DESTRUCTION OF DISEASE-BEARING INSECTS BILL

Order for Second Reading read.

6.36 p.m.

The Minister for Health (Mr Chua Sian Chin): Mr Speaker, Sir, I beg to move, "That the Bill be now read a Second time."

In the Addendum to the President's Speech at the opening of Parliament, it was stated that public health legislation is being consolidated into a comprehensive Environmental Health Code, capable of maintaining the highest standards of public health required in a modern complex urban society. This Bill before the House is the first of such codified new laws which will be introduced to bring about effective control over public health. In this case, it covers disease-bearing insect vectors, principally mosquitoes and flies.

This Bill replaces the 50-year old Destruction of Mosquitoes Ordinance (Cap. 139) which was mainly for the control of malaria by measures specifically aimed against malarial mosquitoes. The control and destruction of what are commonly known as "nuisance" mosquitoes has become a major problem in recent years. The laws, however, have been inadequate to cope with the health problems created by these "nuisance" mosquitoes, such as the Aedes and Culex mosquitoes which are now established to be capable of transmitting diseases. Similarly, the laws are also found to be inadequate to deal with health problems created by disease-bearing insect vectors, like flies, fleas, etc.

The Aedes aegypti mosquito, which breeds in artificial water-bearing receptacles, is the vector responsible for the transmission of haemorrhagic fever, dengue fever and yellow fever. There is also the danger of bancroftian filariasis which is transmitted by Culex fatigans, a mosquito which breeds in polluted stagnant water in blocked drains. The common house-fly is a carrier of food and water-borne diseases of the gastro-intestinal tract, namely, cholera, typhoid, food poisoning, enteritis in children and poliomyelitis The flea is a parasite which lives on the rat and is responsible for rodent plague, a disease which has shown recrudescence in some countries in Southeast Asia.

Complaints of mosquito nuisances have remained consistently high over the last ten years. Factors such as the efficiency of the Health Ministry's work force and the quality of the supervision and discipline are important but not enough to effect a reduction or elimination of these nuisances. Effective action against all the creators of these nuisances is not possible under the existing Destruction of Mosquitoes Ordinance or the Local Government Integration Ordinance because of its limited provisions aimed essentially, despite its title, at malarial control. The rapid urbanisation and other physical development in Singapore in the form of vast building schemes and land reclamation have led to the indiscriminate dumping and storage of building materials and the blocking of natural drainage. As a result of these activities, ideal conditions are created under which disease-bearing insects can harbour and propagate, unless the necessary precautions are taken by those responsible for these activities. The high incidence of haemorrhagic fever with 815 cases, including 21 deaths, in 1967 reflects a serious health hazard which makes it vital that there be effective urban control of mosquitoes which can no longer be regarded merely as nuisances.

The evolution of Singapore as the fourth largest port in the world and the increasing air traffic at our Paya Lebar International Airport require adequate provision to deal with the disease-bearing insects likely to be brought into the country from ships and ocean-going vessels and from aircraft. Singapore is a "yellow fever receptive area", which means that conditions exist under which this disease can be introduced into the country. Effective powers to deal with aircraft and to carry out disinsectisation when indicated are therefore necessary.

[Mr Deputy Speaker in the Chair]

6.40 p.m.

The Minister for Health (Mr Chua Sian Chin): In the light of the seriousness of the mosquito and other insect vector problems, as well as the recognition of the fact that much of this is man-made, new powers and methods to cope with the situation are needed.

These insects cannot be allowed to proliferate unchecked as they will constitute a serious danger to public health. Effective legislation, based on modern scientific methods of eliminating and controlling these insect vectors, need to be enacted to cope with this growing problem.

In framing this new piece of legislation, the opportunity has been taken to enhance the preventive and control measures and its enforcement by providing for more effective action and deterrent penalties. Powers for summary action and for composition of the lesser offences have been included in this Bill. The emphasis is on preventing the creation of harmful conditions rather than allowing the conditions to occur and then taking remedial action.

The Bill also aims to recognise the changes in the administrative structure since the integration of local authorities by adopting the styles of titles and form consistent with the present and proposed administrative organisation of public health services.

The main features of the Bill are:

(a) It retains the basic provisions in the old Ordinance that are required for the control of malaria - transmitting mosquitoes.

(b) It streamlines the administrative lines consequent on the integration of the local authorities; defines the functions and powers to be exercised at different levels - the Minister, the Director of Medical Services, the Commissioner of Public Health and/or the Medical Officer of Health and the Public Health Auxiliary.

(c) It broadens the powers to take action to cover all disease-bearing insects and vests new powers for summary action, medical examination of infected persons, blood examination and insecticide spraying.

(d) It provides powers to obtain information necessary for epidemiological investigations and control measures.

(e) Ships and aircraft are for the first time brought within the scope of this Bill, as they are now regarded as a potential source of introduction of new vectors of diseases from some other territories.

Distinction is made between the overall policy direction and the routine implementation and execution of the various provisions in the Bill.

Clause 3 provides that the Director of Medical Services shall have general superintendence of all matters relating to this Bill, subject to the general or special directions of the Minister.

The task of administering the Bill will be largely in the hands of the Commissioner of Public Health and/or Medical Officers of Health (as defined), who are to be assisted by Public Health Auxiliaries. The Commissioner of Public Health and such number of Deputy Commissioners and Assistant Commissioners of Public Health shall under clause 4 be appointed by the President. The Minister may also, by clause 3, invest any other medical practitioner in the service of the Government with all or any of the powers conferred on a Medical Officer of Health.

Clause 5 provides that the Commissioner, or the Medical Officer of Health, or a Public Health Auxiliary may enter and examine any premises or vessel between the hours of 6 o'clock in the morning and 6 o'clock in the evening to ascertain whether such premises or vessel or anything therein is in a condition favourable to the propagation or harbouring of disease-bearing insects and further to carry out, if necessary, the spraying of such premises or vessel with insecticide. The Medical Officer of Health may, in addition, examine any person from such premises or vessel to ascertain whether such person is suffering from or is a carrier of any insect-borne disease. If so, he is empowered to treat medically such person or to cause a post-mortem examination to be performed on any corpse found in such premises or vessel. Mr Deputy Speaker, Sir, this power is absolutely neces sary since we know that it is quite a fashion among some youths in this country to grow long hair that may harbour the flea that may carry the plague. Where it is expedient for inspection of premises to be made after the prescribed hours, at least 24 hours' prior notice shall be given to the occupiers thereof.

Clause 6 prohibits any person from taking, doing or performing any act or thing which may or is liable to create conditions favourable to the propagation and harbouring of disease-bearing insects. Every person shall comply with all such reasonable directions as may he given by the Commissioner, or Medical Officer of Health or a Public Health Auxiliary.

Clause 7 prohibits the breeding, collecting, distributing, importing or exporting of any disease-bearing insects without the express written permission of the Commissioner or Medical Officer of Health. Such permission may be granted at the discretion of the Commissioner or Medical Officer of Health, if he is satisfied that the application is made for the purposes of science, education or research and shall be subject to such conditions as the Commissioner or Medical Officer of Health may deem fit to impose.

Any person who undertakes or carries out any operation likely to create conditions which may be favourable to the propagation or harbouring of disease-bearing insects must have his plans approved under clause 8.

Clause 9 specifies the powers of the Commissioner or Medical Officer of Health to direct any owner or occupier of premises to carry out specified mea sures with regard to the premises for the treatment, destruction or removal of anything therein as may bring them into a condition unfavourable to the propagation or harbourage of disease-bearing insects. If the circumstances so warrant, discretionary power is given to tile Commissioner or the Medical Officer of Health to execute the necessary measures himself. The costs and expenses will, of course, be charged to the owner or occupier, as the case may be. This is an important power that gives tile authorities a speedy means to bring about the destruction and removal of conditions favourable to the propagation and harbouring of disease-bearing insects and charge the occupiers or owners for the costs and expenses incurred.

The clearing of undergrowth under certain conditions without the previous sanction of the Commissioner or Medical Officer of Health is prohibited under clause 10.

Clause 11 sets out the general measures which may be taken by the Commissioner or the Medical Officer of Health, or the Public Health Auxiliary with the consent of the occupier of any premises to whom due notice has been given. The newer method of spraying premises or vessels with residual insecticides is provided for in clause 13.

The power to examine medically any person who is infected or suspected of being infected with an insect-borne disease is provided for in clause 12. Epidemiological investigations of insect-borne diseases will be facilitated by clause 14 which enables the Commissioner or a Medical Officer of Health to demand relevant information.

The procedure for enforcement and service of orders under the Bill is dealt with in clauses 15 and 16 respectively. Any owner or occupier who is dissatisfied with any of the measures specified in the notice may, by clause 17, appeal to the Minister within 14 days of the date of such order.

Clause 20 places the responsibility on the owner or occupier of premises to look after any works which have been executed by the Government with the object of preventing the breeding of disease-bearing insects.

Clauses 21, 22 and 23 provide penalties for offences under the Bill, while clause 24 provides for police assistance where needed. These penalties have been enhanced.

In order to deal with offenders more expeditious1y, clause 25 gives power to the Commissioner or any public officer authorised in writing on that behalf by the Minister, to compound any offence committed under clauses 6, 7, 8, 10 and 13 by accepting from a person reasonably suspected of having committed such offence a sum of money not exceeding $500.

Clause 26 repeats the previous provision in the Destruction of Mosquitoes Ordinance, making the Bill applicable to all property, including that of Government.

This Bill will provide the legal foundation to enable more effective control of disease-bearing insects, so that we shall be able to prevent the creation of foci of infections, the wastage of manpower through ill health and the needless expenditure of large amounts f public money to correct many situations which need not have arisen in the first place. A new outlook is called for. The Environmental Health Services must be considered on a broad and integrated basis with the emphasis placed on preventive rather than on remedial action.

Mr Deputy Speaker, Sir, I beg to move.

Question proposed.

6.56 p.m.

Mr Teong Eng Siong: (In Mandarin): Mr Deputy Speaker, Sir, as I understand it, the main purpose of the Bill is to destroy harmful insects so as to safeguard the health of our people and thus make Singapore the cleanest city in Asia. I think the introduction of this Bill has a particular significance to the Minister for Health. Only a few days after he took over the reins of office, there occurred several cases of cholera in Singapore. Of course, according to investigations made later, it was discovered that the disease was brought into Singapore from outside. In any case, the occurrence of this disease indicated that, on the one hand, the health of the public was endangered and, on the other, it posed a challenge to our young and energetic Minister for Health to show whether he had the ability to deal with this matter.

[Mr Speaker in the Chair]

6.57 p.m.

Mr Teong Eng Siong: The result showed that our young and energetic Minister for Health had the capacity to deal with this matter, although he is suffering from a cold today! When the cases of cholera came to light, he immediately launched a counter offensive by implementing new health regulations. A nation-wide health campaign was launched. With the full co-operation of all the people of this country, we have officially declared war on all harmful insects. We are determined to exterminate them entirely.

The definition of "disease-bearing insect" in this Bill is very extensive. In addition to mosquitoes and flies, it also includes the eggs, larvae and pupae of such insects.

The Bill is quite meticulous and thorough. Its aim is to eradicate all sources of harmful insects. No doubt this is praiseworthy. But the question is whether its aims can be achieved. This depends on whether the department charged with the carrying out of this work can do its work efficiently.

Another important aspect is the co-operation of the general masses. It is only when they understand the importance of maintaining hygienic conditions anti comply with health regulations - that is, by not throwing rubbish on to open spaces and into the drains - that we can effectively maintain a high level of public health. Towards this end, the Ministry of Health has decided to launch a nation-wide health campaign in October. This is a very appropriate measure.

At the present moment, the most pressing problem is how to destroy mosquitoes and flies. As we know, the reason for the breeding and multiplication of mosquitoes and flies is the existence of stagnant water and the choking of drains. There are two factors which have brought about this situation. First, the inefficiency of the Public Cleansing Department. Second, the indiscriminate throwing of litter by some people. If this is so, we must apply allopathic treatment to hit the nail on its head. First, we must remedy the inefficiency in the Public Cleansing Department. It must maintain its work of steadily and efficiently clearing the drains. Second, we must educate our people to abide by the health regulations and instil in them a sense of civic consciousness. And all this with a view to impressing the tourists, because the first impression of the tourists is the health condition of our people.

With regard to hawkers, they must be persuaded to clear their own rubbish after their business is over. In this respect, we hope the hawkers' organisations will come forward and persuade their members to comply with the health regulations. This will very soon make Singapore the cleanest and most beautiful garden city in Southeast Asia in the true sense of the word. In this way, we will have a better reputation in the world. Sir, I support the Bill.

7.00 p.m.

Mr Yeoh Ghim Seng: Mr Speaker, Sir, in rising in support of this Bill I have two queries to make. (1) How is the Ministry going to destroy fleas by not destroying rats? (2) Why is it that cockroaches are not included in the Bill?

Sir, as the Minister has rightly pointed out, fleas, if infected, can cause plague and I can see no way of getting rid of fleas by means of insecticides unless rats are destroyed at the same time. I was hoping that the Minister was going to tell us of a "get rid of rats campaign" in Singapore. I hope he will do that.

As regards cockroaches, they are, as everyone knows, scavengers among the insect world and may easily be disease-bearing insects. I understand in certain medical quarters, cockroaches might be considered to be carriers of viral hepatitis. Everyone knows that viral hepatitis is quite a fatal disease. I gather from the Ministry of Health statistics that there were 700 cases of hepatitis last year of which 47 were fatal. I hope the Minister will find ways and means of telling us how he is going to destroy cockroaches in Singapore.

7.01 p.m.

Mr Rodrigo: Sir, while I welcome the purport of this Bill, I must express my uneasiness at what appears to be and could be an unbridled enthusiasm with which the provisions of this Bill may be implemented by the officials of the Ministry once it becomes law. I note that this is a Bill of 29 clauses. One-third or nine of the provisions are penal. In the nine penal clauses which impose various penalties for various offences, one clause - clause 6 - does not specifically describe the offence for which a penalty is imposed. There is another clause which encroaches upon the universal rule that a person's body is inviolate and should not be medically examined unless he gives his permission. There is also one clause which disallows compensation for expenses incurred by a person for damages.

I hope, therefore, that the rigour expressed in this Bill does not herald other Bills that will be issuing forth from the Ministry of Health, since the Minister himself has said recently that this is only the beginning.

7.03 p.m.

Mr Conceicao: Mr Speaker, Sir, I would like to comment briefly in strong support of this Bill. There seems to be too many beelzebubs, lords of flies and insects, who, with impunity, encourage the breeding of insects by their irresponsible actions. I am personally acquainted with a situation in which river dredgings have been decanted on to a vacant piece of land with all the consequent effects on the health of the people who live in the vicinity - dredgings which contain receptacles, rotten logs, broken pails and so on. I hope, Sir, once this Bill becomes law, it will be implemented most promptly and with great vigour. In this, I beg to differ from the hon. Member for Serangoon Gardens.

I agree with the Member for Sembawang who says that the composition of this Bill is most thorough. There is even a clause which states that if there is any quaint person who wishes to breed, keep, collect, distribute, sell, import or export any disease-bearing insects, all he needs is the permission in writing of the Commissioner or a Medical Officer of Health.

Sir, I support this Bill.

7.05 p.m.

Madam Chan Choy Siong: (In Mandarin): Mr Speaker, Sir, I rise in support of this Bill and all the effective measures to destroy disease-bearing insects in order to improve the environmental health of Singapore. We should not deal with this matter only on paper. We should also take effective action at the same time.

Last year, we were told of an anti-mosquito campaign. But until today, we have not heard anything further. There has been no vigorous action in this direction. The result is that mosquitoes breed everywhere in Singapore. Flies can be seen all over the city. We can even see flies in Parliament House. All this is because of two factors. The first is the inefficiency of the public cleansing workers. I have been told that there will be a thorough reorganisation of the Cleansing Department. I feel that the present reorganisation has not been effective. There must be a thorough reorganisation so that the Public Cleansing Department will be efficient.

The second factor is the behaviour of the public. These two factors, in my view, must be considered together. The officers of the Public Cleansing Department must necessarily make an overall review of their own position. In respect of the public, the Ministry of Health has recently taken some action to inculcate in them the importance of health. In this respect, I have a suggestion to make. In launching educational campaigns, such as the campaign to be launched in October this year, action should be taken to rally all civic organisations and form an anti harmful insects organisation.

For example, last month there was a seminar conducted by the People's Association on the role of community centres and environmental health. The main theme of the seminar was how to promote a healthy environment. The participants were from various civic organisations and they were ready to co-operate with the Government to improve environmental health and to turn Singapore into the most beautiful and cleanest city in Southeast Asia. Therefore, I suggest that the Ministry of Health call a meeting of leaders of civic organisations to discuss the question of improving the environmental health of Singapore.

At the same time, there should be a competition to name the cleanest streets in Singapore. These should be given recognition and rewarded. In this way, we can encourage our people to improve environmental health more positively and expeditiously. This is my humble suggestion.

7.09 p.m.

Mr Chua Sian Chin: Mr Speaker, Sir, first of all, I wish to thank all the hon. Members who have spoken giving ardent support for this Bill. I would also like to make some general comments on what they have said.

First, I would like to deal with what the Member for Sembawang has stated. He says that the problem of mosquitoes and flies can only be tackled by a two-pronged attack on it. Firstly, the public health workers must be a disciplined and efficient force. Secondly, there must be co-operation from members of the public. I could not agree with him more because I myself have stated in this House that that is the only way to solve this very big problem in our Republic.

As regards the reorganisation of the public health cleansing force, I wish to tell hon. Members that this is now nearing completion. The reorganised set-up will be in force as from 15th August this year. Reorganisation started less than four months ago. But I assure hon. Members that after 15th August, there should be some results because the reorganisation will then have been implemented.

The other matter about which I wish to inform hon. Members is that with the passing of the Employment Bill yesterday, it is now possible for the Ministry of Health to implement another very important programme, i.e., to get its public cleansing workers to work 365 days a year, including Sundays and holidays. I assure hon. Members that this will also have its effect on the problem of flies and mosquitoes.

The Member for Joo Chiat has mentioned two specific problems posed by rats and cockroaches. I would like to correct him by saying that although I did not specifically mention that cockroaches are also included in the Bill, the Bill covers all disease-bearing insects. If the Member for Joo Chiat says that cockroaches are disease-bearing insects, then by definition they must come within the purview of the Bill. He is a medical man and as he has given an expert opinion, I will accept that. Therefore, cockroaches are included in the Bill.

As far as rats are concerned, I agree with him that we must first catch the rats in order to get at the fleas. It is not that the Ministry of Health have not in mind a rat-catching campaign, but they must first deal with the disposal of rubbish. We will launch this anti-litter campaign in October and I assure hon. Members that as soon as we finish with that, we will go on to cockroaches, rats and so on. I am sure many hon. Members here who are young and energetic will certainly co-operate and support us physically in our rat-catching campaign. I also hope that the Member for Ulu Pandan, who is past 55 years, will also support us in the rat-catching campaign.

The Member for Serangoon Gardens has said that certain provisions in the Bill, when implemented, might result in unbridled enthusiasm on the part of my Ministry's officials. I will be very happy if that is the case.

The Member for Delta, on the other hand, has expressed some misgivings that this campaign, although announced, might not come off at all. I assure her and other hon. Members that it will be conducted with vigour, and this time I hope we shall succeed.

As for the suggestion by the Member for Delta about seeking the aid of all civic organisations, that is certainly what we have in mind in our October campaign. We will be seeking their participation and if they have a mass following, we shall invite them to participate.

The Member for Delta has also another good suggestion - that we should hold a competition to name the cleanest streets in Singapore. But we have an even better suggestion. We shall not only name the ten cleanest streets but also the ten dirtiest streets in Singapore, and woe betide hon. Members within whose constituencies those ten dirtiest streets might happen to be!

Finally, may I say something about the provisions on compensation? It is stated in clause 19 of the Bill that no compensation will be paid for any expense incurred or damage occasioned by any act done in pursuance of the provisions of the Bill unless such damage has been occasioned maliciously or without reasonable cause. In such matters as control of mosquitoes, flies and disease-bearing insects, such a provision is necessary. I can assure hon. Members that, in the exercise of their duties, my officials will be instructed to handle with care the property of the occupiers on whose premises they conduct an inspection, and that they will be given strict instructions that they should not take any action which will unnecessarily result in damage to property.

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. - [Mr Chua Sian Chin].

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