences and it is not an overnight thing. It is sort of a progressive kind of development transforming the former colonial post into a vibrant[achieved] through a lot of measures, effort and initiative at many levels both government, city that offered plenty of opportunities for theindustry – the customers, the suppliers – [and] everybody. hardworking. The decade between 1975 and 1984 saw industrial workforce numbers doubling from 257,300 workers in 1975 to nearly 408,700 in 1982. Amid the industrial hustle and bustle that kept the nation on its feet, occupational accident and fatality rates in shipyards remained a red-hot cause for concern. The findings of the government-appointed Study Group on Accident Prevention in Shipyards showed that the shipbuilding and repairing industry was responsible for the highest number of accidents. Specifically, the industry recorded 1,142 accidents, or 30 per cent of the total accidents that occurred in 1975. Many of these incidents could have been prevented with a more mindful and systematic approach to safety, which was sorely lacking at the time. Mr. Heng Chiang Gnee, former Chairman of Sembawang Shipyard and Chairman of the Workplace Safety and Health Council, recalls that “a lot of shipyards did not really have a comprehensive system in place” in the 1970s. Faced with these challenging circumstances, the Government was further convinced that regulations alone were not enough to inspire change. To be fully effective, enforcement must be paired with engagement, and regulations with outreach.Mr. Heng Chiang Gnee, Chairman, Workplace Safety and Health Council and former Chairman,Sembawang Shipyard34

GROWING TO MEET INDUSTRY AND POPULATION NEEDSENGAGING ON A NATIONAL LEVEL safety do’s and don’ts in various sections of the ship. BOTTOM: Graphics, scale models and a slide presentation were Former Minister for Labour,Acknowledging the need for greater engagement, among the items displayed. Mr. Ong Pang Boon, seenthe Government ramped up efforts to reach out to standing at the lectern,workers on a nation-wide scale. Campaigns were rolled The campaign also engaged audiences through addressing guests at a dinnerout to bring about awareness to workers in injury- a television (TV) forum on Accident Prevention in reception held in Penthouseprone industries and bring lesser-known aspects of Shipyards, TV interviews with shipyard and Ministry of Negara, in which he was tooccupational safety to public attention. Labour (MOL) officials, safety films, as well as a poster receive the report on Accident and slogan competition. Prevention in the Shipbuilding The first of such campaigns was launched on and Repairing Industry.24 September 1975 by then Minister for Labour, Mr. Ong Additionally, the Ministry organised a three-dayPang Boon. Spanning three days, the campaign reached safety orientation course to help workers familiariseout to over 26,000 shipyard workers. Supervisors, themselves with the permit-to-work systems inmanagement staff and industry stakeholders were also shipyards and the safety measures that must be takeninvited to attend. to protect them from accidents. The centrepiece of the campaign was a mobile By tapping into as many channels ofexhibition that toured 21 shipyards operating in communication  as possible, the Government ensuredSingapore. It featured photographs of safe and unsafe that the message of Workplace Safety and Healthwork practices, as well as remedial actions to be taken (WSH) would be heard by many, from those at the topin case of accidents. Attendees were shown a list of levels of business to every last worker on the ground. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 35

The Housing & LEFT: Development Board Prof. Ang To reaffirm their commitment, shipyard(HDB), being the largest How Ghee was contractors were also encouraged to sign an agreementdeveloper in Singapore, awarded the to take necessary safety precautions against workplacetook the lead in reducing Friend of Labour accidents. By November 1977, a total of 237 out of 250the number of worksite gold medal by the shipyard contractors had already taken the pledge.accidents. HDB then National Trades The forming of Advisory Committees was notlaid the infrastructure Union Congress. limited to the shipbuilding and repairing industry.for a four-pronged In the construction industry, where a sharp risestrategy to evolve and HELPING INDUSTRIES IMPROVE in accidents from 786 in 1979 to 927 in 1980 wastake shape in reducing THEIR SAFETY RECORDS recorded, an Advisory Committee was similarlyworksite accidents from formed. Working alongside the Factory Inspectorate,occurring. [This entailed] In addition to educating the workforce through the Committee conducted safety orientation coursesthe promotion of safety educational campaigns, the Government also saw a for supervisors, construction workers and students ofconsciousness among need to work with the industry more closely. With this vocational institutes.workers, supervisors and objective in mind, an Advisory Committee was set In partnership with MOL, the Committee alsocontractors, including up in 1975. The Committee was tasked with assisting helped organise a workshop on Safety and Construction.the formation of worksite the shipbuilding and repairing industry in its safety Launched by Mr. Ong Pang Boon in March 1980, thesafety committees, journey. Chaired by Prof. Ang How Ghee and 14 other workshop saw 160 participants of diverse professions inthe introduction of members, its task was to advise and assist on the attendance, including engineers, architects, contractorsbetter safety measures implementation of the report submitted by the Study and supervisors.and provisions, the Group on Accident Prevention in Shipyards. Thanks to the multi-pronged efforts of these Safetyenforcement of safety rules Committees, a growing number of industry membersand provisions at the Several interventions were recommended, and a were able to gain a greater understanding on how toworksites and conducting Management Workshop on Safety in the Shipyards was improve the standards of safety and health in theirresearch on accidents. launched in March 1976. Highlighted in this workshop working environments. This, in turn, encouraged them were the dangers of confined spaces and preventive to take the step forward from being passive participantsEr. Lau Joo Ming, former measures to take. Inspired by what they learnt, shipyard to becoming active WSH champions.President, Professional representatives were committed to adopt initiativesEngineers Board and such as safety policies, self-regulating permit-to-workSenior Advisor, Housing & systems and the provision of basic safety facilities.Development Board Six months later, the Advisory Committee formed36 a Safety Consultancy Group with two main objectives. The first was to provide shipyards with consultancy services on WSH. The other was to assist shipyards in implementing recommendations proposed by the Advisory Committee.

GROWING TO MEET INDUSTRY AND POPULATION NEEDSSAFEGUARDING THE WELL-BEING Also introduced in 1975, The FactoriesOF OUR WORKERS (Qualifications and Training of Safety Officers) Notification clarified in detail the wide-rangingWhile staying in touch with workers and industry duties of a safety officer, from carrying out factoryleaders, the Government also kept pace with the inspections to investigating accidents and organisingstandards required to safeguard the well-being of its safety campaigns.workforce. To ensure that WSH remained robust andrelevant to current operating conditions, MOL was Both regulations further deepened the involvementcommitted to reviewing WSH legislation regularly. of employers and the workforce in the push for higher WSH standards. The push towards self-regulation in WSH wasevident in the enactment of the Factories (Safety Many occupiers of downCommittee) Regulations, introduced in 1975. Under this factories [at the time] didpiece of legislation, factories with 50 or more employees not know how to comply Memory Lanewere required to set up a safety committee, and each with the law and therecommittee was to consist of representatives from both were no [on-site] safety A Time for Transitions and Triumphsappointed management staff and elected employees. consultants for them to turn to. On the positive Singapore’s second decade of independence proved significant for the The regulations set forth a wide range of activities side, as the occupiers were Industrial Health Unit (IHU) in more ways than one. In 1976, IHUthe committee must attend to. These included monthly not so knowledgeable, underwent a name change, becoming the Industrial Health DivisionWSH meetings, regular plant inspections, on-site they [were] more willing (IHD). More than a facelift, the new name reflected the increasingaccident investigations, and the promotion of safe to take the advice of importance of industrial health in Singapore. This change was alsowork practices in the factory. By incorporating the the inspectors. They indicative of the department’s growing size and maturity. From aperspectives of both management and employees in the were more respectful handful of people in 1967, the department had grown to 36 staffdiscussions of safety issues, the regulations set the path of the authority and members in 1976.towards more productive and inclusive communication less contentious.channels. Close communication would also be The Division’s tenacity in addressing issues of industrialconducive in preventing accidents as overlooked slights Mr. Low Wong Fook, former health was also met with two shining recognitions. In 1978, IHDand errant behaviour could be identified and addressed Chief Inspector of Factories was awarded the plaque of commendation by the National Tradesmore promptly. and Director of Industrial Union Congress for its work in improving the standards of WSH in Safety and Divisional Labour Singapore. In the following year, IHD was also appointed as a World Welfare, Ministry of Labour Health Organization (WHO) collaborating centre, making Singapore one of only four countries in the region to earn this distinction. LEFT: Being a WHO collaborating centre was a major milestone, allowing Former Minister for Social Affairs, the Division to gain new insights and fresh perspectives from the Mr. Othman Bin Wok, visits the international community propagating WSH. Thye Hong Biscuit Factory. Another transition also happened at the Ministry of Labour to further streamline the Ministry’s activities. Whilst the Ministry made significant progress in spreading awareness of industrial safety, promotion and training was transferred to the National Productivity Board (NPB) in 1981. This allowed the Factory Inspectorate to focus on enforcement activities. In conjunction with NPB, more safety instruction courses were held for shipyard workers and management personnel that year. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 37

MR. LOWWONG FOOK“We had to learn how to deal with industrial safety and health problems from scratch at all levels: worker, supervisor and managerial.” Former Chief Inspector of Factories, Director of Industrial Safety and Divisional Director of Labour Welfare, Ministry of Labour 38

GROWING TO MEET INDUSTRY AND POPULATION NEEDS PIONEER PROFILE There was some improvement but the accident rates soon hit a plateau. So the ‘Yang’ approach alone could not be sustained […] We realised thatFacing All Odds With we had to change tack and began to complement the ‘Yang’ approacha Leader’s Fortitude with the ‘Yin’ approach of building WSH capability through training and education, promoting WSH through organising industry-wide WSHA sk his colleagues to describe Mr. Low Wong Fook, and the phrase campaigns in collaboration with employers and unions, managing change “calm under pressure” might have been uttered. from within factories through requiring the appointment of safety officers Not one to buckle in the face of unfamiliar challenges, Mr. Low proved and formation of safety committees. And, when I engaged in this kind ofhis fortitude at the dawn of his career while he was still a young engineer. ‘Yin’ work, I had to drop the title of Chief Inspector of Factories, whichHis mettle was first tested in 1974, when he took the reins as the youngest could be repulsive to our industry partners, and wear a new hat, bearingChief Inspector of the Factory Inspectorate at the age of 27, a job which put the title of Director of Industrial Safety!”him in charge of administering and enforcing safety and health laws infactories, construction worksites and shipyards in Singapore. The move to complement ‘Yang’ with ‘Yin’ paid off and yielded some good results. The lack of safety awareness was not the only challenge in store forMr. Low. As the Chief Inspector, Mr. Low also had to be the “jack of all “So from the 80s onward, we adopted different approaches in dealingtrades”. In addition to staying in tune with the development of technologies with different factory occupiers and different situations,” Mr. Low explains.in factories, Mr. Low and his team had to master the fundamentals of the “With recalcitrant defaulters, bordering on being incorrigible – we stilllaw in order to carry out their regulatory and law enforcement duties. needed to take stern measures to modify their behaviours.” Or, as Mr. LowSometimes, this meant prosecuting offenders in the then Magistrate’s or calls it, the extreme ‘Yang’ approach.District Court. However, Mr. Low notes that a soft approach is often more effective Mr. Low adds, “We had to learn how to deal with industrial safety in changing mindsets. This is where training and promoting a culture ofand health problems from scratch at all levels: worker, supervisor WSH comes in. “Changing people’s mindset from the inside – that was ourand managerial.” ‘Yin’ approach to convert the unconverted.” Mr. Low is quick to admit that he could not have faced these challenges Mr. Low sums it up neatly: “Enforcement is ‘Yang’. Promotion is ‘Yin’.”on his own. In the face of a steep learning curve, Mr. Low feels lucky to Although they may seem to be polar opposites, both approaches are ofhave had a strong team that he could rely on through thick and thin. With equal importance, asserts Mr. Low.a proud smile, he attributes his success to a good team, and a kind mentor. While reminiscing on his long career, Mr. Low also takes some time “I was very fortunate that my old chief was very willing to teach and to contemplate the string of tragedies that marred the pre-2000s. Aswas very nice to me [... and] that I had a good and energetic team with the person who oversaw the investigations of many major accidents thatvery good problem-solving skills,” Mr. Low reminisces. “In the Ministry, warranted the appointment of Committees of Inquiry such the Spyros andwe were learning on the job from our seniors and from anyone who could Ginza Plaza disasters, Mr. Low knows just how emotionally shatteringoffer assistance.” these tragedies were – both to the victims and their loved ones, as well as those who have dedicated their lives to improving workplace safety. Those industrious years taught him a lot and instilled in him onepowerful insight. That is, those who are involved in the promotion and “The disaster could have easily been avoided had someone notmanagement of Workplace Safety and Health (WSH) would do well if they committed certain unsafe acts just before the accident. All these thoughtsknow how to apply the ancient Chinese concept of ‘Yin’ and ‘Yang’ to their tend to get repeated over and over again [and it] could be very emotionallyadvantage at different stages of WSH development. sapping,” Mr. Low points out. Mr. Low explains: “In the 70s, the law was there but there were In spite of these setbacks, Mr. Low acknowledges that incidents thatinadequacies. Compliance was low. Under the circumstances, we needed occurred should be seen as important lessons, and a galvanising call toto adopt a very interventionist ‘Yang’ approach. Measures taken include do better. “We must adopt a set of core values and build a desired safetyprescribing and legislating WSH requirements and enforcing these culture that is self-perpetuating and self-sustaining,” Mr. Low advises.requirements to ensure compliance. That formed the bulk of the FactoryInspectorate’s work, which I did while wearing the hat of Chief Inspector Mr. Low’s drive to make a difference and bring about higher standardsof Factories. is not limited to the issue of WSH. After leaving the Ministry, Mr. Low joined Singapore Polytechnic as its Principal in 1996 and retired after 12 years. He then served as Director on the boards of Singapore Polytechnic International Pte. Ltd., the National University Health System Pte. Ltd. and Jurong Health Services Pte. Ltd. He still serves as Director on the board of the Society for the Physically Disabled today. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 39

TRANSFORMING TRAGEDIESINTO AN IMPETUS FOR CHANGEWhile many positive strides had taken the WSHjourney to the next level, the decade also saw the rise inindustrial accident numbers, with more than a 300 percent rise in industrial accidents recorded between 1971and 1980. The majority of these cases came from theshipbuilding and repairing industry. Perhaps no industrial disaster left a more indeliblemark on the course of Singapore’s industrial historythan the explosion aboard the Greek oil tanker, Spyros,which occurred in 1978. Till today, the headline-generating accident remains as one of the worstindustrial accidents in Singapore’s post-war history. Seventy-six lives perished and many more wereinjured by the blast that resulted in a flash fire,prompting strong outrage and calls for Singapore’sshipyards to improve their safety practices. This tragedy, as well as other high-profile industrialaccidents such as the Pulau Bukom refinery fire in 1981added fuel to the calls for reformation of industrialsafety and health in Singapore.RIGHT:An on-site investigation was carriedout by the Factory Inspectoratewith specialist assistance from theDepartment of Scientific Servicesand Department of Pathologyfollowing the Spyros disaster.40

GROWING TO MEET INDUSTRY AND POPULATION NEEDS LEFT: Singapore petrochemical complex Pulau Ayer Merbau in 1985.Even with the best MOVING FROM REACTIVE Health Division (IHD). Factories subjected to inspectionstechnology and the TO PROACTIVE encompassed granite quarries, asbestos factories,stringent enforcement of petrochemical complexes such as the one situated atdeterrent legislation, the The decade also saw a profound transition in mindset. Pulau Ayer Merbau, and the underground tunnellingprevention of accidents While early WSH efforts were largely focused on work of Singapore’s Mass Rapid Transit (MRT).in the industry can only responding to existing problems, the rising tide ofgo that far without the accidents encouraged the Government to take an Worksites were also obligated to keep a record ofkey ingredient of the anticipatory approach to safety and health. Problems WSH control measures they had implemented andwill and commitment of were identified and addressed at the earliest possible to keep tabs on the effectiveness of these measures.management and workers stage, and safety risks were nipped in the bud before Protecting the health of workers who worked into make the environment they could escalate to fatal accidents. hazardous environments was another priority.a safe one. Mandatory health examinations were organised to This new mindset was put into action in the detect the occurrence of illnesses at preventable stages.Mr. Ong Pang Boon, former Industrial Hygiene Monitoring Programme. LaunchedMinister for Labour in 1983, the programme saw a transition from previous MOL also cast a closer eye on the construction practices where factory inspections were only done industry by conducting special enforcement operations on an ad hoc basis after problems arose, to one with to weed out negligent contractors. Contractors found regular monitoring. disregarding proper procedures, such as the disposal of materials and engaging in unsafe practices including Under this monitoring programme, high-risk the usage of undersized timber for scaffolds, had strict worksites were identified for inspection checks, to be enforcement actions taken against them. A total of 122 carried out once every three months by the Industrial offenders were also either prosecuted or required to pay composition fines. In 1980, 48 stop work orders were issued to contractors whose sites were extremely unsafe. Stop work orders proved to be a persuasive deterrent for errant contractors. Mr. Ameerali Abdeali, former General Manager of the Occupational Safety and Health Training Centre, explained that contractors often did not feel the pinch of being fined. A stop work order was another matter, as it would cost extra time and money. “You can fine them. They are not afraid,” he shared with a knowing smile. “They can even work it into their budget. But, when you stop their work, they really feel it.” By combining education and engagement with stringent and anticipatory measures, the Government was able to stay vigilant and combat safety negligence more effectively. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 41

RIGHT:Former Ministerfor Labour, Mr. OngPang Boon, urgesshipyards to introduceadditional safetymeasures and applymodern managementtechniques at theopening of theSecond ManagementWorkshop on Safetyin Shipyards atShangri-La Hotel.Over the years, the number BUILDING SAFETY CAPABILITIES operations. To bring about a safety-ready workforce,of members has grown with ACROSS SECTORS SISO made the learning of safety more accessiblethe growing awareness of through wide-ranging avenues. This included trainingthe need for good WSH Raising capabilities was another essential priority sessions, toolbox meetings, safety committee meetingsmanagement and practices in on the WSH agenda. At the time, there was a gap in and safety promotions.various high risk industries. upskilling and professional growth opportunities inFollowing the few high profile the WSH profession. Responding to this need, the Today, SISO remains a vital part of Singapore’saccidents in recent years, the Singapore Institution of Safety Officers (SISO) was safety ecosystem, providing its members with anrequirement and need for established in 1975. invaluable resource as a leading institution for WSHWSH officers became more professionals. Through multiple workshops, seminarsevident and necessary. SISO served as an organisation providing and courses, the enterprise has been steadfast in its representation, promotion and support for members mission to elevate the standards of the safety professionMr. Andrew H.S. Tan, engaged in the practices of WSH. Under SISO, to new heights.Secretary, Singapore Institution the pioneering safety officers held a large scope ofof Safety Officers responsibilities, including helping their employers to Growing steadily from strength to strength, SISO enforce safety regulations and using personal protective now boasts a membership of more than 1,000 safety equipment to protect workers. officers and specialists in occupational health. These safety officers were also in charge of developing safety procedures and rules pertinent to42

GROWING TO MEET INDUSTRY AND POPULATION NEEDS MAKING SAFETY THE TOP PRIORITY IN MRT CONSTRUCTIONBOTTOM: The first half of the 1980s also saw the commencement project was on the same page, two separate safety guidesThe proposed site for the of an important project – the construction of the MRT were published and distributed. One was intended forTiong Bahru Mass Rapid tunnels. As the massive project was set into motion, MRT contractors, while the other was distributed to MRTTransit station. efforts were taken to ensure that the project would be construction workers. carried out with the workers’ safety in mind. When tunnelling works started in October 1984, Mr. Winston Yew, an engineer with the Occupational the MRT Construction Hygiene Monitoring Programme Safety and Health (Training and Promotion) Centre, was launched. The programme included the preparation was sent to Japan in 1984 to learn about safety measures of guidelines, appraisal of control design, regular site associated with MRT works. A working committee was inspections and the monitoring of the work environment. subsequently convened to develop occupational safety In addition, the programme helped ensure appropriate and health training courses for the various levels of preventive measures were taken to minimise potential personnel involved in tunnelling works. These included health risks. To accomplish this objective, IHD met the supervisors and workers handling compressed air works contractors before the start of construction to inform in tunnels as well as attendants of medical-locks and them of the health requirements in tunnelling work. man-locks. The primary goal was to ensure the safety and health of all personnel involved in the construction of the To increase awareness of WSH among contractors, MRT tunnels. a safety competition was also initiated. The competition was the brainchild of then MRT Corporation safety This sub-committee included representatives from advisor, Mr. Arthur Scott-Norman, who helped organise various government bodies, such as the Singapore Fire and judge the competition alongside safety officers Services, the Public Utilities Board, IHD and the Factory Mr. H.H. Ho and Mr. K.S. Lee. Inspectorate. To make sure that everyone involved in the Under this scheme, any MRT contractor who managed three consecutive accident-free months would receive an award. Among factors considered were the number of accidents per month, the amount of man-hours lost and the quality of public safety. At the end of each month, points were tallied and the contractor with the highest points took the prize. Even though not all contractors could emerge as the top champion, everyone was considered a winner in terms of gaining safety knowledge. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 43

TAKING STOCK AND LOOKING AHEAD Throughout Singapore’s second decade of independence, there was a gradual and conscious shift towards proactive policing and enforcement. Coupled with a new focus on inculcating a sense of self-ownership and industry-wide awareness-raising initiatives, Singapore succeeded in reversing the trend of rising industrial accident numbers.I join my officers in the Ministryin being happy that the safetysituation in the shipbuildingand repairing industry inSingapore is changing for thebetter. Workers in shipyardstoday use safety equipment morereadily now than ever before, andmanagement is more conscious ofthe importance of a safe workplace[… The] shipbuilding andrepairing industry has becomeone of the most safety consciousin Singapore.Mr. Eugene Yap, then ParliamentarySecretary (Labour), speech at thelaunching ceremony of the SingaporeAssociation of Shipbuilders andRepairers’ mobile safety campaignon 3 December 1983RIGHT:Participants viewing exhibits during theopening of the Management Workshop onSafety in Shipyards at Shangri-La Hotel.44

CASE STUDYA BOLT OF LIGHTNINGSPARKEPD DUISLASATEUR ABT UKOMTOP: I n the early hours of 18 April 1981, Pulau Bukom’s sleepy neighbourhoodGeneral view of the Shell Refinery at Pulau Bukom. was roused from its slumber when a massive fire broke out at the Shell Bukom oil refinery. The incident was ignited amidst rolling thunderstormBOTTOM: when a bolt of lightning pierced the rubberised rim protector of a 50,000Opening Ceremony of the Shell Refinery at Pulau cubic metre tank containing combustible gasoline.Bukom – Arrival of former Minister for FinanceDr. Goh Keng Swee. In an instant, the tank burst into flames that ravaged the tank and raged on for more than 15 hours. It was up to Shell Bukom’s 40-man firefighting crew to tame the flames and keep it from reaching nearby tanks. Braving heavy downpour and extreme heat, the men fought bravely, but the task ultimately proved too arduous for the small team to handle on their own. Soon, the Singapore Fire Service was tapped to help. More than 100 men – armed with foam and water jets, as well as a fire engine, were ferried over to the island to battle the blaze. Rescue boats also took to the waters to pluck civilians who were not involved in the firefighting operation to the safety of the main land. At about 5.45 p.m., the flames were finally extinguished. However, the damage was not without its costs. A Shell spokesman estimated that the incident was likely to cost the giant oil company millions of dollars. Perhaps one silver lining was the absence of casualties. 50 YEARS, ONE VISION: TRANSFORMING SINGAPORE INTO A NATION OF WSH EXCELLENCE 45

CASE STUDYA BLASSTHTHOATOK THE NATION46