HAZE SITUATION

HAZE SITUATION:

(Update): 1.

Mdm Halimah Yacob asked the Minister for the Environment and Water Resources if he will update the House on the haze situation, specifically (i) the progress made at the Regional Ministerial Steering Committee to tackle this problem; (ii) the impact on Singapore's economy and health; and (iii) how to ensure compliance with measures that are put in place to prevent a recurrence.

2.

Mdm Ho Geok Choo asked the Minister for the Environment and Water Resources how will the Government assist the Indonesian government to provide economic and non-economic incentives to farmers in Sumatra and Kalimantan to prevent them from starting fires which create the haze.

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3.

Ms Lee Bee Wah asked the Minister for the Environment and Water Resources in light of the transboundary haze caused by forest fires in Indonesia, (a) how is Singapore working with Indonesia and the region to resolve this problem; and (b) when will this problem be entirely resolved.

4.

Dr Lim Wee Kiak asked the Minister for the Environment and Water Resources in light of the transboundary smoke haze situation, whether Singapore’s reputation as a clean and green environment will be affected.

The Minister for the Environment and Water Resources (Assoc. Prof. Dr Yaacob Ibrahim): Mr Speaker, Sir, with your permission, I would like to take Questions 1 to 4 together?

Mr Speaker: Yes.

Assoc. Prof. Dr Yaacob Ibrahim: Mr Speaker, Sir, I appreciate the frustration of Singaporeans with this perennial haze occurrence. The smoke haze in the region is from land and forest fires in Indonesia. The fires are a result of land clearing practices by farmers and plantation companies. The smoke haze situation is aggravated during El Nino years such as in 1994, 1997 and this year.

In Singapore, the three-hour PSI hit a high of 150 on 7th October 2006, the highest level recorded since 1997. The 24-hour PSI levels also hit "unhealthy" range on three days in October 2006. The 24-hour PSI level was 128 on 7th October, 109 on 8th October, and 102 on 20th October.

In this regard, we have been working closely with the Indonesian Government to help them mitigate the fires and smoke haze. Allow me to elaborate.

Singapore’s assistance

Since 1997, Singapore has been providing satellite pictures to alert the

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Indonesian authorities at the central and local government levels on the locations of hot spots in Sumatra and Kalimantan. We will continue to provide satellite pictures to assist Indonesia to locate the fires on the ground in order that they could take immediate action to put out the fires.

We have provided other technical assistance to Indonesia, such as communication and computer equipment, to facilitate fire detection and enforcement and air monitoring equipment. We have also conducted training courses for Indonesian officials, including those at the district level, on interpretation of satellite imagery, geographical information and health effects of haze and air quality monitoring.

In August 2005, Singapore provided one C-130 aircraft to assist Indonesia in its cloud-seeding operations and a contingent of 54 SCDF fire-fighters to put out the fires in Sumatra. This year, Singapore also extended the same offer, which Indonesia did not take up. Our offer still stands.

Regional mechanisms and assistance

In 1997, Singapore helped to shape the regional mechanism to tackle the haze problem. In December 1997, Singapore hosted the First ASEAN Ministerial Meeting on Haze (AMMH), which developed the Regional Haze Action Plan (RHAP). The Plan sets out measures to prevent and suppress land and forest fires as well as early warning and monitoring to detect smoke haze in the region.

In 1998, the Sub-Regional Fire-Fighting Arrangements for Borneo and Sumatra (SRFA) were set up. The SRFA comprises Brunei Darussalam, Indonesia, Malaysia and Singapore. The aims of the SRFA are to focus on fire prevention and suppression measures on the ground in Sumatra and Borneo. Thailand joined the

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SRFA in 2005 when they too were affected by the smoke haze from Sumatra.

Singapore also hosts the ASEAN Specialised Meteorological Centre (ASMC) since 1993. The ASMC provides weather forecast and monitoring of smoke haze and land and forest fires in the region.

Despite all the efforts over the past 10 years, the measures taken have not been adequate and effective. The region is still badly affected by the haze this year. Clearly, more needs to be done.

Recent developments

After the three-hour PSI reached its peak of 150 last month, Singapore registered our concerns over the haze issue with Indonesia at the highest level. Our Prime Minister wrote to Indonesian President Susilo Bambang Yudhoyono on 10th October 2006 to express our concern and disappointment over the recurring haze problem. At Singapore’s suggestion, Indonesia hosted the Sub-Regional Ministerial Meeting (SRMM) on Transboundary Haze Pollution in Pekanbaru on 13th October 2006.

Sub-Regional Ministerial Meeting (SRMM)

The Environment Ministers from Brunei Darussalam, Indonesia, Malaysia and Singapore attended this meeting. Thailand was represented by its Deputy Permanent Secretary. The SRMM acknowledged that the measures taken to tackle the land and forest fires in Indonesia over the past 10 years had not been effective. They agreed to formulate a comprehensive Plan of Action (PoA) to deal with the smoke haze issues in the short and long term. In this regard, assistance and support from international and regional organisations are needed to help prevent and suppress land and forest fires in Indonesia.

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A Ministerial Steering Committee (MSC) comprising Environment Ministers from Brunei Darussalam, Indonesia, Malaysia, Singapore and Thailand was set up to oversee the implementation of the PoA.

Regional Workshop on Haze

Following the meeting in Pekanbaru, Indonesia hosted a Regional Workshop on Haze in Jakarta on 2nd November 2006, which developed a comprehensive PoA to tackle the land and forest fires in Indonesia.

Indonesia had identified 35 fire-prone districts in eight provinces, including Riau, Jambi, South Sumatra, West and Central Kalimantan. Indonesia then suggested that ASEAN member countries and international organisations could consider adopting fire-prone areas to build up their capacities to implement measures to prevent and suppress the land and forest fires. This could then be replicated in other fire-prone areas.

1st Meeting of the Sub-Regional Ministerial Steering Committee (MSC) on Transboundary Haze Pollution

The 1st Meeting of the MSC was held on 9th November 2006 in Cebu, Philippines. I attended the meeting together with my environmental counterparts from Brunei Darussalam, Indonesia, Malaysia and Thailand.

At the MSC Meeting, we noted that the Regional Workshop on Haze, organised by Indonesia on 2nd November 2006 in Jakarta, had been very useful in profiling the transboundary haze pollution issue. We were told that many international and regional organisations had indicated their interest to assist in the implementation of the PoA. The comprehensive PoA, which was endorsed by the Ministerial Steering Committee,

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comprises the following key areas which the Indonesians will implement:

(a) Fire Prevention;

(b) Fire Suppression;

(c) Surveillance and Enforcement;

(d) Early Warning and Monitoring; and

(e) Regional and International Assistance and Collaboration.

The MSC Meeting also endorsed the formation of a Technical Working Group (TWG) to support the MSC and the implementation of the PoA.

Under its PoA, Indonesia has suggested that member countries of the MSC consider adopting one or more fire-prone districts/regencies for enhancing capacity to deal with land and forest fires. The Meeting welcomed Indonesia’s proposal. To show our support, Singapore indicated that we would be keen to work with a regency in Jambi Province. We also encouraged other member countries to consider such adoption programme.

The Meeting also agreed that financial support from member countries of the MSC could be used as seed funds to attract support from international organisations and donor agencies. Recognising the urgency and importance of the PoA, Indonesia has agreed to host a high-level international conference in December 2006 to generate support and partnership for the implementation of the PoA. Singapore will provide support and participate in this conference.

It is only with sustained efforts by Indonesia, with assistance from regional governments, regional and international organisations that we are likely to see changes in land clearing practices without

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the use of fire. This is a long-term process. Land and forest fires are not likely to stop overnight. Fire prevention requires concerted and sustained efforts by all. As a first concrete step, the Indonesian authorities must step up its enforcement actions against plantation owners and companies for carrying out illegal land clearing practices by fires.

There is a clear and strong political commitment to eradicate the haze problem by Indonesian President Yudhoyono. There is a need for changes to the various levels of governance, public education, enforcement and prosecution, such that the root cause of the smoke haze issue could be comprehensively addressed. Indonesia also needs to ratify the ASEAN Haze Agreement to demonstrate its political resolve to tackle the haze challenge. We should be prepared for a long-haul process which would require substantial amount of commitment from Indonesia, with assistance from ASEAN countries, regional and international organisations.

Impact of haze on the environment, economy and health

Sir, Mdm Halimah Yacob asked about the health effects of the haze. NEA’s 24-hour PSI readings can be directly correlated to the indicative health impacts. 24-hour PSI levels between 101 and 200, which are in the 'unhealthy' range, may result in mild aggravation of symptoms among the population with chronic heart or lung ailments. Transient symptoms of irritation, eg, eye irritation, sneezing or coughing may also surface in some of the healthy population. I would also urge the vulnerable groups, such as the elderly, the very young, asthmatics and diabetics, to take greater precaution and seek medical advice where necessary. When the readings exceed 100, NEA will issue health advisories to advise the public to avoid vigorous outdoor activities.

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Prolonged periods of haze also lead to economic losses for Singapore. The losses are from a rise in hospitalisation and treatment costs, losses in tourism, losses in productivity because people take time off from work, and losses in recreational opportunities.

To minimise the adverse impacts of smoke haze on Singaporeans, an inter-ministry Haze Task Force (HTF) has been put in place since 1994 to co-ordinate the actions of various ministries and agencies. The HTF has developed a national Haze Standard Operating Procedure (SOP). This puts in place plans and measures to inform and protect the public during a smoke haze episode. We will continue to be vigilant in updating our SOP and work effectively across relevant agencies for a coordinated response to tackle the haze.

Singapore strives to provide a good environment for its citizens to live, work and play in. Despite being an urban city State with a sizable vehicle population and industrial activities, Singapore’s air quality has been rated well consistently. For example, the Political and Economic Risk Consultancy (PERC) report in 2005 concluded that expatriates perceive Singapore's air quality to be the best, ahead of other countries surveyed, such as Australia, Japan, South Korea, and even the US. This has not come about by accident and can be attributed to the comprehensive measures that the Singapore Government has put in place over the years to control air pollution and to improve air quality in Singapore by taking the following steps:

Minimising pollution at source by stipulating stringent air emission limits and fuel quality on industries and motor vehicles, eg, the implementation of EURO IV emission standards for diesel vehicles since 1st October 2006;

Stringent legislation and enforcement to control air pollution, eg, a more

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stringent smoke test for diesel vehicles - the Chassis Dynamomter Smoke Test will be used for the mandatory periodic inspections from 1st January 2007;

Proper land use planning and judicious siting of industries; and

Promoting cleaner energy and energy efficiency through various schemes like the Green Vehicle Rebate scheme for vehicles and the Energy Efficiency Improvement Assistance scheme for our buildings and industries.

The Government regularly monitors international standards for ambient air quality and reviews our measures to curb domestic sources of air pollution. We constantly monitor the ambient air quality in Singapore via a comprehensive network of 14 air monitoring stations across the island. In recent years, from 2003 to 2005, Singapore has been experiencing more than 85% "good" days per year with no 'unhealthy' days.

However, this year, the haze has caused our air quality to deteriorate. As of 31st October 2006, we have 85% "good" days, 14% 'moderate' days and 1% 'unhealthy' days due to the recent transboundary haze. This shows that despite our best domestic efforts to maintain good air quality, we remain vulnerable to external threats such as the periodic haze.

Sir, since the onset of the inter-monsoon in late October, the winds are increasingly blowing from the northeasterly direction and will keep smoke haze away from Singapore. For the rest of the year, we can expect the air quality to be in the "Good" range on most days. Nevertheless, I would like to assure the House that preventing and combating the causes of haze is something which my Ministry will continuously put as top priority in our agenda.

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Mdm Halimah Yacob (Jurong): Sir, just a few supplementary questions. First, I would like to thank the Minister for a very comprehensive and very substantial reply. The Minister has said that there is now another PoA - Points of Agreement, but I think what we are not short of are points of agreement and agreements! There have been so many since 1997. What we want to see is actually implementation. I would like to ask the Minister what measures are there within ASEAN in order to ensure implementation, so that next year Singaporeans do not have to suffer another terrible haze.

The second question I would like to ask the Minister – he has said that there are health and economic costs – has there been any analysis done in terms of dollar terms? How much has that really cost us in terms of health and our economy?

Assoc. Prof. Dr Yaacob Ibrahim: Sir, I share the Member's concern, but a clarification, PoA is Plan of Action, not Points of Agreement!

I think if we look back at what has happened in the last five weeks, it will give us enough hope and optimism that something is happening. When we had the high reading of 150 on 7th October, we quickly mobilised our ASEAN partners and we were able to have the meeting one week later on 13th October in Pekanbaru. Thereafter, Indonesia took upon itself to conduct a regional workshop on 2nd November, one week after Hari Raya. Being a Muslim country with a long celebration, they were able to put together a very good regional workshop with international partners. Then, on 9th November, we managed to bring everybody together to Cebu, and the Philippine government was more than happy to host a special meeting on haze for all of us to agree on the Plan of Action and form a technical working group and, more importantly, Indonesia's commitment to hold an international conference

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in early December. We were thinking

that it could be delayed to January or February, but they wanted to do it in early December.

So I think, in the last five weeks, we have seen much progress on the part of the Indonesians and the countries affected in the region. I am a bit more optimistic this time round because now we have something concrete. With the international conference coming up, the technical working group will help to knock out some details in order to present to the international community what exactly we are going to do and where the funds are needed. So it has to be very concrete. The Ministerial Steering Committee has agreed to meet on a quarterly basis in order to monitor the implementation of the programme.

By all account, things are moving and they are in motion. Will we solve the problem next year? I do not think so because it will require long-term efforts. Slash and burn has been around this region for centuries, and the haze problem has been around since the 1990s. Obviously, you need concrete action at the ground to develop new capacities among farmers and plantation owners to make sure that they resort to land clearing methods which are more environmentally friendly.

So the strategy will be two-fold. One, obviously is to prevent fires from occurring and that will take some time. The second thing is fire suppression, which is to make sure that if a fire breaks out next year, we can deal with it quickly. To the credit of the Indonesian government, they rented two Russian water bombers, late - but better late than never - to try and douse some of the flames in Kalimantan. So things are moving in the right direction. On our part, the Singapore Government is committed to working with our colleagues in the region to ensure that the plan get

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implemented. I am a bit optimistic, but I also want to alert Singaporeans that we cannot expect this to be solved in the short term. We will do our best to work not only with the countries in the region but, I think, with the international community and NGOs. Let me share with you an example.

Peatland fire is one of the big problems that we face because that is the nature of our region. But a particular NGO has been able to work with the local province in Kalimantan to deal with the peat fires over there quite successfully. So it shows that there is capacity within certain sectors and certain NGOs in which we want to draw upon to work together with our Indonesian counterparts. The fact that the Indonesian government has offered 35 fire-prone districts for adoption is another good sign to allow us to go down to the local level, to work with the regional fire-prone provinces to develop local capacity. But having to get farmers to change livelihood, to adopt new clearing methods, will take time. Because, for example, from clearing land by fire, now you have to use tractors, you have to use machinery, you have to be able to have the equipment and you have to know how to use the equipment and maintain it, and so on, will require a lot of plans that will have to be implemented.

I will assure Members that we will continue to work on this, but I do not think I can promise to Singapore and Singaporeans that we can solve this within one or two years.

Sir, on the second question, we have done a comprehensive study, and we have engaged some consultants in the university to help us understand the impact - I think, more importantly, the health impact - because we want to understand that further. But based on studies in other countries, especially in America, one of the pollutants which is PM 10 is known to be quite bad for

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health, if you are exposed over a long period. On economic losses, studies have been done by one of our local professors. We are in touch with him to understand that further and to do a bit more comprehensive work to understand the impact.

Dr Lily Neo (Jalan Besar): Two supplementary questions, Sir.

May I ask the Minister on his concern about the experts predicting a possible super El Nino weather effect which can lead to drought and raging forest fire, resulting in worse haze next year. Does he have to further step up the efforts on preventive measures in view of this?

Secondly, the Prime Minister mentioned last week that funds were set aside for efforts to fight the haze. Could the Minister elaborate on this fund and efforts referred to by the Prime Minister?

Assoc. Prof. Dr Yaacob Ibrahim: Sir, the point is exactly because we cannot predict the weather pattern and El Nino is expected to come next year, or all the weather experts, both in Singapore and beyond, predicted that we will have a stronger El Nino next year. The last time we had an EL Nino was in 1997 and we remembered how bad the haze was. We have alerted our colleagues in the region that because of this likelihood of an El Nino next year, if we do not suppress the fire or prevent it from occurring, it will become a big problem.

If you ask me, I think there is a strong sense of urgency among the five countries in the region to try and tackle this. For example, our counterparts in Malaysia are keen because next year is Visit Malaysia year, and it may affect tourism for Malaysia. So, all of us have a common cause here to make sure that this thing does not get out of hand, but we cannot predict the weather pattern. For example,

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the wind direction can change. If it blows from the south westerly direction, the Sumatra haze will come to Singapore. If it blows from the south easterly direction, the Kalimantan haze will come to Singapore. Now the wind is blowing in the north easterly direction, so it is blowing the haze away from Singapore. But weather pattern can change, so we will have to live with that. But I think the Member's point was that we have to put programmes and measures in place, which we plan to do.

I am hoping that by the time we arrive for our next meeting in February in Brunei, the details will be sorted out, the responsibilities among the countries will be sorted out, and then we can see what are the things that we can do at the ground. Because, ultimately, it is working with the regional partners so that they can adopt alternative practices which would be our best plan in the longer term.

On the funds, SPS Amy Khor was at the meeting in Cebu on my behalf. We have announced that Singapore is happy to pledge US$50,000 for the haze fund. At the moment, both Singapore and Indonesia have pledged. We hope that the other countries will do so. The numbers may not be big, but these funds will be used to also attract other funds when Indonesia hosts the international conference in December. The use of the funds will be dictated by the Ministerial Committee. Clearly, we want to spend more money on fire prevention rather than fire suppression. So, we will have to sit down, together with the technical working group, to decide how best to allocate the money. But, at this point in time, what we need is actually support from the international community before we can really get off the ground.

Mdm Halimah Yacob: May I just ask one last follow-up question?

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May I ask the Minister what does adopting fire-prone areas mean? Considering that even our offer of an aircraft has not been accepted, what kind of flexibility and how effective are the systems that we can render by making this adoption?

Assoc. Prof. Dr Yaacob Ibrahim: Sir, the details are not clear yet, but I think the first thing we have to credit the Indonesian government is that they are offering us districts to work with. From the Singapore Government's point of view, we are more than happy to do so, not only working with the local province authority but also bringing in outside help into the region. I see this as a tripartite relationship between Singapore, the Indonesian local authority and support from outside the region, perhaps an international NGO or even some international community organisation that might want to come in.

In terms of the exact plan, we have cobbled something in Singapore but we have to work with our Indonesian colleagues. But, as I mentioned earlier, there will be two things: one, is really fire prevention, which means working with the local authorities, with farmers and plantation owners on alternative land clearing methods, and what is it that we can do. Secondly, on building capacity internally because, in order for this to be sustained, we cannot have our Singapore team there for the next 20 years, we have to build up local capacity among the farmers and among the regional authorities. What are the capacities needed? We have to define that. Obviously, it will be in terms of ensuring compliance of the land clearing practices that we have agreed upon, making sure that people are trained appropriately to use whatever equipment and machinery that is needed, and so on. So it will be at that level.

Meanwhile, I think there are other environmental challenges like the

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peatlands that I mentioned earlier. Peatlands require agreement on the part of the Indonesian government to build up the water tables so that they rise high enough to be able to douse out the peat fires which are below ground. As I mentioned earlier, there are already some successful results in Kalimantan and this came from an NGO, working together with a local province in Kalimantan. So, clearly, I think we can also try and replicate some of this in our collaboration at the local level.