CIVIL DEFENCE (AMENDMENT) BILL

CIVIL DEFENCE (AMENDMENT) BILL: Order for Second Reading read.

4.28 pm

The Senior Minister of State for Home Affairs (Assoc. Prof. Ho Peng Kee): Mr Speaker, Sir, I beg to move, "That the Bill be now read a Second time."

Sir, this Bill seeks to amend the Civil Defence Act (CDA) in three main areas. They are, first, to update the functions of the Singapore Civil Defence Force (SCDF) to include the additional responsibility of handling Chemical-Biological-Radiological-Explosive (CBRE) threats; second, to provide a legal framework for SCDF to extend humanitarian assistance and disaster relief overseas; and third, to update the provisions relating to the discipline and administration of the Force. I will go through each in turn.

Updating of functions

Sir, the CDA was enacted in 1986 to provide for the raising, maintenance and discipline of a civil defence force and for the exercise of the functions and powers of the force during national emergencies. This is the first time the Act is being substantially amended.

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Evolving security landscape and SCDF’s new CBRE roles

SCDF started off primarily providing fire-fighting, rescue and emergency ambulance services in the 1980s. The security landscape has since evolved significantly. The rapid growth of the petro-chemical industry on Jurong Island and the heightened post-911 security climate has raised new challenges in the form of unconventional CBRE threats and industrial accidents. Hence, from providing fire fighting and emergency ambulance services, SCDF’s responsibilities have expanded to include managing emergency disasters such as industrial accidents, CBRE threats as well as preparing the population for such emergencies.

The SCDF has been appointed the Incident Manager to mitigate the consequences of a CBRE incident. To better perform this role, since 2004, the SCDF has been beefing up its "dirty bomb" response capabilities. SCDF first responders to a dirty bomb incident have been equipped with radiation detectors to check for and identify on-site radiation contamination. Besides conducting rescue and evacuation, the SCDF Special Rescue Battalion is also equipped to perform radiological decontamination of victims.

To address SCDF’s enlarged role, clause 2(a) amends section 2 to expand the definition of "civil defence emergency" to include a "hazardous materials" incident. A definition of hazardous materials is also included and the Minister may add to the hazardous materials list any dangerous article or substance he considers necessary by Gazette.

Deletion of obsolete force functions

Sir, even as SCDF’s core responsibilities have grown, there are functions previously undertaken by SCDF in a National Emergency scenario that SCDF

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no longer undertakes.

These functions include assisting public authorities such as the Building Control Authority, Public Utilities Board, Land Transport Authority and MCYS in the clearance of streets, roads and other public places; the disposal of dangerous structures and materials; the repair of essential utilities and Government buildings and the control of writing and distribution of freshwater and other essential supplies. We intend therefore to delete these functions from section 4 of the Act.

Legal framework for overseas deployment

Sir, let me now deal with the provisions for overseas deployment of SCDF. Clause 22 introduces a new Part XIIIA on "Service Outside Singapore" under section 105A to 105D of the Act to facilitate the sending of SCDF officers overseas in response to Civil Defence emergency when such request is made by UN agency or by government or a territory outside Singapore. This can also be in connection with any agreement or arrangement with another country. This amendment is timely, Sir, as SCDF has increasingly been involved in extending humanitarian assistance and disaster relief overseas in recent years.

What is new about these provisions is that they will specify that SCDF officers deployed overseas remain subject to the Civil Defence Act. So, for instance, an offence allegedly committed by a Force member during overseas service would be treated as if it was committed locally, even if it does not constitute an offence under the laws of the territory where the offence took place. These provisions are adapted from the Police Force Act.

Since its Operation Lionheart contingent was formed in 1990, SCDF has responded to 11 overseas missions. Indeed, in January 2008, SCDF was

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internationally recognised for its operational capability in complex search and rescue operations and it became the first in Asia and the seventh in the world to be endorsed as a Heavy Urban Search and Rescue team by the International Search and Rescue Advisory Group (INSARAG). We also ratified the ASEAN Agreement on Disaster Management and Emergency Response (AADMER) in December 2008.

Discipline and administration of the Force

Sir, lastly, let me now turn to the final cluster of amendments relating to matters of discipline and administration. The changes are essentially administrative in nature and will enable the SCDF to better manage its members.

Timebar for disciplinary actions

First, clause 9 amends section 19 to lengthen the time-bar for trial of Full-Time National Serviceman (NSFs), Operationally Ready National Serviceman (ORNSmen) and SCDF auxiliary members by a disciplinary officer for a service offence, except for desertion and absence without leave, from the current six months to three years. This will allow SCDF to deal more effectively with service offences, which are discovered after six months. This amendment will align SCDF's practice to that of the SAF's.

Absence without leave

Next, to also align with the SAF Act, clause 12 amends section 48 to provide that a person charged for being Absent Without Leave can raise in defence, that his absence was a result of circumstances over which he had no control.

Fines and compensation

As general allowances of our National Servicemen have increased, clause 14 amends section 75 to increase the

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maximum fine quanta for servicemen from $100 to $300 and for officers from $300 to $1,000. In addition, the maximum compensation liable by an errant Force member to another member who has suffered bodily injury, damage or any loss will be similarly increased from $100 to $300. Further, the detention period in default of fines has been increased to 30 days from 20 days, if the fine exceeds $100 but not more than $300 under clause 17. These amounts are derived from similar provisions under the SAF Act.

Clause 15 amends section 81(1) to allow civilian officers in the legal profession to be appointed as the reviewing authority for disciplinary cases. This will allow a public legal officer who is not an officer of the Force to serve as a reviewing authority.

Service offences

Sir, the Bill also proposes a few amendments to service offences. For example, the irrecoverable loss of service property would be classified as a service offence. Examples of such service property would include equipment such as walkie-talkies or laptops, issued to officers as part of the daily duties. In addition, falsification of service documents will be expanded to include documents in the form of electronic records.

New ranks, appointment and definition of members

We have also created the new ranks of "Senior Assistant Commissioner" and "Senior Warrant Officer" for senior officers and servicemen respectively. In addition, a "Provost Officer" now must be specifically appointed by the Commissioner as there may be other officers serving in SCDF's provost unit in administrative positions. In addition, the definition of "members" under the Act will be expanded to include auxiliary members, in

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addition to serving officers and servicemen.

Issuance of identity cards

Sir, the issuance of identity cards will also be restricted only to Full-Time National Servicemen, as regular officers already have public service and warrant cards to identify themselves during operations.

In summary, Sir, let me say that SCDF is committed to staying ahead of new security threats, building new capabilities in emergency and disaster response and training and upgrading its members so that Singapore remains safe and secure.

Sir, I beg to move.

Question proposed.

4.35 pm

Assoc. Prof. Fatimah Lateef: Mr Speaker, thank you for allowing me to speak on the Bill. The Civil Defence is indeed a very important component of our National Total Defence movement.

I am glad to see the addition of the management and handling of hazardous materials being added on. This is important with industrialisation, with the types of chemical manufacturing industries we have engaged in as well as the global terror climate we live in today. Preparedness and knowledge of personal protection cannot be underestimated. We have seen how SCDF teams and staff performed under the circumstances of epidemics such as SARS and the H1N1 outbreaks, where they put these principles into practice. Formally adopting this in the Bill, I feel, is a necessary move and I support it.

Pertaining to the substitution of the new paragraphs on effective coordination between SCDF and other emergency services, this is indeed essential. In fact, this has been put to practice in some of

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the multi-agency exercises that have been carried out. A very good example would be the Exercise North Star, with counter-terrorism measures incorporated. SCDF has always been a major player and will continue to do so.

The coming together under crisis situations allows members to understand coordination as well as field and ground issues well. Will there be more such multi-agency, multi-disciplinary exercises planned?

On the deployment of SCDF officers overseas, Sir, I have had the opportunity and privilege of working side by side with many of them in many different settings and countries around the world and I have to say that I am impressed by the level of professionalism, attitude and teamwork as well as camaraderie.

Pertaining to the amendment to section 4(k), ie, to provide and maintain an adaptive emergency ambulance service, can I ask the Minister the following questions? Are there future plans to expand the SCDF fleet of ambulances? Secondly, will the Advanced Specialist Paramedic Training Course, which has been stopped temporarily, be continued in the near future? This is indeed an important component in the training and specialisation of our paramedics and is a step in the right direction, especially in a climate of increasing expectations of their performance on the ground. It is also something that provides a career path and a vision to aspire to for the passionate paramedic.

With that Sir, I support the Civil Defence (Amendment) Bill.

4.38 pm

Assoc. Prof. Ho Peng Kee: Mr Speaker, Sir, I thank Assoc. Prof. Fatimah Lateef for speaking in support of the Bill. She

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asked if there would be more exercises in future, in the same vein, as Exercise NorthStar. Sir, the answer is "yes", as these exercises, as she has said, have proven very useful. SCDF started Exercise NorthStar in 1997 to validate the contingency plans of participating agencies and to ensure sound integrated response amongst all these agencies in the event of a civil emergency. To date, we have conducted seven Exercise NorthStars, each with a different focus but with the same purpose of validating operational readiness and preparedness on the part of key agencies. Indeed, SCDF is now preparing for Exercise NorthStar VIII, which is to be conducted next year.

Assoc. Prof. Fatimah Lateef also asked if there are plans to expand SCDF's fleet of emergency ambulances. Sir, the SCDF currently has a fleet of 40 emergency ambulances of which 36 are operational during the day and 30 at night after 9 pm. In June last year, SCDF engaged two private service providers to supplement its current fleet of emergency ambulances with an additional five ambulances per operator. These private ambulances are stationed at SCDF's fire stations during peak periods.

Sir, together, all these ambulances handled about 116,000 emergency cases last year, up from 105,000 in 2007. On average, about 70% of these are medical cases and 30% are trauma cases. Handling about 10% of the cases, the assessment of the private emergency ambulances is that they have done well. Indeed, this has enabled the SCDF to concentrate on its core functions, such as fire-fighting and rescue as well as strengthening its emergency preparedness and counter-terrorism roles.

In this regard, I thank Assoc. Prof. Fatimah Lateef for her endorsement of how SCDF officers rose to the challenge in meeting the SARS and H1N1 outbreaks. She is absolutely correct when

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she says that preparedness and knowledge of personal protection can never be underestimated. And these principles underscore the amendments to enable the SCDF to discharge its Chemical, Biological Radiological and Explosive (CBRE) responsibilities. We will continue to monitor the performance of the private emergency ambulances in conjunction with the overall need to expand emergency ambulance services in Singapore in light of Singapore's ageing population before deciding whether to add to their fleet.

Assoc. Prof. Fatimah Lateef also asked about the Advanced Paramedics Specialist Training Course (APSC). Sir, the APSC was introduced in 2006. They equip paramedics with advanced life-support skills and knowledge. It has modules on advanced medical and trauma protocols, such as advanced airway management and interpreting electro-cardiogram rhythms. SCDF is currently conducting a review of the effectiveness and relevance of the APSC for its paramedics in their daily work and I will take on board Assoc. Prof. Fatimah's feedback because I believe that she was one of the course instructors. I understand that the review is scheduled to be completed in the next work year. Pending the review, SCDF has decided to temporarily stop conducting the course.

Nevertheless, I would assure Assoc. Prof. Fatimah Lateef that SCDF's paramedics continue to be rigorously trained and further equipped to handle all medical and trauma emergencies encountered in their daily work through the current Paramedics Specialist Course. In addition, SCDF conducts regular audits and assessments to ensure that both SCDF and the private operators paramedics are au fait with operating procedures and protocols in handling such emergencies. SCDF has given me the assurance that it would not hesitate to mandate additional training or even

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remove any paramedic who has been found wanting from his duties.

Question put, and agreed to.

Bill accordingly read a Second time and committed to a Committee of the whole House.

The House immediately resolved itself into a Committee on the Bill. – [Assoc. Prof. Ho Peng Kee].

Bill considered in Committee; reported without amendment; read a Third time and passed.