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Introduction

The Japan Construction industry has strong experience in integrating safety

management system with OSH measures into a more effective project

management. The Occupational Safety and Health Council has therefore

organized a benchmarking study on the project management of construction

safety and health in Japan in September 2002. We have interviewed 4 of the

participants, who will share with us in this issue of 'OSH Link' what they

have learnt from the trip.

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�� !"#$%&'()*+,-./01234567Modification of Construction Design and Technology toImprove the Japanese Construction Safety Performance

CHINA STATE CONSTRUCTION ENGRG. (HONG KONG) LTD.

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This is Mr. Tse's first study tour to Japan with the OSHC, it gavehim a deep impression on the Japan’s construction safety performance.He attributes Japan's success in reducing its injury rate per 1,000workers and the serious accidents to the research and developmenteffort of both the government and industry, who actively seek ways toreplace human involvement with machinery in high- risk processes."The construction workers in Japan have bad safety behaviours too.However they have no choice, but to start learning again under thechanging work processes." says Tse.

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Mr. Johnny Tse, Deputy General Manager (Technology Department)China State Construction Engineering (H.K.) Ltd.

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Experience the Japanese way of Construction Safety And Health Management

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Safety Culture Comes with New Technology

The Japan construction industry heavily relies on pre-cast components

and materials. Tse explains this helps to reduce risks such as working

at height. The use of permanent lifts to transport people and

construction materials also saves the cost of installing temporary

passenger lifts and materials hoists and thus reducing the accidents of

construction machinery. All

these makes construction

activities safer and more cost-

effective. Tse attritubes this

readiness to discard old

practices for new innovative

ideas and technology, the

reason behind Japan's success

in promoting safety culture.

Standardisation of Work Process

Tse was particularly impressed that the work processes he saw in several

construction sites looked exactly like those exhibited in the JISHA's

Industrial Safety Museum. As Japan's official OSH promoter, JISHA

strives to set the standards, and endeavours in R&D to seek the best

way to carry out various construction processes or create comfortable

workplaces. It also promotes those 'best practices' to the industry.

Although the law does not require the industry to follow those

examples, it sends a very strong message to the industry that these

standards are what the government expects, and it serves to encourage

the industry to engage in safety improvements.

Integrated Management

Japan adopts an integrated management approach in construction

industry, which considers quality, safety, health, environmental

protection and technology as a package right from the designing/

planning stage, taking care of the need of the surrounding community.

Tse f inds that the

construction costs in

Japan and Hong Kong

are similar, but Japan

can afford the use of

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high-tech methods in construction processes. Although we are using a

similar OSH management method, we are not as effective in cutting

the incidence rate as Japan’s construction industry. He thinks R&D is

the key. Tse hopes developers, contractors, engineers and the

government in Hong Kong can invest more in R&D and develop

better technologies, and standardise work processes. While the main

contractors should establish and promote an integrated management

system so as to nurture a new construction and safe culture that is

cost-effective and socially responsible.

�� !=�=�� !"#$%&'()*"+,Japanese Experience�=Work Planning and Safety Assessment for the Tunnel Project �� �� !

�� !"#$%Mr. Desmond Chan Wai-Yin, Project Manager

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The study tour visited the construction site of a 2.2 km long tunnel

in Tokyo, which is a small section at the southern end of the 58 km-

long Tsukuba Express Railroad. Part of the tunnel project is located in

Asakusa, a famous tourist spot where festive activities are frequent.

The surrounding environment and transport safety are two major

concerns in developing the project.

Automated Boring Process

Mr. Chan is most impressed with the fact that he saw only few

workmen inside the tunnel. "Even in the tunnel construction in other

well-developed countries you could see relatively more people inside;

but this one is nearly all automated. The only manual part is to secure

the bore in place.' Behind this automated process is a control room

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where supervisors can monitor the situation within the tunnel.

Through a PHS phone system, control room operators know exactly

who is inside the tunnel, and the signals transmitted from the phone

system can also show exactly where the people are located.

An Extremely Detailed Safety Assessment

Chan thinks there are two reasons behind Japan's quest for automation:

One, their value for life, and two, an extremely detailed safety assessment

prior to work starting. "In the short-term, the assessment can help

identify hazards and relevant measures can be introduced to reduce

risk. In the long-term, it offers topics for further R&D effort to see

whether the work processes can be automated or changed."

"The actual assessment will involve assessing all work processes in a

tunnel project, evaluating and grading the risks involved, and making

relevant work suggestions that also answer safety concerns. This

assessment report will need to be approved by the Ministry of Labour,

which will only give its approval when everything in the report meets

with its requirements. Without this approval, the project cannot start."

He believes that Japan’s contractors are willing to use better methods so

as to gain quicker approval from the government.

The Value For Life

Chan also believes that because Japanese treat lives above everything,

they will try their best to improve work processes or replace manual

ones with automation whenever possible to protect their workers. It is

this mindset that drives

R&D, and a detailed safety

assessment provides the basis

for research. He would like to

see cooperation between the

g o v e r n m e n t , O S H C ,

developers and the industry to

nurture in Hong Kong a

safety culture with such a

mindset, and he feels the

government, which handles

all occupational accident data,

is in the best position to study

accident trends and suggest

safety strategies.

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�� !"#$%&�� !"#$%&Strategies for Enhancing the Construction Safety andHealth Management in Japan

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Mr. Tam Kin-Kay, Construction ManagerpÜìá=lå=`çåëíêìÅíáçå=~åÇ=j~íÉêá~äë=iáãáíÉÇ

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These are some problems that Japan’s construction industry is facing:

rapid increase in small and medium sized contractors, multi-layered

contractor system, a lack of skilled workers and so on. The situation is

very similar to that in Hong Kong, "But the difference lies in their

'order placer' system. This makes any order-giving party, such as a sub-

contractor who further contracts out work, responsible for the

performance of the order taker." Tam explains. "In Hong Kong, however,

there is no such accountability system and that causes a big responsibility

gap between the main contractor and frontline workers."

Clear Division of Labour, Clear Responsibilities

Tam thinks one of the Japan's strategies to enhance safety is through

clearly defining different parties' safety responsibilities in law. "Under

Japanese law, the OSH management system in its construction industry

is divided into 2 categories: employer-employee relationship, and main

contractor and sub-contractor relationship. Work sites need to hire

relevant safety personnel according to their size to manage work safety.

The qualifications and responsibilities of these personnel are also clearly

laid out in the legislation."

The law stipulates that work sites hiring 50 employees or more need

to set up under the employer a safety and health committee, an

industrial physician, safety supervisor and an

operational chief. Sites with 100 or more

employees need to have an extra general safety

and health supervisor post established right under

the employer. This person is normally appointed

from the company's top management. His

6

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responsibilities include

gu id ing the above -

mentioned positions, and

p e r f o r m i n g ov e r a l l

management including

education, health checks,

studying accident causes

and devising preventive

measures.

In a broader sense, the

Japanese law requires the

conducting of 5-year industrial accident prevention plan with the

Minister of Labour being the top responsible person. There is also an

executive plan every year to help implement each 5-year plan.

SWC & KYK: The Root of Safety Culture

Safe working cycle (SWC) and hazard identification activities (KYK)

have been implemented in Japan for nearly 30 years. They have been

naturally integrated into work. That is why Tam finds it amazing when

their Japanese counterparts still mention the two names everyday

during the trip. It shows how deep the two concepts have taken roots

in their minds. "I've been asking myself, where does Japanese safety

culture comes from? I believe it must have come from SWC and KYK,

because they help establish channels of communication, and give

frontline workers more chances to express their opinions. These two

safety processes promote team spirit through worker involvement."

Hong Kong has launched the SWC for more than two years. Hopefully

we are going to set the right track of cultivating safety culture in the

construction industry.

7

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Role of Client in the Project Managementof Construction Safety and Health

�� �� �� Mr. John Kwong, Engineer,Drainage Services Department

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As the 'boss' of construction projects, clients pay contractors to build,expecting them to complete the job on time and within budget. "Butif contractors could not manage the OSH matters, property clientscould be affected as the project might be delayed, revenue might belost, company image might be tarnished and also they might face civilclaims for damages." Mr. Kwong says, in theory, it is reasonable forclients to expect that after paying for the works, contractors will bearthe OSH responsibility in construction projects. With all the aboveconcerns in mind, it is in the client's interest to take a stronger role inthe aspect of OSH, other than just paying for the works.

The Position of Sub-contractors

Multi-layer sub-contractinghas been identified as a causeof hindering the developmentof safety culture in the HongKong construction industry.Surprisingly, Japan seems tohave successfully managed aneven more sophisticated sub-contracting system. "In abuilding site that I have visitedin Japan, it has as many as 200sub-contractors!" said Kwong.While in Hong Kong, the contractual relationship is only betweenthe client and the main contractor. In Japan, they have formalisedthe operation of sub-contractors. "Japan's Industrial Safety and Healthlaw states that if an order-placer gives an illegal order, sub-contractorshave the right to disobey it. This clearly recognises the position ofsub-contractor and spells out the relationship between a client and asub-contractor."

He quoted another example from the trip, "In Japan, some of thesub-contractors complained to the government that they have beenunderpaid by their main contractors. As a result, the Tokyo WorksBureau will stipulate in their contracts that the main contractor has topay no less than 80% of the contract sum to the sub-contractors, in

8

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“OSH Link” is a bilingual newsletter pubished by the Occupational Safety

& Health Council. The Council accepts no responsibility for any views

expressed in any articles published in the “OSH Link”.

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order to protect the latter's interest." Since sub-contractors' positionare formally recognised, they are also bound by law to takeresponsibility for ensuring safety and quality in construction.

The Role of Clients in OSH

In Japan, clients seldom need to spell out their OSH requirements.Their emphasis is on main contractors and sub-contractors. In HongKong, we are trying to encourage clients to be more proactive inrespect of OSH. The Environment, Transport and Works Bureau,for example, has successfully demonstrated that by incorporatingrequirements in the contract such as 'Pay for Safety', independentsafety audits and SWC, contractors' performance in respect of OSHcan be greatly enhanced.

Kwong believes that, as a client, if the government can promote theCDM concept through his projects, i.e. consider safety and healthmanagement factor at the project design stage, this will help buildan atmosphere for cultivating a safety culture in the constructioni n d u s t r y . W h e ncontractors get used tothinking safety, theculture can also be takento projects in the privatesector. Once safetya w a r e n e s s i s w e l lestablished, we do nothave to rely on contractstipulations to achieveOSH on constructionsites.

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