Debated in Parliament on 7 May 2024.
Mr Speaker, Sir, I beg to move, "That Parliament do now adjourn."
Question proposed.
Mr Louis Ng.
Sir, it has been almost two years since my last Adjournment Motion on "A more inclusive workplace for breastfeeding mothers". I wish I could report back to Parliament that things have got better for most breastfeeding mothers but hand on heart, I do not believe it has.
I sincerely believe that it will take a change in policies to be able to move the ground, shift mindsets and end the discrimination and stigma that breastfeeding mothers face. In the past two years, I continue to hear stories of the challenges and difficulties breastfeeding mothers face at work. I will share their stories today.
The discrimination and stigma they face is real, the pain they feel is both on an emotional and physical level. It is painful when their breasts become engorged from being unable to express their milk, the discriminatory words they hear are equally painful and they have to worry even about the quality of their breast milk.
Fion, a breastfeeding mother shared that, "I previously worked in a unit where chemicals are handled. Unhealthy aerosols are in the air and there are no proper nursing rooms. I remember using a corner of my manager's room, pantry or even the storage room just to express breast milk. It did worry me that the environment will cause undesirable effects to the milk. I was also disappointed when unkind remarks were passed due to special requests such as splitting my lunch hour so that I can pump breast milk. Is it too much to ask for a clean and comfortable space with an understanding management team? I'm just trying to feed my baby."
This House must remember just that, that all these breastfeeding mothers are trying to do, is to feed their children. We should do everything we can to help them fulfil this basic need.
Sir, I know the Government cares about this issue and wants to provide the help that is so desperately needed. A few months ago, the Breastfeeding Mother's Support Group Singapore (BMSG) met with Government agencies to share their concerns and for the Prime Minister's Office, Ministry of National Development (MND), Ministry of Manpower (MOM) and Building and Construction Authority (BCA) to hear firsthand about the challenges and difficulties breastfeeding mothers face.
I saw a genuine concern from all the public servants in the room. I thank Minister Indranee for organising the meeting and for all the public servants who spent their valuable time brainstorming possible ways forward. I went away from the meeting knowing that we have a team who are keen to provide a listening ear to understand the concerns on the ground and want to provide a helping hand and make positive changes.
Today, I will offer two recommendations on the positive changes breastfeeding mothers hope will be made. First, requiring at least one lactation room per 2,500 square metres in gross floor area (GFA) in offices and business parks. And second, make certain lactation room facilities mandatory.
I should first stress that my speech today is not about why breastfeeding is good. Indeed, some mothers cannot or choose not to breastfeed and we should respect them all the same. But we should note that an increasing number of mothers are breastfeeding and our policies and our physical environment have not kept pace.
So, let me start by first sharing why there is not just a need for lactation rooms but that there is an increasing need for lactation rooms. This lack of lactation rooms is a growing problem.
In February this year, the Health Promotion Board (HPB) and maternity hospitals reported breastfeeding as being on the rise. HPB said a national survey in 2021 to 2022 showed that the prevalence of breastfeeding was high at 97%. Among infants from birth to under six months, nearly 40% of infants were exclusively breastfed.
Mothers are also breastfeeding longer. A Nielsen IQ Baby Power 2022 study showed that women are nursing their babies for an average of 11.8 months in 2022. This is an increase from 8.1 months in 2018.
The data very importantly shows that many mothers continue to breastfeed after their maternity leave of four months is over.
Lactation rooms are not a luxury, but something which all working mothers who are breastfeeding desperately need. In a survey of 971 mothers conducted by BMSG in 2022, eight in 10 mothers shared that a lactation room would be one of the most useful forms of workplace support.
Sir, I have shown why lactation rooms are needed and now let me now share what the problems are, specifically on the Code on Accessibility in the Built Environment.
Currently under the Code, at least one lactation room must be provided in offices and business parks of 10,000 square metres or more in GFA. The first two problems are the threshold and the minimum requirement of only one lactation room.
In September 2023, in response to my Parliamentary Question, Minister Desmond Lee shared that there are around 3,950 offices that are below 10,000 square metres in GFA and only 300 offices that are above 10,000 square metres in GFA. This means that the vast majority of offices are not required to provide a lactation room. This, we urgently need to fix.
On the ground, breastfeeding mothers directly face this lack of lactation rooms. In a survey conducted by BMSG in August last year of around 370 nursing mothers, the majority of respondents shared that their working location does not have dedicated facilities for nursing mothers to breastfeed or express milk.
One mother shared, "Currently, there is no private room that can be used for pumping so the only option is to pump in the toilet if I go to office. I am quite concerned about the hygiene and inconvenience caused to other colleagues as they cannot use the toilet while I am pumping."
The need for lactation rooms is real and for many larger buildings, clearly more than one lactation room is needed. One mother shared, "There are many occasions that I have to wait 30 to 40 minutes to use the only nursing room in a six-storey building."
Expressing breastmilk does take time and many breastfeeding mothers do not have the luxury of time to queue. The last problem is that we do not even have sufficient proper standards for lactation rooms. It is not even mandated in the Code that the lactation room is lockable, and in those cases, a mother would constantly fear that someone might walk into the room during what is a very vulnerable moment for them.
We must remember again that this lack of proper lactation rooms reinforces workplace norms against breastfeeding. It reinforces the discrimination and stigma that breastfeeding mothers face.
The problems I have highlighted can be solved and I am glad many are stepping forward on their own to provide help.
It is not all bad news. There is good news too. There are many who have gone above and beyond the minimum requirements to provide lactation rooms and with better facilities. One example is WeWork. I had the opportunity to visit one of their offices with four lactation rooms in a single building. Their lactation rooms were lockable and available for use through a booking system. They also came with a dedicated fridge and freezer, electrical sockets, comfortable armchairs, sinks and water dispensers.
Many others have taken similar steps to support breastfeeding mothers. That is indeed good news, but the reality is that for many building owners, it will take a change in the Code on Accessibility in the Built Environment before a lactation room is provided or more lactation rooms are provided with better facilities.
Let me stress that I do understand that many employers face both financial and space constraints in terms of providing a lactation room, especially small and medium enterprises (SMEs). As such, the call today is for building owners who have more resources than SMEs to provide the lactation rooms.
Let us now talk about solutions. My first proposal is to amend the Code on Accessibility in the Built Environment to require at least one lactation room per 2,500 square metres in GFA in offices and business parks.
As mentioned, the Code requires only at least one lactation room in offices and business parks of 10,000 square metres or more in GFA. We need to ensure that the Code applies to the majority of offices and business parks rather than the small minority which is currently the case.
A single lactation room in a building above 10,000 square metres in GFA is also just not sufficient. Data from WeWork between January and May 2023 found over 1,300 hours of bookings for their lactation rooms, showing the high demand for lactation rooms.
So many mothers have shared stories about rushing to a lactation room during their lunch break only to find that another mother is already using it. One mother shared with BMSG that she has had to wait 15 to 30 minutes outside a lactation room as a mother was already pumping inside. Another mother told me that she would sometimes only have five minutes left for her own lunch after expressing her milk. No mother should have to choose between feeding herself or her child.
It is also clear again that buildings with more occupants have higher needs. In fact, the Code already recognises that this as it states that "the number of lactation rooms to be provided should be based on the scale of the building and the needs of the building users".
Again, I propose that we peg the number of lactation rooms to the size of the building by requiring at least one lactation room per 2,500 square metres in GFA.
MND has said that the GFA threshold is a base guideline meant to strike a balance between needs and the efficient use of space, and that some buildings go beyond these requirements. Indeed, as Senior Minister of State Zaqy Mohamad shared when we debated this issue four years ago, MND itself has two lactation rooms in the MND Headquarters within the floors they occupied while MOM has five in its two office buildings.
I appreciate the Government going above and beyond for its employees and the Government clearly recognises the need. But what about all the women not working for the Government? They too need help and support.
I should remind this House that the pain breastfeeding mothers feel is not just on an emotional level but physically as well. When a breastfeeding mother fails to pump at the right time, their breasts can become swollen and create sharp, burning pains. It can even cause infections.
Breastfeeding mothers need help and we should change our policies to provide this help.
My second proposal is that we mandate the facilities required in lactation rooms at workplaces. Under the existing Code, there is a list of nine items a lactation room should be equipped with. These are comfortable sitting, diaper changing stations, waste bins for disposing used diapers, wash basins with liquid detergent and paper towels, dispensers for hot and cold water, vending machines for beverages and diapers, socket outlets for breast pumps, mirrors and refrigerators with freezers for milk storage.
These standards sound very good, but it is only stated that these items "should be" rather than "must be" provided.
Furthermore, the Code only requires lactation rooms in workplaces to have three out of the nine items. These are comfortable sitting, socket outlets for breast pumps and refrigerators with freezers. The Code also only states that a lockable cubicle is preferred, but not mandated. Why? Should this not be the most important feature to mandate?
We need mandatory standards so that all mothers are assured that when they see a lactation room, it is able to serve its purpose.
Since the Code already recognises that these facilities are important, I propose we take a small step further and mandate that lactation rooms in workplaces be not just equipped with three items but the following items as well, in order of priority: one, a door that is lockable; two, a mirror; three, a wash basin with liquid detergent and paper towels; four, a dispenser for hot water; and five, a waste bin.
Many of these facilities, such as a waste bin, water dispenser, mirror and a lock are, in fact, very basic. They do not require significant additional cost for building owners to provide.
In the BMSG survey, mothers have stated that the above features are important in a lactation room.
Beyond these items, BMSG also has a wishlist of items they hope to have in a lactation room including: one, a small table; two, a steriliser; and three, a dedicated refrigerator with freezer for use by breastfeeding mothers only.
I hope MND will review the Code with the recommendations of breastfeeding mothers in mind and mandate more facilities in lactation rooms in workplaces. I recognise that not all building owners are able to immediately meet higher standards or provide more lactation rooms. I hope MND can implement these new standards progressively. We can start by making sure all new buildings comply with these new standards.
I also hope MND can increase the co-payment quantum in the Accessibility Fund from the current 60% to 80% for the construction of lactation rooms. We already provide the co-funding of 80% for Basic Accessibility features so why not lactation rooms too? This will help building owners significantly.
Lastly, there is the option of installing lactation pods which will be much faster and easier to install as compared to constructing a lactation room. Again, this will help building owners.
Sir, let me end by addressing one of the most common feedback I receive about providing lactation rooms. Some have asked why provide it when there might not be breastfeeding mothers in the office currently? Why waste the space and resources?
The issue here is not just about providing a physical space but about shifting mindsets, removing stigma and ending the discrimination. In this day and age, we do not ask why there is a need to provide an accessible toilet.
In the same Code on Accessibility in the Built Environment that I have mentioned so many times in this speech, accessible toilets for adults with disabilities and seniors must be present at a huge number of locations. We recognise that our buildings should be inclusive in making sure that accessible toilets are widely available, even if some buildings may not have adults with disabilities or seniors.
We have used this Code to shift mindsets when it comes to adults with disabilities or seniors. For them, we have used this code to ensure that we are inclusive. Why the disparity when it comes to breastfeeding mothers? We should use the same Code to now shift mindsets, remove stigma and end the discrimination breastfeeding mothers face.
In conclusion, my two recommendations are that we require at least one lactation room per 2,500 square metres in GFA in offices and business parks and make more lactation room facilities mandatory.
Sir, I know some people are asking why on earth does this guy keep talking about breastfeeding. I first learnt about the difficulties that breastfeeding mothers face when it was raised at my public dialogue session in February 2020. In the past four years, I have spoken repeatedly about this in this House. I have filed many Parliamentary Questions and I have pushed hard for positive changes.
My efforts in this House have really been made possible by the tremendous work done by the Breastfeeding Mothers' Support Group Singapore both in the background and in the forefront. It has been a privilege working with them in the past four years.
So, let me end by thanking the Breastfeeding Mothers' Support Group Singapore, led by Elaine, for speaking up and fighting hard for all breastfeeding mothers. Many of them, including Elaine, are here with us this evening and are sitting in the Gallery. They continue to wish that we move towards embracing rather than just tolerating breastfeeding. They have waited for a long time and I hope we finally fulfil their wish.
Finally, Sir, I end with this same quote I used in the previous Motion which expresses the wishes of our breastfeeding mothers:
"I breastfeed
Not because I think I am better.
Not because I think less of formula feeding moms.
Not because I want attention.
Not because I want to show my breasts to others.
I breastfeed
Because I couldn't imagine it any other way.
Because my child wants to be nourished from me.
Because this is what nature intended.
Because this was the right choice for my family." [Applause.]
Minister Indranee.
Mr Speaker, I thank Mr Louis Ng for his support for breastfeeding mothers and his suggestions to improve workplace conditions for them.
Women are a crucial part of the workforce and it is important that workplaces cater to their needs. For many mothers who have recently given birth, the transition back to work can be challenging, as they have to care for their babies while managing their work responsibilities.
Medical research has highlighted the benefits of breast milk for babies. As Mr Ng has pointed out, the number of mothers choosing to breastfeed is increasing with some mothers continuing to do so even after returning to work.
Given that women form a significant part of our workforce and many continue working even after childbirth, it is important that our workplaces are supportive of mothers. This is especially so in light of our low total fertility rate (TFR). Our workplaces can support mothers by providing a clean and conducive environment for breastfeeding mothers to express milk, so they can meet their babies' needs, even as they resume work.
As mentioned in my reply to Mr Ng's last Adjournment Motion on this topic, we have progressively introduced measures over the years to support breastfeeding mothers.
We conducted substantive reviews of the Code on Accessibility in the Built Environment in 2013 and 2019. The 2013 Code review introduced the requirement for specific building types, starting with developments, such as transport interchanges, sports complexes, community clubs and large-scale shopping centres, to provide at least one lactation room. After another review in 2019, this requirement was extended to more building types, including offices and business parks.
We also enhanced the Accessibility Fund in 2022 to cover more buildings. The Accessibility Fund co-funds the construction cost of accessibility features, including lactation rooms, to encourage building owners and employers to install them.
In 2022, we expanded the scope of the Accessibility Fund to two additional categories of private sector buildings. First, buildings that were built before 1990 and were already equipped with basic accessibility features. Second, buildings which were built after 1990, but before the implementation of the 2013 Code and which provided fewer accessibility features than required under the pre-2013 Code.
The Government will continue to support breastfeeding mothers in two key areas. First, by reviewing the relevant legislation and incentives for the provision of lactation facilities; and second, by promoting an inclusive, supportive work culture for breastfeeding mothers.
The latest Code review is already underway. BCA has formed a Code Review Committee, comprising public and private sector stakeholders, with representation from 15 organisations, including social service agencies, industry associations and Government agencies. BCA aims to commence public consultation on the enhanced Code by end 2024.
A key focus of the review is on lactation rooms. I thank the Breastfeeding Mothers' Support Group and the Association for Breastfeeding Advocacy for actively participating in the Code Review Committee's focus group discussion. Their frank and generous sharing of their experiences has enabled the Committee to better understand the needs of and the challenges faced by breastfeeding mothers.
The current Code requires buildings, such as offices and business parks, with 10,000 square metres or more in GFA to provide at least one lactation room. We are encouraged that several progressive building owners and employers have provided lactation rooms beyond these minimum requirements. JEM and CapitaSpring are examples of larger developments that have voluntarily provided more than one lactation room. Some developments with GFA of less than 10,000 square metres, including some hawker centres, have also provided lactation rooms voluntarily.
Nonetheless, we agree that there is scope to lower the GFA thresholds in the Code for the installation of lactation rooms in offices and business parks and to consider requiring larger buildings to install more lactation rooms. I wish to reassure Mr Louis Ng that the Committee is studying this issue carefully. We need to take a calibrated and balanced approach, bearing in mind the other competing needs for space within developments and the constraints of smaller developments. The Committee will consider these issues when making its recommendations on the GFA thresholds for lactation rooms.
In the meantime, I wish to highlight that specially constructed lactation rooms are not the only solution to meeting breastfeeding mothers' need for private space. Lactation pods are a viable alternative for owners of or employers in buildings with lower GFA or with configuration constraints. These pods are commercially available for purchase or lease and the pod exterior can be customised to align with the office branding or décor. I urge employers in and owners of smaller buildings or buildings with limited space to consider installing lactation pods. The Accessibility Fund can be tapped on to co-fund lactation pods.
But beyond just providing lactation rooms, it is important that lactation rooms are sufficiently equipped to meet the needs of breastfeeding mothers, as Mr Ng has pointed out.
The Code currently recommends a list of items that all lactation rooms should be equipped with. We note Mr Ng's suggestions for more items to be added to the list. Moving forward, we can consider making some essential features of a lactation room mandatory. For instance, privacy, easy access and access to electricity.
At the same time, we must be mindful about striking the right balance. Employers and building owners need also sufficient flexibility in determining how to address the needs of other building users. For instance, they may wish to site loose fixtures and appliances, such as water dispensers in common locations like pantries. Modalities may differ from site to site, but what matters is that there is thoughtful provision of facilities to meet employees' needs, including those of breastfeeding mothers.
The Code Review Committee will continue to assess this and continue to gather data to refine its proposed enhancements to the Code. I encourage our industry stakeholders and our advocacy groups to continue providing feedback, to help us shape a more accessible and inclusive built environment.
We also note Mr Ng's recommendation to increase the co-funding amount under the Accessibility Fund to meet the construction cost of lactation rooms. We will consider this following the completion of the Code review.
Mr Speaker, the provision of lactation rooms or pods is but one aspect of a much bigger picture, which is the need to have a supportive workplace environment for families in general and mothers in particular, given the predominant role they play in bearing and caring for children. We need to go beyond mandatory infrastructural provisions and encourage progressive workplaces that benefit both the employee and the employer.
The global workplace is changing. Millennials and Gen Z have very different expectations towards work and workplaces. There is keen competition for workers and talent, including female workers. Bosses who are empathetic and who can balance business objectives with employee needs, will have a strategic advantage in recruitment and retention. This includes developing a workplace culture that supports motherhood and breastfeeding.
Fostering such an inclusive workplace culture ultimately requires mutual support among supervisors, colleagues and the wider community. It also requires capable human resources (HR) personnel, good HR practices and above all, candid conversations between employers and employees, and a collaborative effort to meet the needs of both. Everyone has a part to play in building a workplace culture of mutual trust so that all employees, including breastfeeding mothers, can give their best both at work and at home.
Together with our tripartite partners, the Government encourages employers to adopt family-friendly workplace practices. For example, employers are encouraged to adopt the Tripartite Standard on Work-Life Harmony. The standards involve implementing good workplace practices to support employees in managing their work responsibilities and personal lives effectively. These include cultivating a breastfeeding-friendly culture in the workplace, offering flexible lactation breaks and providing private lactation rooms.
We will also continue promoting best practices through the Employer's Guide to Breastfeeding at the Workplace, jointly produced by the NTUC U Family, Health Promotion Board and the Singapore National Employers Federation, which includes recommendations on what employers can do to support breastfeeding employees who are returning to work.
In today's world, prospective hires do not only look at a company's business outcomes but also at the progressiveness of its HR practices and workplace culture. I hope employers will view progressive practices, including facilities for breastfeeding mothers, as investments into employee well-being that will in turn benefit all.
Mr Speaker, the Government is committed to supporting inclusive workplaces that enable couples to start, raise and nurture their families. We are reviewing the Code, including the areas highlighted by Mr Ng. We will also continue to work with our tripartite partners to promote family-friendly practices.
However, the Government cannot do this alone. We will need all stakeholders, including building owners, employers and colleagues, to play their part. With this collective effort, we can build a Singapore Made For Families.
Mr Louis Ng.
Thank you, Sir. Just a quick one. I thank the Minister for the reply and for her firm assurances that the recommendations are being looked into. From her smiles, I have a sense that maybe the recommendations will be implemented.
But, I think she mentioned about the accessibility fund and that they are considering increasing it to 80%; but only after the Code is reviewed, which could take another year. Could I just ask that in the interim we consider increasing the co-funding to 80% now, because I know cost is a big factor for building owners; and, I think, if we increase it to 80%, there is a good chance that more of the building owners will install the lactation pods or construct a lactation room.
Minister, you have less than two minutes to respond.
The answer, Mr Speaker, is that we always take Mr Ng's recommendations seriously. The reason why we would consider this after the Code review is because much depends on what the Code proposes or recommends and what the Code mandates. Because if it mandates more, then employers and building owners may need more assistance. So, we have to size the Accessibility Fund depending on what we require them to do.
But we note Mr Ng's concerns about the urgency and the need to assist them. We will look into that. But in the meantime, as I said, lactation pods are a good way to provide facilities in the interim and the Accessibility Fund is available for that.
And I can see smiles and happy faces in the Chamber and up in the Gallery.
Question put, and agreed to.
Resolved, "That Parliament do now adjourn."
Adjourned accordingly at 5.18 pm.
PAPERCUTS