ROAD TRAFFIC (AMENDMENT) BILL

[Mr SPEAKER in the Chair]

Order for Second Reading read.

The Attorney-General (Mr C. H. Butterfield): Mr Speaker, Sir, I move, "That the Bill be now read a Second time."

Sir, the purpose of this Bill is to enable more effective action to be taken against the drivers and owners of private motor vehicles which are used as taxis although they are not licensed for that purpose. These vehicles, Sir, are, of course, commonly known as "pirate" taxis and they undoubtedly operate in Singapore in considerable numbers. The Commission of Inquiry into the Public Passenger Transport System of Singapore which reported in January 1956 had before it evidence that the total number of these taxis was of the order of 5,000 and there is no reason to suppose that the number is substantially lower today.

Sir, I appreciate that to some members of the public, pirate taxis may appear to be a blessing rather than a menace as they have been described and I propose therefore to refer briefly to the case against it - the case which, in effect, justifies in the view of the Government the provisions of this Bill. That case was summarised in paragraph 385 of the Commission of Inquiry into the Public Passenger Transport System of Singapore and, with your permission, Sir, I would like to read that paragraph:

"The operation of these 'pirate' taxis is in our view a practice which should be stamped out, it permits fares to be charged which would not be possible if the 'pirate' taxis paid their proper licence fees. It can undermine the finances of the public services, and in the end result in poorer services for those who rely upon them. It takes business away from the taxis proper, which are regularly inspected and properly licensed. It involves the carriage of passengers without insurance cover, for the insurance policy is invalid in the case of accidents which occur when the vehicles are improperly used. It adds to congestion on the streets, because of the small carrying capacity of the vehicles compared with buses. And in any event it is illegal."

Now, Sir, I think that hon. Members will probably agree that one of the most serious objections to the use of pirate taxis on the roads is the fact that their use is not covered by any form of insurance. In consequence, the only remedy left to persons, including the passengers in these vehicles, who may be injured in the event of an accident in which one of these vehicles may be involved is an action against the driver with no right of indemnity against any insurance company and, as a result, Sir, in such a case, the dependants of persons killed or injured in an accident of that kind may very well be left entirely destitute. Another factor is that it is the experience of the police that pirate taxis are frequently used by law-breakers because the tracing of a pirate taxi is, of course, often a very difficult matter.

For these reasons, Sir, the authorities have always done what they can to take action to bring drivers of pirate taxis before the courts but they have been considerably hampered by reason of the difficulties they have experienced both in investigating particular cases and in producing evidence, in effect, in proving charges. At the same time, Sir, it does seem clear that the limitation on the number of taxis which may be licensed, which has only recently been lifted, was an important contributory cause of the activities of pirate taxis and it has therefore been the Government's view that any new legislation designed to make the control of pirate taxis more effective should only be introduced after this limit had been removed. As Members of the Assembly are, I think, generally aware, this has now been done. The limit on the number of vehicles which may be licensed as taxis has been, so to speak, abolished and, in consequence, Sir, the Government in introducing this Bill does so in the hope and, of course, with the intention that it will give the authorities the powers they require to suppress the activities of pirate taxis. For this purpose the Bill is designed to enable action to be taken against the owners of vehicles which are used as pirate taxis as well as against those who drive them and it provides for imprisonment in addition or as an alternative to a fine for second or subsequent convictions. That, Sir, is provided for by clause 2.

Clause 3 contains the major part of the amendments which are now proposed to the Road Traffic Ordinance and the proposals which it makes, Sir, if they are adopted, will confer on the Registrar of Vehicles and on his officers, if they are in uniform, certain additional powers in cases where they have grounds for believing that a vehicle is being used as a taxi without being licensed for that purpose. These additional powers, Sir, include the power to arrest the driver if the Registrar suspects that the name and the address which he has given are false and the Bill also proposes to confer on the Registrar and his officers, if they are in uniform, and also to confer on any police officer in uniform, the power to arrest any person who appears to have been a passenger in a pirate taxi if that person refuses to give his name and address. This will, Sir, it is hoped ensure that their evidence will be available should it be required if proceedings are instituted against the driver or the owner of the vehicle.

I have not much more to say, Sir, at this stage, but I would just summarise the position in this way. The Government takes the view that these additional provisions to deal with pirate taxis are the minimum necessary and I hope that that view will be shared generally by Members of this Assembly. It may be suggested that the Bill does not go far enough and that greatly enhanced penalties including perhaps the power to order the confiscation of vehicles should have been provided for. It is, however, the view of the Government that the primary object of this legislation should be to enable effective action to be taken against persons who operate unlicensed vehicles as taxis rather than to impose very heavy penalties.

The Government, Sir, takes the view that the provisions of this Bill combined with the effects of delimitation will enable the activities of the pirate taxis to be very greatly reduced but if experience does show that this Bill does not go far enough, the Government will not hesitate to come back to this Assembly and to ask for further powers to be conferred on the appropriate authorities by legislation. Sir, I beg to move.

Question proposed.

2.40 p.m.

Mr Lim Choon Mong: Mr Speaker, Sir, Government may introduce any number of Bills. Government may introduce all sorts of measures but Government cannot introduce a Bill to force co-operation. Co-operation must come willingly from the people and whatever Bill is to be introduced depends on the goodwill of the people concerned.

In this matter, Government will have to do a great deal more to infuse confidence into the public and make them want to co-operate with the authorities. The existence of pirate taxis is an evil, not because it comes about of its own free will. It is created by our bad transport system. If our transport system had been good and if it had been convenient for everybody to travel by this means to their places of employment and homes, pirate taxis cannot exist: I should say that people would not even want to own private cars if the public transport system is good. I have been to London and I noticed that they have a good system of public transport. Even owners of cars do not make use of their cars but prefer to use public transport which is cheap and efficient. This evil is not because of anything else, but is due to Government being slow in making this public transport system efficient. Another cause for the existence of pirate taxis, I will say, stems from another fault of the Government - unemployment. Nobody in this world would want to go against the law if he can help it. Nobody would want to operate a pirate taxi knowing that operating it is against the law but when faced with the problem of starvation for himself and for his family because there is no job available, there is a Chinese saying that it is better to postpone death than to have immediate death. In this case, it is unemployment that has caused these pirate taxis to flourish.

We must remember, Sir, that we are introducing this system in order to make the people of Singapore observe the law. We must be aware, Sir, that in Singapore there are people who operate such taxis because of necessity. It is wrong to do that. I do not say that it is right. These people need to have some time to find alternative jobs and Government must help them in this. A period of grace should be given to them so that they can find alternative jobs.

I have heard that Government intends to delimit taxis but it will be interesting to know that delimiting taxis by the City Council on the advice of Government is carried out in a fair manner. It has come to my knowledge that it is not possible to obtain a new car from the car dealers. All new cars have been booked up - all cars that can be converted into taxis have been booked up by certain individuals.

Mr Braga: By the Progressive Party.

Mr Lim Choon Mong: It has been pointed out by many people outside this Assembly that huge profits have been made out of this. If this is a measure put forward by the Government to introduce new taxis and somebody is cashing in on it, well, something is definitely wrong. I think about it this way. You want to take away the pirate taxis and you want the owners to become legally licensed taxi owners. The way to go about it is not to say, "You must have a new car before you can be granted a licence." Why not allow existing cars to be registered? There is a certain standard which must be maintained and we can make them observe that standard: get their cars repaired to a state whereby it will be safe for the people. If this were to be implemented, then it would give a true chance to those people who are at present operating these pirate taxis to get licences for new taxis; but if the system of licensing taxis only when they come fresh from the salesroom is imposed this will only help unscrupulous individuals to corner the market, make the money and yet deny the chance of lawful employment to those people who are affected. If these people whom the Government is setting out to help are faced with such a problem, they are only again becoming drivers for new taxi owners. Government should think about this seriously and try to see if it could help.

Of course, everything said about the pirate taxis may be true. They break the law, they take away revenue and they are not able to give compensation if they are involved in accidents, but I would like to remind Government that their help was called upon when there was that general transport strike. Whether such services rendered are to be taken into account, I do not know, but I think that if the Government is a fair one - one that thinks of the good a section of the population has done - then it should be taken into account and a period of grace should be given to these people. I personally feel that if old cars now being used as pirate taxis could be licensed, it will help immensely.

2.50 p.m.

Mr Lim Cher Kheng (Changi): Mr Speaker, Sir, as a legislator, without any hesitation, I rise to support this Bill but as a representative of the people, I would wish the Government to consider my suggestions.

Sir, the Explanatory Note reads:

"The object of this Bill is to enable more effective action to be taken against the drivers and owners of motor vehicles which are used as taxis without a public service vehicle licence."

It is straightforward and this Bill is intended to deal with the so-called "pirate" taxis. The Hon. the Attorney-General stated that not only do these pirate taxis break the law by not paying licence fees, but the important thing is that most of them are not covered by proper insurance. Therefore the passengers are not positively covered. Also, most of the pirate taxis have been used to break the law. I am sure that no hon. Member can deny these facts.

Sir, let us trace the history of the existence of these pirate taxis. I cannot agree more with the Member for Serangoon when he just now mentioned that the existence of these pirate taxis was mainly due to mass unemployment. People find it hard to get a job, so they try to find an easier way. If there is a supply, there is a demand, and vice versa. There is a need for transport services, especially when there is a strike on by the buses. I still remember, Sir, during the Hock Lee riots and the strike by the Singapore Traction Company, that I suggested the relaxation of certain measures against the pirate taxis because, during that time, it could be said that our entire transport facilities had come to a stop and that the pirate taxis then rendered a valuable service. They were running in the most reasonable way. For example, I took three trips-

Mr Butterfield: In a pirate taxi?

Mr Lim Cher Kheng: One from Robinson Road to Alexandra Road, for which I paid 50 cents; from Bras Basah Road to Serangoon Road, I paid 70 cents, and from Changi Market to Changi Point, I paid 50 cents. I think it was a wonderful service to the public during that period. Therefore there is a reason for their existence and they could render a valuable service, of course, at a time when we need such services but, of course, we do not hope to have a general transport strike every time.

Sir, I would also remind the House that the rural population always rely on the pirate taxis for their transport which hon. Members who stay in town or who have their own cars may not realise. Sir, as an Assemblyman for the rural areas, I know quite well that the rural people find it hard to get a taxi especially when somebody is sick. They rely mostly on the five or ten pirate taxis run by the kampong folk. The operators of the pirate taxis are also kampong folk and they know one another very well. Therefore, when a member of the family is sick, they simply say, "Come on, I need you. Send us to the hospital or somewhere else." Therefore I would like to put forward this point for consideration - that in the rural areas, the existence of pirate taxis in many ways has become a necessity.

As I understand it, Sir, at present, we have two types of taxis. One is what we know as taxis now, and the other with garage licences and the letters on their licence plates. Although these cars with the letters "SZ" on their licence plates are private cars, the main purpose, as I learned, is to allow Service personnel to make use of them, but, as a matter of fact, these licensed cars which are supposed to be reserved for Service personnel are usually used by the public as well. Therefore, since the Service personnel have a special privilege, why can we not consider another system for the service of the rural residents too? Poor people mostly stay in the rural areas and they have no cars. They need a quick and cheap means of transport and the pirate taxis can serve that purpose. So if we have taxis with the letters "SZ" on their licence plates, why can we not create another class of transport to be made available for the rural folk in the most convenient and economical way? We can register all those pirate taxis running in the rural areas, especially those stationed in kampongs, reduce the fare and also reduce some of the so-called checks on the vehicles, like a change of vehicles after three or five years, and so on, which the rural people cannot afford. So my suggestion is that we should give consideration to the rural area pirate taxi-runners and try to find a way to settle the problem in the light of a long-term policy. They know that they are breaking the law and they know that they will be punished if they are caught but they are forced to do so because of unemployment.

The second point I want to touch upon is that as soon as this Bill has been passed - it is now going through its Second Reading and I am sure that it will pass its Third Reading - new and unlimited taxi licences will be issued. Sir, although I do not agree with the views contained in an anonymous letter which I received since I pressed for the setting up of an Anti-Corruption Inquiry Commission, I received several complaints about the issue of new taxi licences. To demonstrate the true democratic spirit, limitation in the number of taxi licences to be issued should be decided by the taxi-drivers themselves. Public opinion is now divided. Some say that the taxi-drivers are fighting very hard against the delimitation of taxi licences. Others say, "No, that is not true. They are only influenced by a few remnants with the support of capitalists. They sell their own taxis and now they want to try and make their money back." So there is a controversy about the issue of new taxi licences. Why cannot the Government take a stand to call all registered taxi licensees to attend a meeting and take a decision? That is the easiest and most democratic way. Some of the registered licensed taxi-drivers want more taxi licences to be issued. Others say, "No, we do not want that. At present, we find it very hard to make enough money." My suggestion I think, will clear up a lot of misunderstandings, rumours, allegations of corrupt practice, and so on.

Sir, as a legislator, I am bound by duty to support the Bill to allow the Government to institute law and order but, as a representative of the rural people, I hope that the Government will consider the few points I have raised, especially the issue of new licences and the calling of a general meeting of all taxi-drivers to take a decision democratically.

3.00 p.m.

Mr Goh Tong Liang (Bukit Panjang): Mr Speaker, Sir, I have a small point to mention. If the Government were to agree to allow these alleged pirate taxis to be licensed as legal taxis, there naturally will be periodical examination for mechanical defects. What I would wish to plead is that when they hold the examination, it should not be spiteful.

Mr Lee Choon Eng: Mr Speaker, Sir, of all the speeches I have heard in this Assembly this afternoon, there was one which was one of the most ambiguous speeches ever made. The Member for Changi (Mr Lim Cher Kheng) claims that he is fully aware that pirate taxis are illegal and yet he encourages the running of pirate taxis. I really cannot understand it. In one instance-

Mr Lim Cher Kheng: On a point of order, Sir. I have not said that I supported the pirate taxis. I only wish the Government would consider the creation of another class of licensed taxis.

Mr Speaker: It is not a point of order. It is a point of explanation.

Mr Lee Choon Eng: I am fully conscious he did not say that he supported the pirate taxis but I said that he encouraged the running of pirate taxis. In the first instance, when he opened his speech, he said that he supported this Bill and he went on further to say that this pirate taxi trade was of benefit to the people because it provided cheaper fares. As a Member of this Assembly, he is fully aware that pirate taxis are illegal, but he himself has travelled in and encouraged the running of pirate taxis. I cannot really understand, Sir. It is not a question of whether you get cheaper fares or whether it is convenient or inconvenient to get a taxi. The question is one of law and we must, as Members of this Assembly, stick to the law. He himself claims to be a legislator of all legislation and yet he comes to this Assembly to say, "I think that it is beneficial to the public and that we should co-operate with them." The thing is this. In asking the Government to create another class of taxis, I think the Member is fully aware that there is already another class under the serial of "SZ" and if anybody wants to run pirate taxis legally, he could apply to the Registrar of Vehicles for that serial of "SZ". There is no question of any limitation on "SZ" at all. I can not understand that a man who claims himself as a legislator could come here and speak otherwise.

3.03 p.m.

Mr J. M. Jumabhoy: Mr Speaker, Sir, I am sorry that the Member for Serangoon is not in the House at this moment. He told us that the pirate taxis were created because of the bad transport system prevailing in Singapore and he said, "This evil is due to the reason that the Government is slow in making public transport efficient." Sir, I am inclined to use certain words which I am afraid you will not permit me to use but I must say that this statement is far from the truth. Firstly, up to very recently, the public transport system was not under the control of the Government at all. It was entirely under the control of the City Council - a City Council dominated by the Liberal-Socialist Party.

Mr William Tan (Tiong Bahru): Nonsense.

Mr J. M. Jumabhoy: Of course. Pirate taxis are not only the result of the bad transport system of Singapore. Pirate taxis are the result of the policy of a Liberal-Socialist City Council which kept the vested interests of those who held taxis of paramount importance against the needs of the country.

Sir, this city has grown in population and in size. Suburbs have been developed and therefore the need for more taxis has been apparent for many, many years and yet we find the City Council carrying out a running battle, preventing the Labour Front from carrying out its policy of delimitation of taxis. "The limit should be 1,560 and no more" and that limit was there for years and years in spite of the city increasing in size and in boundary! Sir, the Labour Front had a tough time in the City Council to carry through its policy of delimitation of taxis. There is such a thing as the law of supply and demand and the demand was there for more taxis but the Liberal-Socialists in the City Council refused to satisfy the demand so that the vested interests could continue their exploitation. Yet we hear of glib talk of Government not making public transport efficient - the public transport which was under their control all the time until Government thought it wise to take it over recently!

Then comes the plea, "Unemployment is another cause for these poor people who go out taking pirate taxis to earn a living." Why can you not legalise it? Why do you stand in the way of legalizing it? Let them have them as licensed taxis. They will be willing to go and get their licences. But no, you want to keep them as illegal operators.

Mr Speaker: Do I, Mr Minister?

Mr J. M. Jumabhoy: No, Sir. Not you but the Liberal-Socialists in the City Council. I am sorry.

And now we have the "champion" of the poor pirate taxi operator asking for grace in order that he should be able to find an alternative job. Why is there any need for the operator of a pirate taxi to find an alternative job? He could go and get his taxi licence if only the Liberal-Socialists in the City Council would permit him to do so by saying, "We are not asking for new taxis. We will relax and let the old taxis be licensed." It is entirely a matter for the City Council whether they want to permit new taxis to be licensed only or whether they would allow old cars to be licensed with certain modifications. But they would not; and yet Government is going to be blamed for it!

The Member for Bukit Panjang (Mr Goh Tong Liang) said, "Examination of taxis should not be spiteful." I wish he would tell that to the Liberal-Socialist element in the City Council.

Mr Braga: Liberal but not Socialist.

Mr John Ede: Mr Speaker, Sir, I should like to correct the last speaker on one point. It is well known that the Liberal-Socialists were not against the delimitation in the number of taxis in principle but they said that such delimitation should not take place until amending legislation to control pirate taxis was introduced. The fact that this Bill is before us now is a victory for the Liberal-Socialist policy over the stubborness of the Government.

An hon. Member: Eyewash.

Mr Braga: Electioneering.

The Chief Minister: Mr Speaker, Sir, on the one hand, the Member for Tanglin claims that the introduction of this Bill is a victory for the Liberal-Socialists whereas two other Liberal-Socialist speakers do their best to condemn this legislation.

Mr Butterfield rose-

Mr Speaker: Mr Attorney-General, in reply?

Mr Butterfield: In reply, Sir. In view of the way in which the debate has gone. I do not think that there is very much I have to say in reply but I was very glad to notice that although they expressed themselves in different ways, as I understood them, all those who spoke on the other side seemed to support this Bill.

There are two matters which I should like to correct. It seemed to me that both the Member for Serangoon and the Member for Bukit Panjang are under the impression that the licensing of taxis has got something to do with the Government. It has nothing to do with the Government at all. It is a matter for the Registrar and for the City Council.

The final observation which I would like to make is that I was astonished to hear the Member for Serangoon talk about the Government's intention to delimit taxis. Surely, he knows that this it a matter which has been dealt with by the City Council, that it is a matter for the City Council and that steps have already been taken by the City Council to delimit the number of vehicles which may be licensed.

Question put, and agreed to.

Bill accordingly read a Second time.