LCQ7: Scaffolding works in construction industry
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Question:
The Government has earlier on announced that 50 per cent of new public works building works contracts, with tenders to be invited on or after March 21 this year, are required to adopt metal scaffolding (rather than traditional bamboo scaffolding) to enhance site safety. In this connection, will the Government inform this Council:
(1) whether it has looked into the causes of industrial accidents that involved working on bamboo scaffolds and metal scaffolds in the past five years (e.g. unsafe bamboo scaffolding structures, improper work procedures, or human factors);
(2) of the details of current monitoring of the use of scaffolding in the construction industry by the government departments concerned, including whether regular inspections are conducted on construction scaffolds with longer service spans;
(3) whether it has compiled statistics on the output value of construction works involving bamboo scaffolding and metal scaffolding in the past five years, the number of existing practitioners (including the number of those trained and qualified, as well as the number of those currently in employment), and the average income of the practitioners;
(4) whether it has studied if there are differences between metal scaffolding and bamboo scaffolding in terms of the construction methods and worker requirements, and their differences in the equipment required and the labour costs involved;
(5) as there are views pointing out that bamboo scaffolding remains a widely used structure in Hong Kong's construction industry, and in the light of the increasing height requirements for buildings, along with instances of super typhoons and once-in-a-century torrential rain in recent years, whether the Government will collaborate with the industry to explore ways to enhance the building technique of bamboo scaffolding to improve its safety; and
(6) given that the bamboo shed theatre building technique is one of the items in the Intangible Cultural Heritage Inventory of Hong Kong, whether the Government has studied if the building technique referred to in this item covers bamboo scaffolding or building technique of bamboo scaffolding in the construction industry; if it has studied and the outcome is in the affirmative, of the Government's plans for the inheritance and promotion of the building technique of bamboo scaffolding in the construction industry; if it has not studied, the reasons for that?
Reply:
President,
From industrial safety perspective, provided that the requirements of the legislation and relevant codes of practice are complied with, work safety can be ensured irrespective of what kind of scaffolding materials used.
Metal scaffolds have been widely adopted in the construction industry in advanced economies in the world and the Mainland. To further promote the adoption of metal scaffolds, the Development Bureau (DEVB) recently required 50 per cent of new building works projects under public works of the Government (excluding maintenance projects of building façades), with tenders to be invited on or after March 21, 2025, to adopt metal scaffolds. Based on the number of projects to be tendered this year, only one or two projects will adopt metal scaffolds. The Government has no intention to ban the use of bamboo scaffolds at this moment. The DEVB will continue to engage the industry and other relevant stakeholders to jointly explore measures from various aspects (including the application of technology) to enhance work safety of bamboo scaffolds.
Having consulted with the DEVB and the Culture, Sports and Tourism Bureau (CSTB), the consolidated reply to various parts of the question raised by the Hon Ma Fung-kwok is as follows:
(1) According to previous investigations, the common attributing factors leading to accidents involving bamboo scaffolds and metal scaffolds include failure to conduct task-specific risk assessments and formulate safe work methods before the commencement of work, resulting in lack of planning and coordination at work; improper alteration of scaffolds; performing incompatible work activities concurrently on a scaffold, affecting its stability; failure to provide workers with suitable working platforms; not providing and ensuring that workers erecting or dismantling scaffolds using suitable personal protective equipment; and inadequate safety supervision, etc. In addition, some cases were caused by workers' failure to implement occupational safety and health (OSH) measures.
(2) The current OSH legislation has specific provisions regulating scaffolding safety. The Labour Department (LD) has also issued the Code of Practice for Metal Scaffolding Safety and the Code of Practice for Bamboo Scaffolding Safety, providing practical guidelines to duty holders for safe erection, alteration, dismantling and use of scaffolds.
According to the current relevant OSH legislation, regardless of the service spans of a scaffold, the contractor shall ensure that the scaffold has been inspected by a competent person (who has completed substantial scaffolding training and has practical experience) before being taken into use for the first time and at intervals not exceeding 14 days preceding each use. The competent person shall report his/her findings in an approved form. If the competent person finds that the scaffold is unsafe during the inspection, the contractor shall make immediate rectification to ensure the ongoing safe use of the scaffold.
Moreover, the LD carries out spot check on scaffolds from time to time during inspections and pays close attention to scaffolding conditions, including their structures, stability, influence by weather conditions and whether being properly used by contractors etc., to ensure that contractors fulfill their responsibilities for scaffolding safety.
Apart from regular inspections, the LD also launches special enforcement operations targeting scaffolding work safety. Stringent enforcement actions will be taken if there is violation of OSH legislation, including issuing written warnings, "Improvement Notices", "Suspension Notices" and initiating prosecutions. After issuing "Improvement Notices" or "Suspension Notices", the LD will conduct timely follow-up inspections in accordance with the established procedures until the contractor has taken adequate measures to eliminate related hazards.
At the same time, the LD is also adopting a multi-pronged strategy, including publicity and promotion, education and training, and the use of innovation and technology, to prevent accidents from occurrence.
On the other hand, to further strengthen the supervision of scaffolding work, the DEVB in February 2025 requires contractors and resident site staff (RSS) of public works contracts to implement additional administrative measures, including requiring contractors and RSS to independently check the number of putlogs of the scaffolds every day and requiring competent persons to submit photographs or video records as evidence when conducting inspections to the scaffolds in accordance with legislative requirements.
(3) The statistics of scaffolders registered in accordance with the Construction Workers Registration Ordinance (Cap. 583) in June 2025 are as follows:
| Trade Division Name | Registered Semi-skilled Workers | Registered Skilled Workers | Total |
| Bamboo Scaffolder | 491 | 2 043 | 2 534 |
| Metal Scaffolder | 1 761 | 6 069 | 7 830 |
| Scaffolder (Master) (Note) | 72 | 204 | 276 |
According to the statistical reports of the Average Daily Wages of Workers Engaged in Public Sector Construction Projects issued by the Census and Statistics Department in April 2025, the average daily wage of "Scaffolders" (including metal scaffolder and bamboo scaffolder) is $1,512.2.
Note: Possessing the relevant certificates of Bamboo Scaffolder and Metal Scaffolder concurrently.
(4) Metal scaffolds and bamboo scaffolds are different in erection methods, materials used and requirements on workers' craftsmanship. The Code of Practice for Metal Scaffolding Safety and the Code of Practice for Bamboo Scaffolding Safety issued by the LD respectively set out detailed guidelines on safety and health management for metal scaffolding and bamboo scaffolding operations, technical requirements for scaffolding safety and qualifications required for scaffolders, and practical guidance on inspection, maintenance and dismantling of scaffolds.
Based on the experience in public building works contracts, using metal scaffolds will not significantly increase the construction cost. The overall expenditure on metal scaffolds is only about two per cent of the contract sum, and the expenditure of bamboo scaffolds is about one per cent of the contract sum.
(5) To enhance bamboo scaffolding safety in the construction industry, the LD revised the Code of Practice for Bamboo Scaffolding Safety last year in consultation with the industry. The major revisions include enhancing technical requirements for bracings, putlogs and access and egress of bamboo scaffolds; prohibiting unauthorised alteration of bamboo scaffolds including putlogs; and further specifying the requirements of competent persons supervising bamboo scaffolders who perform erection, substantial addition, alteration or dismantling of bamboo scaffolds, and conducting inspections prior to inclement weather. The Code of Practice also requires all workers who perform truss-out bamboo scaffold work shall hold a valid certificate of "Advanced Level Truss-out Scaffolder Safety Training" or "Intermediate Level Truss-out Scaffolder Safety Training" issued by the Construction Industry Council before performing specified truss-out scaffold work.
The LD will continue to maintain communication with the industry and relevant professionals, regularly reviewing and exploring the introduction of more advanced technologies and management methods to ensure the safety of bamboo scaffolding work.
(6) The Bamboo Theatre Building Technique is an item listed in the Intangible Cultural Heritage Inventory of Hong Kong (ICH Inventory). Bamboo theatres, which are built of bamboo, fir and galvanised metal sheets, are used by the local communities as temporary venues to stage Shengong opera for appeasing gods and host related festive activities during the birthdays of deities, Jiao festivals or Yu Lan Festival. Bamboo scaffolds erected for building-related works are distinct from bamboo theatres, and are not included in the ICH Inventory. In response to public suggestions to include valuable traditional items in the ICH Inventory, the Intangible Cultural Heritage Office of the Leisure and Cultural Services Department will conduct survey and research upon receiving such proposals. The findings will be submitted to the Sub-committee on Intangible Cultural Heritage Items and the Intangible Cultural Heritage Advisory Committee for review and deliberation.
Ends/Wednesday, July 30, 2025
Issued at HKT 11:50
Issued at HKT 11:50
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