1. INTRODUCTION
1.1 Industries cannot operate without chemicals. Some chemicals have the potential to seriously endanger life and pollute the environment. Such chemicals have to be carefully managed at all times to prevent any accidental release.
1.2 In Singapore, about 3,000 factories use chemicals in their manufacturing processes. The scale of such factories ranges from small electroplating firms storing a few kilograms of chemicals to large industrial plants with bulk tanks storing thousands of metric tonnes of chemicals. The vibrant manufacturing sector creates the need for large amounts of chemicals to be imported and distributed in Singapore.
1.3 Singapore is an island of about 646 square kilometres in area. The average population density in Singapore is about 4,500 people per square kilometre. Such a high population density makes it imperative for chemicals to be controlled so that public exposure to accidental release is minimised, if not avoided.
1.4 Large parts of Singapore are used as water catchment areas. It is necessary to ensure that chemical storage facilities and transport of chemicals avoid such areas as far as possible. This is to prevent pollution and to protect drinking water sources against contamination.
1.5 The control of hazardous chemicals comes under the purview of the Pollution Control Department (PCD) of the Ministry of the Environment. The hazardous chemicals under control are listed in the Poisons Act and its Rules. These chemicals include those that:
1.6 In general, persistent organo-chlorine pesticides, except chlordane are not allowed for local use. This had helped to minimise any release of persistent organic pollutants (POPs) into the environment. Chlordane is permitted only for use in anti-termites soil treatment in areas outside water catchments, and all users are required to comply with stringent conditions to prevent pollution.
2. STRATEGY OF CONTROL
2.1 In Singapore, the strategy adopted to control hazardous chemicals is as follows:-
2.2 The control programmes based on the above strategy for the control of hazardous chemicals are implemented through the following:
(a) Planning and Building Plan Control
(b) Licensing Control
(c) Monitoring and Enforcement
(d) Education and Training
3. PLANNING AND BUILDING PLAN CONTROL
3.1 The potential disaster that can occur from an accident involving a hazardous chemical can be avoided or mitigated through proper planning. In Singapore, land-use zoning produces a clear demarcation of industrial and residential zones.
3.2 All new building development proposals, including installations with bulk storage of hazardous chemicals, have to be vetted by PCD before planning approval for the building is granted. Industries which use or handle large quantities of hazardous chemicals are sited away from residential areas and water catchment areas, and are permitted only in designated industrial zones. In addition, the routes to be used for transportation of bulk quantities of hazardous chemicals are specified to avoid transport through populated areas and water catchments as far as possible. These measures have helped to minimise public exposure to the risks and safeguard our scarce water resources.
3.3 PCD also vets the building plans of all proposed developments to ensure that industries incorporate technical measures into the design of their facilities to prevent and mitigate any accidental releases of hazardous chemicals.
4 LICENSING CONTROL
4.1 The licensing control of hazardous chemicals prevents unauthorised persons from handling such chemicals and ensure proper safeguards are taken at all times in the handling of the chemicals to prevent accidental releases and mitigate any adverse effects if they should occur.
4.2 The licensing controls are implemented under the Poisons Act and the Poisons (Hazardous Substances) Rules. The legislation control the import, export, sale, storage, transportation and use of hazardous chemicals. The hazardous chemicals controlled under the legislation are listed in Annex 1.
4.3 Under the legislation, a Poisons Licence is required to import, sell or export hazardous chemicals. A Poisons Licence is normally held by wholesalers and distributors of chemicals.
4.4 The legislation also require any person who wishes to buy, store and/or use hazardous chemicals to apply for a Poisons Permit from PCD. A Poisons Permit is normally held by users of the chemicals.
4.5 PCD will issue the Poisons Licence or Permit on condition that :-
(a) The storage location is in a suitable industrial area outside water
catchment;
(b) The types and quantities of hazardous chemicals are commensurate with the process or
activity carried out by the factory concerned. In every case, the inventory of hazardous
chemicals should be kept at a minimum; and
(c) Adequate measures such as containment areas, leak detection and warning devices,
proper emergency action plans, neutralising agents, handling gear, absorbent material,
etc., are provided to prevent and mitigate any accidental release of the hazardous
chemical.
4.6 Poisons Licence and Permit holders are required to keep records of stock movements of hazardous chemicals. They are also required to submit emergency action plan for dealing with any accidental release of the chemicals if large quantities of hazardous chemicals are stored in their premises.
5 LABELLING
5.1 The Poisons (Hazardous Substances) Rules, 1986 also stipulate that containers holding hazardous chemicals must be labelled according to an approved Code of Labelling, such as the Singapore Standard 286.
5.2 The caution label required by the Singapore Standard 286 for containers is similar to the UN class label in the International Maritime Dangerous Goods (IMDG) Code. The labelling required for the various classes of hazardous chemicals is shown in Annex 2.
6 TRANSPORTATION
6.1 The transportation of any hazardous chemical in an amount exceeding a quantity prescribed in The Poisons (Hazardous Substances) Rules 1986 requires a written approval from PCD. Only Poisons Licence or Permit holders may apply for such Transport Approval.
6.2 A Transport Approval is given subject to the following conditions :-
(a) The containers conveying hazardous chemicals must be designed,
constructed and tested in accordance with an acceptable Code of Practice;
(b) Drivers of the vehicles or tankers carrying hazardous chemicals must have attended a
training course on 'Handling and Transportation
of Dangerous Substances';
(c) The routes used must be approved; (only routes shown in Annex 3 may be used.)
(d) The transportation is restricted to the hours of 9.00am to 5.00pm; and
(e) An adequate emergency action plan must be put up to deal with any accidental release
of the hazardous chemical.
6.3 The Codes of Practice accepted by PCD are recognised international standards, such as the European Agreement concerning the International Carriage of Dangerous Goods by Road (ADR), the United Nations Recommendations on the Transport of Dangerous Goods and the International Maritime Dangerous Goods Code.
7. MONITORING AND ENFORCEMENT
7.1 Any control system, no matter how well crafted, will not be effective without rigorous enforcement. Enforcement will ensure that the minority of companies which violate the controls are penalised accordingly and would not gain unfairly from their violations.
7.2 Without rigorous enforcement, companies that originally comply with the controls may become complacent and pay less attention and efforts in ensuring their operations continue to be safely managed.
7.3 All imports of hazardous chemicals are monitored electronically through the
'Tradenet System' which requires traders to make import declarations on the types and quantities of hazardous chemicals they are importing.7.4 PCD officers also carry out audit checks to ensure the safe storage and handling of hazardous chemicals at the factories and chemical warehouses. Surprise road checks are also carried out jointly with the Traffic Police and Fire Safety Bureau to ensure that hazardous chemicals are transported with the necessary approval and in accordance to requirements.
8 EDUCATION AND TRAINING
8.1 An important area which contributes to good and effective implementation of the controls is to encourage and develop appropriate training and education programme for industries. PCD has worked with the relevant government agencies and industry organisation such as the Singapore Chemical Industry Council to set up training courses, workshops and briefing for industries.
8.2 PCD has jointly with the Maritime and Port Authority (MPA) and Fire Safety Bureau (FSB) set up a special training course viz.
'Handling and Transportation of Dangerous Substances' for drivers of vehicles and tankers carrying hazardous chemicals. More than 1,000 drivers had undergone the specialised training course. These drivers are also required to attend refresher courses once every three years.
9 CONCLUSION
9.1 Hazardous chemicals including persistent organic pollutants (POPs) have the potential to seriously endanger life and pollute the environment. Such chemicals have to be carefully managed at all times to prevent any accidental release. In Singapore, although control programmes for hazardous chemicals are in place, these programmes need to be reviewed regularly and further strengthened where necessary to take into account the latest technology developments and research findings in other countries.