EXPENDITURE ON NEW SERVICES AND REVOTES

Mr T. M. Hart: Mr Speaker, Sir, I have His Excellency the Governor's authority to move,

That this Assembly resolves that the Government should be empowered to authorise expenditure on new services up to a limit of $10,000 in each case, and revotes of provision approved in the previous year, pending the covering approval of this Assembly.

Firstly, Sir, in connection with new services: During the course of the year, the Treasury is presented with numerous requests for small sums for services arising out of the day-to-day routine work of government. These services refer to such mundane matters as the purchase of office equipment, accounting machinery, unexpected repairs to vehicles, the purchase of new vehicles to replace those which have become unserviceable, donations to charitable institutions, supplements to annual recurrent votes such as for telephones, light, fuel, municipal services. The requests involve no principle which is novel or which is likely to be contentious. The requests are complete in themselves and involve no continuing or contingent liability. The amounts are small - $l0,000 would cover the largest of them, and a great majority would be considerably less. I cannot say that any of these items are of extreme urgency. On the other hand, they are all important. It will be convenient, and the machinery of government will run more smoothly, if they can be approved forthwith pending the approval of the Assembly, and if they do not have to wait until the submission of the next schedule of applications for supplementary votes to the Assembly.

Secondly, Sir, in connection with revotes: It sometimes happens that capital projects such as the building of a school, a bridge or a road, which it was hoped to complete within one year, cannot be so completed. Financial provision for the project lapses at the end of the financial year, but the work must continue if loss and harm to the project is not to be suffered. Similarly, sometimes goods and equipment are ordered for delivery within a year, and for some reason or other delivery cannot be obtained. Financial provision lapses and delivery takes place perhaps very early in the new year. It is clearly necessary in such cases that the unexpended portion of the vote should be immediately available. Work goes on. Wages must be paid. Cost of materials must be met. Payment must be made when goods are delivered.

Sir, I said it was clearly desirable that the unexpended portion of the provisions for the services should be immediately available, and hon. Members will appreciate that considerable difficulties might arise if we had to await the next sitting of the Assembly for approval to incur expenditure. I therefore seek authority to approve unforeseen revotes as and when the need arises.

In this connection hon. Members will bear in mind that the projects to which these revotes relate have been considered by the Legislature in the previous year and funds have been voted. No new principle is involved; no new money is required. I would also say that if this power is approved, it will only be exercised in connection with work which has been started, or in respect of goods which have been ordered, and will not of course be exercised in connection with work which, for some reason, has not been started or in respect of goods which have not been ordered.

Finally, Sir, I would say that if this delegation of authority is approved, the items for new services and revotes which are approved under the delegated authority will be included in schedules which will be presented to the Assembly for covering approval at the earliest convenient opportunity.

Sir, I beg to move.

Mr Lee Kuan Yew: On a point of information, Sir.

Mr Speaker: Let it be seconded first.

The Minister for Health (Mr A. J. Braga): I second the motion.

Question proposed.

Mr Lee Kuan Yew: On a point of information, Sir. Will the Hon. the Financial Secretary explain whether, in the first instance - the $10,000 for new services - whether that money could be expended for emoluments or salaries of posts created for these new services?

Mr Hart: No, Sir. This power will not be exercised for the creation of new posts. The creation of new posts would involve a contingent or continuing liability.

Mr Lee Kuan Yew: Mr Speaker, Sir, I would like to make it clear that we do not doubt the integrity, the honesty, and the careful discretion of the exercise of this power which is being sought, but it is on a matter of principle that I seek, on a motion for amendment, to delete from this motion the words after "in each case" the words "and revotes of provision approved in the previous year, pending the covering approval of this Assembly".

Mr Speaker, Sir, one of the fundamental rights of a House of Representatives of the people is the control of finance, and the first principle any student of constitutional law is taught is the right of a House of Parliament to control the Government by the control of the purse. This is not to say that the Government will not exercise and conduct itself in such a manner as to be almost beyond reproach, but if the House of Commons in Britain does not find it necessary to have this practice of the revote, I do not see why, however cogent, however convenient it may be, we should have this system in Singapore. This is a carry-over of the old colonial system where a small Legislative Assembly would resolve itself into a Committee of Estimates; where a small group of four or five unofficials sit on the Finance Committee, and where things are done conveniently as part of the colonial machinery. We are leaving behind that past, and we like to have this first right - on our way to becoming a House of the People, of representatives of the people - to have a say in every expenditure of public funds. If a project is in operation and cannot be completed before the financial year runs out, then it is the duty of the Financial Secretariat and the Hon. the Financial Secretary to see that the matter is put in the present year's Estimates, in time for that project to go on. A procedure whereby the Government can continue with something it started last year on funds which were voted last year, in conditions which may have radically altered, and in which the people and its representatives may feel it necessary no longer to continue expending that money, is not one which I think should be continued.

Inche Ahmad Bin Ibrahim (Sembawang): Sir, I would like to second it.

Question proposed, "That the words `and revotes of provision approved in the previous year pending the covering approval of this Assembly' proposed to be left out, be left out."

Mr Hart: Sir, I am not an expert on the constitutional procedure in the House of Commons in the United Kingdom but I suspect that work must continue over from one financial year to another in the United Kingdom, and I also suspect, subject to correction, that provision is made in the United Kingdom for revotes. Perhaps I should have explained before what precisely a revote is.

As hon. Members are aware, we have a considerable programme of capital expenditure each year. Sometimes the programme of work laid down by the Legislature exceeds the capacity of the Public Works Department to complete, but they do make an attempt to press ahead with what work they can undertake, and it sometimes happens that, perhaps, a school budgeted for in the Estimates for 1955 cannot, for one reason or other, be started until July. Perhaps it was intended that it should be started in March and finished by November. If started in July and it has to continue on till the next year it would be folly to leave that school without a roof until such time as the Assembly met again and would approve funds for the project.

I was very careful to point out, Sir, when I asked for this power, that it should be exercised with the greatest discretion, that no new principle was involved, that no new money was involved. The desirability of the project had already been considered by the Legislature and funds approved, and that actually the work was in progress and that we would not exercise the power except in connection with work which had to be started and which, in the interest of Government, should be continued and completed without delay.

I can say no more, but I give that assurance. I am as conscious as my hon. Friend the Member for Tanjong Pagar, of the constitutional principles involved. It is, in fact, my earnest endeavour to ensure the financial procedure under this new constitution follows as closely and develops along the same lines as that in the House of Commons. I can only say I have given this careful thought, and I feel constitutional principle is not being endangered if this authority is given, subject to the conditions which I have stipulated.

As regards the other portion of the amendment, namely "pending the covering approval of the Assembly", I feel that it is constitutionally proper that, whatever action is taken by the Government under this delegated authority to authorise expenditure up to $10,000, if approved, it should be submitted as soon as possible to the Assembly for its covering approval.

The Chief Minister: Mr Speaker, Sir, for one who is jealous of the constitutional rights of the Assembly, the Member for Tanjong Pagar has made a startling suggestion, that we should delete from this motion, inter alia, the words "pending the covering approval of this Assembly".

Mr Lee Kuan Yew: It was quite unintentional.!

The Chief Minister: You withdraw that?

Mr Lee Kuan Yew: I withdraw!

Mr Speaker: Order, please.

Mr Lee Kuan Yew: I have forgotten the comma!

Mr Speaker: Order. Carry on, Mr Chief Minister.

The Chief Minister: In that case, I would like to say this on behalf of the Government and in support of my colleague: that we are very jealous of the powers of this Assembly in controlling expenditure, and we would remind you that it is the duty of the Assembly to control expenditure. It would make government impossible if it were to hobble Government to the point of preventing the necessary revotes at the appropriate time when that expenditure, not having been completed, the work continues, and money is required. Your control is always in this, Mr Speaker, Sir, the control of the Assembly, that we have to come to you and ask for your covering approval. That is your control.

Mr Lee Kuan Yew: Mr Speaker, Sir, may I correct my motion for amendment? In my amendment, I had asked for the deletion of the whole of the phrase which follows "in each case", forgetting that "pending the covering approval of this Assembly", in fact, covered both the first clause - the expenditure of the $10,000 - and the revote clause. Now, I would ask that my amendment be corrected to read "delete 'and revotes of provision approved in the previous year' ", leaving behind "pending the covering approval of this Assembly". That was the amendment I intended.

Mr Speaker: There is no provision in the Standing Orders to amend an amendment like this, but since there has been an indication that some Members would like to leave in the words "pending the covering approval of this Assembly", I propose to take that amendment in two parts, so that the Question which I will propose is that "the words 'and revotes of provision approved in the previous year' be left out" in the first instance. That Question is now before the House.

Mr M. P. D. Nair (Seletar): Sir, I would propose an amendment to the amendment.

The Chief Minister: On a point of order, Sir. The amendment not having been taken, can there be an amendment, Sir?

Mr Nair: I would add the following words after the word "Assembly", "within one month of the end of the financial year". [Interruption.]

Mr Speaker: Order.

The Chief Minister: That is not an amendment to the amendment.

Mr Speaker: Will you wait until I try and explain it to you? The Question now before the House is that the following words be left out of the original Question:

"and revotes of provision approved in the previous year".

Now that is the Question before the House. If you want to make any amendment to that amendment, you may do so.

Mr Lee Kuan Yew: Mr Speaker, Sir, may I refer to Standing Orders Nos. 25 and 26? In view of the amendment which my Friend the Member for Seletar (Mr M. P. D. Nair) proposes to move, I would beg leave to withdraw my amendment.

Mr Speaker: No, you can only withdraw your amendment by leave of the Assembly under Standing Order No. 29. Have you got the leave of the Assembly?

Mr Goode: Sir, under Standing Order No. 36, I move the Question be now put.

Mr Speaker: No! I will not allow that! You understand what I am asking you? Is it your pleasure that this proposed amendment be withdrawn?

The Chief Minister: No!

Mr Speaker: Any other person wishes to speak on that amendment? I will put that amendment.

Question, "That the words 'and revotes of provision approved in the previous year' proposed to be left out, be left out," put, and negatived.

Question, "That the words 'pending the covering approval of this Assembly' proposed to be left out, be left out," put, and negatived.

Mr Speaker: You are left with the original Question that is now before the House.

Mr Nair: Sir, may I have your permission to move an amendment? I would like to move an amendment as follows:

"After the word 'Assembly', add the following words 'within one month of the end of the financial year' ".

I think the object of this amendment is quite clear, and I need not emphasise it. We want the -

Mr Speaker: Can I have it in writing, please?

Amendment handed in.

Mr Nair: The object of this amendment, Sir, is that the Government should ask for the covering approval within one month -

Mr Speaker: Order, please. Will the Member please indicate which Assembly he means? Which word does he mean - the first line or the last line?

Mr Nair: The last line, Sir.

Mr Speaker: Right.

Mr Nair: The object of the amendment, Sir, is that we would like the Government to ask for covering approval within one month of the end of the financial year and not afterwards.

Mr Speaker: Have you got a seconder? [Interruption.] Order, order. No seconder? We cannot take the amendment. The original Question is still before the House.

The Chief Minister: Mr Speaker, Sir, I move that the Question be put.

Mr Speaker: No, I am afraid not.

Inche Ahmad Bin Ibrahim: Mr Speaker, Sir, I wish to second the amendment put forward by the Member for Seletar.

Mr Speaker: It is too late now. Is there anybody else who wishes to speak on the original Question? The Question then is:

That this Assembly resolves that the Government should be empowered to authorise expenditure on new services up to a limit of $10,000 in each case, and revotes of provision approved in the previous year, pending the covering approval of this Assembly.

Mr Hart, would you like to reply?

Mr Hart: I do not think there is any point to reply to.

Original Question put, and agreed to.

Resolved,

That this Assembly resolves that the Government should be empowered to authorise expenditure on new services up to a limit of $10,000 in each case, and revotes of provision approved in the previous year, pending the covering approval of this Assembly.