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Press Conference on Government's Response to the Committee of Inquiry's Report on the Nicoll Highway Collapse 
Posted on Tuesday, May 17, 2005 - 12:00 AM

In a Press Conference on 17 May 2005, the Ministry of National Development accepts the Committee of Inquiry?s (COI) findings on the causes of the Nicoll Highway Collapse and agrees with its key recommendations.

The Minister's speech is as follows:-

SPEECH BY MR MAH BOW TAN, MINISTER FOR NATIONAL DEVELOPMENT

Press Conference on Government’s Response to the Committee of Inquiry’s Report on the Nicoll Highway Collapse, 17 May 2005

Statement by the Minister for National Development

The Ministry of National Development accepts the Committee of Inquiry’s (COI) findings on the causes of the collapse and agrees with its key recommendations.

Safety at Existing Deep Excavation Sites

2 First, I would like to reassure the public about the safety of existing deep excavation sites. Following the collapse of Nicoll Highway, BCA asked LTA to suspend deep excavation works for all the Circle Line sites, pending a comprehensive review of the design and construction pertaining to deep excavation at these sites. Work at these sites were progressively released only after BCA was satisfied that the design of temporary works and monitoring measures were adequate. BCA continues to monitor closely the works at the Circle Line sites, as well as other sites where deep excavation works are being carried out.

3 Next, the COI has recommended that a code of practice for deep excavation works be developed. This is to provide guidance to designers and builders on how to strengthen the design robustness and construction of deep excavation works. MND supports this. A technical committee under Spring Singapore, comprising members from BCA, MOM, LTA, the universities and other practicing professionals, is working on a Singapore Code on Deep Excavation and hopes to get this ready soon.

4 While details of this Code are being finalised, BCA has in the interim issued an advisory note to the industry. This advisory is to set preliminary standards for the design and construction of Temporary Earth Retaining Structures (TERS) in deep excavation works.

Joint MND-MOM Construction Safety Review

5 Together with the Ministry for Manpower, my Ministry set up a Joint Review Committee (JRC) about a year ago to thoroughly review the regulatory framework and practices of the construction industry, with the aim of improving safety standards.

6 While the COI recommendations were based on findings on the causes of the Nicoll Highway collapse, the JRC reviewed the whole construction value chain from design to procurement and construction, and assessed the gaps and weaknesses in the system, taking into account the human factor. In the course of its work, the JRC also took into consideration the lessons and findings from the COI inquiry.

7 These two investigations complement each other and will ensure that our effort to strengthen the safety regime in construction is thorough and comprehensive. The JRC proposals will address all the COI recommendations.

JRC Recommendations

Regulatory Framework and Competence of Professionals

8 The COI pointed out that temporary works pertaining to deep excavation were not regulated to the same degree as permanent works. MND agrees with this observation.

9 To enhance the regulation of deep excavation works and ensure the competence of personnel involved in such works, BCA will be implementing the following measures, as recommended by the JRC:

• First, professional engineers (PE) who are specialists in geotechnical engineering will be required to design and supervise the Temporary Earth Retaining Structures (TERS) in deep excavation.
• Second, PEs will be required to show proof that they have attended accredited courses on critical design codes and the software used in their building plan submissions.
• Third, supervision teams of engineers, in various numbers and with stipulated years of professional experience and qualification, will be required to supervise structural works, depending on the size of the project.

Chain of Command and Independence

10 The COI also highlighted the importance of having a well-established chain of command, and independence for the QP (Supervision) to perform his role free from cost and time pressures.

11 Currently, the Building Control Act prohibits the QP (Supervision) from being associated with the builder, but not the developer. MND accepts the COI’s observation that this gives rise to potential conflict of interest. I have asked BCA to follow up on the JRC’s recommendation to review the usual relationships QPs have in the industry, with the developer, project manager, and other parties involved in a construction project, with a view to reinforce the independence of the QP.

12 As another layer of independent checks on the designs of TERS in deep excavation, BCA will require Accredited Checkers (AC) specialised in geotechnical engineering to review these designs. As with the ACs for permanent works, these AC (Geotechnic) will have to be appointed by the owner or client, not the builder.

13 I also agree with the JRC’s recommendations that the Building Control Units (BCUs) of LTA, JTC and HDB should be discontinued and their functions centralised at BCA. BCA will rescind the authorisation granted to the BCUs of LTA, HDB and JTC, and assume direct charge for the regulation of the building projects of these three statutory boards.

14 Since 1995, BCA had authorised the BCUs of LTA, JTC and HDB to carry out building control functions for projects under their respective purview. This arrangement has enabled these statutory boards to have better control over the implementation of their extensive development and building programmes.

15 The BCUs have built up a pool of competent professionals and established internal quality control mechanisms to effectively regulate the projects under their purview. However, as the statutory boards take on multiple roles as developer, designer, contractor and regulator, there is a need to remove any doubts that BCU staff will undertake their work with impartiality and independence, and to maintain public accountability and confidence in the regulatory system. Furthermore, the centralisation of building control functions at BCA will improve the regulatory framework. For example, there will then be only one authority who will oversee works pertaining to deep excavation.

Corporate Competency and Safety Considerations in Selection

16 My Ministry has also accepted other JRC recommendations aimed at promoting corporate competency and safety culture. These are being worked on by BCA.

17 One of the key recommendations is to license builders (or contractors). We will require all builders who wish to undertake works that need building control approval to have a licence. In addition, specialist contractors whose works have a high impact on safety will also need a licence. Such specialist contractors include those engaged in piling works, earth retaining and ground-stabilisation works, and soil investigations and instrumentation. To obtain a licence, the builder must satisfy some principal considerations, including a good safety records, adequate financial and technical resources, and competent or qualified persons responsible for the management of the firm and the construction activities. These are aimed at raising the competency of contractors.

18 Although the COI concluded that the tender selection of the Nicoll Highway contract (C824) was not a problem, it recommended that in tender evaluation, some weightage should be given to the safety records and culture of the bidder and its corporate competency. The JRC has also recommended that the Government formalise the safety considerations in its procurement system for construction works. It recommended the adoption of a Price-Quality Method (PQM) for tender evaluation that the BCA developed, which will mandate the use of both price and quality attributes, with safety as a mandatory quality attribute. The Government has accepted this JRC recommendation.

Conclusion

19 In conclusion, I would like to reiterate that my Ministry is committed to ensuring construction safety. The measures proposed by JRC, when implemented, will strengthen the regulatory framework and raise safety standards and professionalism and competency in the industry.

20 I want to urge everyone involved – developers, professionals, contractors, workers etc, to support and work closely with the various authorities to evolve a safety culture that permeates throughout the construction value chain. We must all be mindful of our roles and responsibilities and the consequences of our actions on construction safety. Let’s work together, because precious lives are at stake.