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Clean Air Asia and FECO-MEP’s 10th China City Air Quality
Management Workshop, Beijing, China
Singapore’s Emergency Preparedness
for Transboundary Haze
24 June 2014
Indrani C Rajaram
Chief Scientific Officer/Project Director
Pollution Control Department, National Environment Agency
1
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• Air Pollution and Control Strategies
• Air Quality Monitoring and Reporting
• Transboundary Haze Affecting Singapore
• Whole-of-Government (WOG) Response to Haze
• Enhancements to Air Quality Reporting and Health Advisory in 2014
• Contingency Plans for Schools and Workplaces
• Preparations for 2014 Haze Season
Outline
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1 Air Pollution and Control Strategies
3
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Singapore’s air quality has steadily improved over the years
PSI in the ‘Good’ range 94% of the time in 2013,
compared to 70% 15 years ago
68
49
61 64
49
70 65
70
83 82
93 88 88
85
95 96 91 93 96 93 94
32
46
39 36
48
30 35
30
17 18
7
12 12 14
5 4 9 7
4 7
4 5 3 1 1 1
0
20
40
60
80
100
93 94 95 96 97 98 99 00 01 02 03 04 05 06 07 08 09 10 11 12 13
% o
f D
ays
AIR QUALITY IN TERMS OF PSI (1993 TO 2013)
Good Moderate Unhealthy Very Unhealthy4
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Air Pollution and Control Strategies
• Motor vehicles e.g. diesel vehicles account for about 50% of PM2.5
• Industries e.g. refineries & power stations account for more than 80% of SO2
Domestic sources of air pollution
• Smoke haze from land and forest fires in the region
Transboundary sources
• Integrated urban & industrial planning
• Development control
• Legislation, enforcement programme and monitoring
Air pollution management & control strategies
• SO2 and PM2.5 are of concern • NO2 and CO meet WHO AQGs. PM10 and ozone are marginally above WHO AQG
Pollutants of concern
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2020 Air Quality Targets for Singapore
Pollutant Singapore Targets
By 2020
Long Term Targets
Sulphur dioxide (SO2) 24-hour mean : 50 µg/m3
(WHO Interim Target)
Annual mean : 15 µg/m3
(Sustainable Singapore Blueprint)
24-hour mean : 20 µg/m3
(WHO Final)
PM2.5
Annual mean: 12 µg/m3
(Sustainable Singapore Blueprint)
24-hour mean: 37.5 µg/m3
(WHO Interim Target)
Annual mean: 10 µg/m3
24-hour mean: 25 µg/m3
(WHO Final)
PM10 Annual mean: 20 µg/m3
24-hour mean: 50 µg/m3
(WHO Final)
Ozone 8-hour mean: 100 µg/m3
(WHO Final)
Nitrogen dioxide (NO2) Annual mean: 40 µg/m3
1-hour mean: 200 µg/m3 (WHO Final)
Carbon monoxide (CO) 8-hour mean: 10 mg/m3
1-hour mean: 30 mg/m3
(WHO Final)
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2 Air Quality Monitoring and
Reporting
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• Air quality monitoring undertaken by the Pollution Control Department
• Telemetric Air Quality Monitoring and Management System:
- 14 fixed air quality monitoring stations and a mobile station
- Continuous monitoring of PM10, PM2.5, SO2, Ozone , CO and NOx
- 9 more stations by Aug 2014
• Continuous monitoring of 56 VOCs using GC-FID Detection system
Air Quality Monitoring
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Air Quality Reporting- Pollutant Standards Index (PSI)
• Since 1991 daily air quality levels reported in terms of the PSI
based on PM10, SO2, Ozone, NO2 and CO
• 3-h PSI based on 3-h average PM10 concentrations is reported
during haze period
• Air quality reporting system has been enhanced in Aug 2012
and 1 Apr 2014
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• In Aug 2012, as part of a transition to a more comprehensive air
quality reporting system to provide useful air quality information to the
public, NEA started releasing PM2.5 readings in addition to the PSI.
Concentrations of PM10, SO2, NO2, CO and O3 were also published.
• PSI readings were released 3 times a day at 8 am, 12 noon and 4 pm
daily for the north, south, east , west and central regions of Singapore
on NEA’s website and through NEA’s MyEnv Apps.
• Health advisories for haze were issued based on PSI taking into
consideration PM2.5
Enhancements to Air Quality Reporting System in Apr 2012
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3 Transboundary Haze Affecting
Singapore
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Transboundary Smoke Haze Affecting Singapore
• Transboundary smoke haze from land and forest fires during the traditional
dry season from June to October has been a perennial problem in the
southern ASEAN region in the past decade. Situation in some years is
aggravated by the El Nino phenomenon.
• These fires are caused mainly by land clearing and ‘slash and burn’
agricultural practices in Indonesia, particularly Sumatra and Kalimantan.
• Peat lands in the region are also prone to fires during the dry season.
• Smoke haze from such activities can be carried over to Singapore and is
dependent on factors such as the proximity and extent of the fires, the
strength and direction of the prevailing winds, and the incidence and
amount of rain.
• Singapore saw its worst haze episode in 2013 when the 24-hour PSI hit an
unprecedented high of 246 on 20 June 2013, exceeding the levels during
the 1994 (Highest PSI 142), 1997 (Highest PSI 138) and 2006 (Highest
PSI 128) haze episodes.
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• Jun 2013 – Onset of Southwest Monsoon season and the traditional
dry season in the southern ASEAN region
• Smoke haze from land and forest fires in central Sumatra started
affecting Singapore on 13 Jun 2013
• 14th to 19th Jun, hotspot activities increased in Sumatra and smoke
plumes were observed in central Sumatra in Riau. Hotspot counts
increased from 48 (14th Jun) to 173 (19th Jun) and reached a
maximum of 437 on 24th Jun.
• Prevailing winds were SW/W during the haze period.. Wind changed
from SW to South/Southeast from 24th Jun13 bringing about an
improvement in air quality
• Air quality went into the ‘Unhealthy” range on 5 days and “Very
Unhealthy” range on 3 days
Jun 2013 Haze Episode
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Haze Situation - 19 Jun 2013 & 24 Jun 2013
NOAA 18Satellite 19 Jun 2013 0752UTC
4:36pm, 24
June 2013
Dumai Muar
KL
Singapore
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Singapore’s Air Quality : 24-hr PSI - 13 Jun to 1 Jul
5 days in “Unhealthy” range
3 days in “Very Unhealthy” range
0
50
100
150
200
250
300
PS
I
(North) (South) (East)
(West) (Central)
D
Date/ Time
Good (0 - 50)
Moderate (51 - 100)
Unhealthy (101 - 200)
Very Unhealthy (201 - 300)
21 Jun: 24-hr PSI 239
20 Jun: 24-hr PSI 237
22 Jun: 24-hr PSI 246
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Air Quality Situation in Peninsular Malaysia - 21 Jun to 23 Jun 2013
Date Area with Highest 24-h
API at 7am
Area with Highest 24-h
API at 11 am
Area with Highest 24-h
API at 5 pm
21 Jun
Pasir Gudang, Johor
(API: 310, Hazardous)
Pasir Gudang, Johor
(API: 323, Hazardous)
Muar, Johor
(API: 273, Very
Unhealthy)
22 Jun Muar, Johor
(API: 276, Very
Unhealthy)
Muar, Johor
(API: 373, Hazardous)
Kota Tinggi, Johor
(API: 189, Unhealthy)
23 Jun Muar, Johor (API: 746, Hazardous)
[Malacca: 334 – 357,
Hazardous]
Muar, Johor
(API: 690, Hazardous)
[Malacca: 415 – 428,
Hazardous]
Muar, Johor
(API: 507, Hazardous)
[Malacca: 373 – 443,
Hazardous]
Note:
Dumai (Riau) to Muar (Johor) : 130 km
Dumai (Riau) to Singapore : 265 km
Muar (Johor) to Singapore : 195 km
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4 Whole-of-Government (WOG)
Response to Haze
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• Arising from the 1994 haze which affected Singapore badly, an
inter-agency Haze Task Force has been formed to deal with the
smoke haze.
• The HTF coordinates the actions of 23 ministries and government
agencies to mitigate the impact of haze on the public, in particular
the more vulnerable sections of the population such as the young
and elderly.
• HTF is chaired by NEA.
• HTF has in place Haze Action Plans, which will be activated should
the 24-hr PSI exceed 100 and go into the “unhealthy” range.
• Agencies/Ministries have haze support plans for areas they
oversee
Haze Task Force
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Haze Support Plans
Haze Support Plans cover the following areas:
Areas Description
Environment • To advise on the environmental impacts of haze
• To provide air quality monitoring data and updates on the
meteorological conditions
Health and Safety • To provide advisories on health impacts of potential health impacts
of smoke haze
• To advise on worker safety issues
Transport
(Land, Aviation and
Maritime)
• To alert and provide advice to the transport operators in the event
where visibility is reduced
Public
Communication
• To ensure a coordinated and WOG communication effort
Infrastructures and
Facilities
• To provide recommendations on building design and layout so as
to mitigate the impact of haze on indoor air quality
Education and
Community
• To provide advice and ensure the smooth operation of educational
institutes and the community
Security • To moderate training of security forces during a smoke haze event
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• Concerns about the use of N95 masks and availability of
mask
• Concerns about timely and accurate information regarding the
haze being released to the public.
• Worries about stop work or school closure
• Unhappiness that not enough is being done to stop the
regional haze
Public Reaction to the Jun 2013 Haze
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Coordinated Response to Jun 2013 Haze
As 3-h PSI exceeded 200 on 19 Jun, the multi-agency Haze Task Force
(HTF) was convened
When 3-h PSI soared to 321 on 19 Jun 2200hrs, Minister (MEWR) gave a
press conference to inform Singaporeans on the haze situation
As haze worsened on 20 Jun, PM Lee announced the formation of the Haze
Inter-Ministerial Committee to spearhead WOG efforts
Multi-agency approach adopted to develop health advisory for different
segments of the public and for workers
Multi-pronged approach to assure public, including dissemination of
information, releasing stockpile of masks to public, release of sectoral plans
for different segments such a schools, childcare centre, etc
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Medical Subsidy Scheme for Jun 2013 Haze Episode
• A Haze Subsidy Scheme was introduced by the government on 21 June
2013 when air quality went into the “Very Unhealthy” range
• It was implemented as a special scheme to ensure that vulnerable groups
of Singaporeans had convenient access to affordable treatment for haze-
related conditions.
• Under this scheme, medical fees were capped at $10 for eligible
Singapore citizens seeking treatment at participating GP clinics or
polyclinics for haze-related conditions, with Ministry of Health (MOH)
subsidising the remaining costs for the patient.
• More than 670 GP clinics participated in the scheme. Over 17,000 haze-
related attendances were seen at the GP clinics and polyclinics, with
close to $500,000 in government subsidies provided.
• With the end of the dry season in the region, and assessment that the
likelihood of trans-boundary haze affecting Singapore for the rest of 2013
was low, the Haze Subsidy Scheme ceased on 31 Oct 2013.
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• Public demand for N95 masks rose sharply due to the sudden onset of
haze of the severe haze situation. This resulted in a supply shortfall
among retailers
• MOH pushed out their stockpile of N95 masks for flu pandemic into the
market to alleviate shortfall
• A distribution scheme was worked out by the government agencies to
disseminate masks to retailers as well as to the needy and vulnerable
residents via grassroots channels and People’s Association.
Availability of Mask during Jun 2013 Haze
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Dissemination of Air Quality Information
• NEA increased frequency of reporting
air quality readings from 3 times a day
to hourly and round the clock
• New microsite www.haze.gov.sg with
links to key government websites was
set up to serve as a one-stop portal for
the public to view all haze-related
information
• 24-h PSI forecast for the next 24 hours
and health advisory was issued daily at
6 pm
• Daily press briefings were held to
address media queries and provide
haze situation updates
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5 Enhancements to Air Quality Reporting
and Health Advisory in 2014
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• In Apr 2014, NEA moved to a unified air quality reporting system which
incorporates PM2.5 into the PSI. PSI is now based on the worst of 6 pollutants
( PM10, PM2.5, SO2, NO2, CO and O3)
• 3-hour PSI readings reported during haze enhanced to take into
consideration PM2.5, to better reflect up-to-date PM2.5 readings in a
responsive manner during periods of smoke haze
• 1-hour PM2.5 concentration levels were also made available.
• Enhanced PSI offers continuity from the previous PSI reporting system and
builds on a system that is well understood and that the public is accustomed
to and refer to for guidance on their daily activities.
• Due to the incorporation of the PM2.5 into the PSI, more days will be
classified as ‘Moderate” compared to before, even though the air quality has
not changed.
Enhanced Air Quality Reporting System from 1 Apr 2014
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Breakpoints for Revised PSI
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Reporting of Air Quality Data
• Air quality information is updated hourly
• Information is available on the NEA website (www.nea.gov.sg),
the haze microsite (www.haze.gov.sg), NEA Facebook
(www.facebook.com/NEASingapore), NEA Twitter (@NEAsg) and
smart phone app, MyENV.
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Understanding revised 24-hr, 3-hr PSI & 1-hr PM2.5 Concentration
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Revised Health Advisory for the General Public The health impact of haze is dependent on one’s health status (e.g. whether one has pre-existing chronic
heart or lung disease), the PSI level, and the duration and intensity of outdoor activity. Reducing outdoor
activities and physical exertion can help limit the ill effects from haze exposure. Persons who are not
feeling well, especially the elderly and children, and those with chronic heart or lung conditions, should
seek medical attention.
24-hour PSI Healthy persons Elderly, pregnant women,
children
Persons with chronic lung
disease, heart disease
≤100
(Good/Moderate) Normal activities Normal activities Normal activities
101 – 200
(Unhealthy)
Reduce prolonged or
strenuous outdoor physical
exertion
Minimise prolonged or
strenuous outdoor physical
exertion
Avoid prolonged or strenuous
outdoor physical exertion
201 – 300
(Very Unhealthy)
Avoid prolonged or
strenuous outdoor physical
exertion
Minimise outdoor activity Avoid outdoor activity
>300
(Hazardous) Minimise outdoor activity Avoid outdoor activity Avoid outdoor activity
Prolonged = continuous exposure for several hours
Strenuous = involving a lot of energy or effort
Reduce = do less
Minimise = do as little as possible
Avoid = do not do
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Posters on Health Advisory
http://www.moh.gov.sg/content/moh_web/home/pressRoom/Current_Issues/2014/haze.html
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Revised Health Advisory: Employers and Employees
24-Hour PSI Healthy
employees Elderly, pregnant
employees Employees with
chronic lung
disease, heart
disease
General measures to be taken by employers
≤100 (Good/Moderate)
Normal activities Normal activities Normal activities Initiate preparatory measures to protect the safety and
health of employees against the effects of haze
101-200
(Unhealthy) Reduce prolonged
or strenuous outdoor
work
Minimise prolonged
or strenuous outdoor
work
Avoid prolonged or
strenuous outdoor
work
Take risk mitigating measures such as use of
mechanical aids, job rotation, instituting indoor rest
breaks, ensuring adequate hydration etc
201-300 (Very Unhealthy)
Avoid prolonged or
strenuous outdoor
work
Minimise outdoor
work Avoid outdoor work Take risk mitigating measures such as use of
mechanical aids, job rotation, instituting indoor rest
breaks, ensuring adequate hydration etc If prolonged or strenuous outdoor work is not
avoidable, and an employer still requires an employee
to do so due to extenuating circumstances, masks
should be provided > 300
(Hazardous) Minimise outdoor
work Avoid outdoor work Avoid outdoor work Take additional risk mitigating measures such as job
redeployment, reducing the intensity and duration of
outdoor work, institute regular breaks or deferment of
non-essential jobs. If outdoor work is not avoidable, and an employer still
requires an employee to do so due to extenuating
circumstances, masks or appropriate respirators
should be provided Risk assessment should consider the additional risk
posed by poor visibility for work activities such as
lifting operations involving tower and mobile cranes
Prolonged = continuous exposure for several hours
Strenuous = involving a lot of energy or effort
Reduce = do less
Minimise = do as little as possible
Avoid = do not do
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6 Contingency Plans for Schools and
Workplace
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School’s Continuity Plan for Haze Episodes by the Ministry of Education
Category Management Measures
(Good/Moderate)
≤100
Normal activities
101-200
(Unhealthy)
Minimise outdoor activities such as outdoor assembly, outdoor camps and sports activities.
Students and staff who are unwell will be temporarily accommodated in an air-conditioned room
with an air purifier, before they are taken to seek medical attention. Parents of these students will
also be notified.
Students with pre-existing lung and heart conditions or are unwell will be exempted from all physical
exercise.
201-300
(Very Unhealthy)
No physical exercises (indoor and outdoor).
Classroom lessons will continue, but lessons may be modified as appropriate. For instance,
students may be assigned work that can be completed at their desks.
Students and staff who are unwell will be temporarily accommodated in an air-conditioned room
with an air purifier, before they are taken to seek medical attention. Parents of these students will
also be notified.
Students with pre-existing lung and heart conditions will be moved to enclosed indoor spaces, such
as school library.
> 300
(Hazardous)
Schools will scale down lessons.
All students, including those with pre-existing lung and heart conditions, will be in enclosed indoor
spaces, including classrooms with doors and windows fully closed. Schools will spread out students
across the enclosed indoor spaces, such as the library, to allow for better thermal comfort and
ventilation.
Students and staff who are unwell will be temporarily accommodated in an air-conditioned room
with an air purifier, before they are taken to seek medical attention. Parents of these students will
also be notified.
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• MOE will consider closing all primary and secondary schools if the air
quality forecast for the next day is “hazardous” (PSI>300). School-based
student care centres will not operate during periods of closure.
• Announcement on school closure will be at the same time that the
forecast is released. Schools will inform parents of school closure via
phone or SMS.
• Kindergartens and child care centres will also be closed if schools are
closed.
• Parents have been advised to make advance care arrangements for
their children for such an eventuality
• Employers have been advised to exercise greater workplace flexibility in
enabling their employees to care for their children.
Closure of Primary and Secondary Schools
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• Considerations for closure of these institutions are different
from schools as most of the teaching and learning takes
place in enclosed indoor spaces, such as air-conditioned
lecture theatres, and the students are older (>16 years).
• MOE will work closely with junior colleges and PSEIs to
ensure student well-being.
• Junior colleges and PSEIs will monitor the haze situation
and adopt appropriate management measures in
accordance with the health advisory. If necessary, outdoor
activities may be replaced with alternative indoor
arrangements, postponed or cancelled.
Post-Secondary Education Institutions (PSEIs) and Junior Colleges
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7 Preparations for 2014 Haze Season
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• The SW Monsoon season, the traditional dry season for the southern
ASEAN region has set in in early Jun and would typically last to Sep/
early Oct.
• Meteorological Service Singapore has forecast weak to moderate El
Nino conditions to develop in the next few months, which could
exacerbate the drier and warmer conditions over Singapore and the
region during the SW Monsoon season
• This is likely to increase the risk of occurrence of transboundary
smoke haze
• NEA has commenced daily haze forecasts and health advisory from 16
Jun 2014
• Some practical tips for households to reduce exposure to haze
particles have been made available.
Preparations for 2014 Haze Season
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• MOH is working with healthcare providers (polyclinics, GP and other
partners) to ensure that the healthcare sector is adequately
prepared for haze
• Contingency plans are in place to ensure that patients in acute and
community hospitals, and in nursing homes, are not adversely affected
by the haze.
• Haze Subsidy Scheme will be re-activated if the situation warrants it.
• MOH has advised that N95 mask is generally not needed for healthy
adults, except when air quality becomes hazardous (PSI >300) and
they need to perform outdoor activity for prolonged periods. N95 masks
are not needed for short exposure to haze e.g. commuting from home
to school or work or for indoor environment.
• Government has put together a stockpile of 16 million N95 masks to
help ease supply shortages if required. MOH has also pre-positioned
masks with distributers and the People’s Association
Preparations for Haze – Health Sector
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• Schools are ready to implement their haze management plans
and briefings have been held for school principals and
administrators
• If necessary, outdoor school activities would be replaced with
alternative indoor arrangements, postponed or cancelled.
• MinistryOE would consider closing all primary and secondary
schools when the haze forecast and health advisory for the next
day indicates that the air quality will be at hazardous level.
• Closure of kindergartens and childcare centres will be aligned to
the closure of schools
Preparations for 2014 Haze Season - Schools
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• The Workplace Safety and Health Council (WSHC) has issued bulletin to
its 33,000 subscribers on the revised guidelines for employees and
employers for haze.
• WSHC has been engaging various industry associations whose members’
employees perform prolonged/ strenuous outdoor work activities, to
increase haze awareness.
• There is no pre-determined haze level at which all work would have to be
stopped. Essential services will continue, with appropriate necessary
adjustments.
• Ministry of Manpower (MOM) has informed employers to carry out proper
risk assessments of their work activities and implement appropriate
measures to ensure that the risks identified are minimised or mitigated
during haze.
• In situations where the haze poses risks to the safety and health of workers
and measures have not been taken to mitigate those risks, MOM may
order the affected work to stop.
• MOM has set up communication channels (hotlines and emails) for workers
to report significant safety concerns on outdoor work during haze episodes
Preparations for 2014 Haze Season- Workplace
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Safeguard • Nurture • Cherish
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