PRESIDENT'S SPEECH Debate on the Address (Fifth Day)

Order read for Resumption of Debate on Question [14th February. 1977].

`That the following address in reply to the Speech of the President be agreed to:-

"We, the Parliament of the Republic of Singapore, express our thanks to the President for the Speech which he delivered on behalf of the Government at the opening of the First Session of this Parliament".'. - [Dr Chiang Hai Ding].

Question again proposed.

2.41 p.m.

The Minister of State, Prime Minister's Office (Haji Ya'acob Bin Mohamed): (In Malay): Mr Speaker, Sir, to continue with my speech, allow me to recapitulate briefly what I said yesterday because it has some bearing on what I am going to say today. Although we in this House are all from one party it does not mean that our Government is adopting a one-party policy because all of us were returned in the process of parliamentary democratic elections. The opposition parties were defeated at the last general elections; nothing more can be done because this is the will of the people. Parliamentary democracy will not exist if the communists gain control of Singapore because they are the arch enemy to the democratic system. Indeed, if they hold power not only will we be absent from this Chamber, we may be in jail or buried six feet underground. But neither will the opposition parties exist except the stooges. Although they have been defeated and have failed to dominate the student organisations and trade unions so far, they are not the type of people who despair quickly. Revelations of the past years amongst students and also the revelations of the activities perpetrated by G. Raman are proof that their objectives will be persistently carried out from time to time.

Sir, yesterday I said that there were opposition parties which openly were anti-communist parties, but in the recent general elections these opposition parties consciously or unconsciously exploited communist issues in order to catch votes so that they could get one or two seats in Parliament. This is dangerous if we are not careful and if we fail to comprehend our situation, i.e, that we face this communist menace. The communists can feel proud because communist issues were used by the opposition parties during the last elections, and that the anti-PAP votes amounting to 26% could be intended for the communists; though not all of such votes. Perhaps it could be due to our mistake that there were votes cast against us at the last elections. In the name of democracy, I wish to call upon this House and to the opposition parties outside of this Chamber who believe in the principles of parliamentary democracy not to be deceived or fall into the trap of the clarion call or influence of the communists in order to gain one or two seats at the expense of the interests of our beloved country. There are signs in the forthcoming elections that if the communists are unsuccessful in an attempt to control this country through violence, they would opt one or two political parties to replace the Barisan Sosialis which has been ostracised by the people, and they would then use these parties to oppose the party that has complete faith in parliamentary democracy, especially our party. We Members of Parliament are representatives of the people and we are expected to express the wishes of the people. Because we come from the same party, the voice in this Chamber can be regarded as self-correction for the purpose of taking remedial measures. For almost 18 years that I have served in this Chamber I had no opportunity to speak as a Member of Parliament. Perhaps. Mr Speaker too, since his election to this House, could not make representation on the aspirations of the people he represents. But now I have the opportunity today to say a few words, not as a Minister of State, but as a Member of Parliament representing the Kampong Ubi constituency. Hopefully, perhaps my little contribution will not offend some of my colleagues, neither will it create any misunderstanding at all. We know that there is no government in this world that can offer everything to everyone.

I will not repeat what has been said by Members over the last few days, but I wish to add bits and pieces. For the past few years we have tried to evolve a Singapore society, rugged, self-reliant and disciplined. These principles have been the theme of our message to all the people in the Republic. But from day to day we seem to hear less of these slogans. What we see, of late, is not a rugged, self-disciplined society as we are hoping for, but moral decadence among our youths. They imitate the western hippies. They take to drugs. We realise that our small country, without any natural resources, depends solely on our human resources for our development. We depend on our youth because youth is the backbone of any national development. I do not know where the fault lies. Is it because our life depends solely on materialism or that the implementation of our education policy has deviated to the extent that students show no respect for teachers while the children show no respect for their parents? Where does the fault lie? There is the theory that drug addiction is the result of activities of anti-national elements, especially the communists whose aim is to destroy our youth by the use of drugs and hippism so that in the long term our youth has no future. It would then be easy for the communists to influence them and they can then easily rule our country. I hope the Ministry concerned will go deeply into this theory because moral decadence, drug addiction, etc, do not affect those students who are less educated. Many youths who are in secondary school and who have completed secondary education are drug addicts. This is very strange. So this is a matter which we must look into. We hope to build a rugged society, self-reliant and disciplined, but unfortunately today the reverse has taken place. We will be questioned later on. At a time when we hold power and the world acknowledges our progress in the fields of economy and nation building, our grandchildren will condemn us, "How is it that during your period of rule the moral of our grandfathers regressed? Their lives were destroyed with the result that we, the grandchildren, are in a similar position." To avoid such accusation. I hope hon. Members of the House will ponder together. We should think deeply into this with a view to finding a solution. We realise that we should educate our children in line with the principle that our youths should be educated. Give our children an education different from that which we have obtained, because they were born for their era, not ours, and because their era is different from that of ours. But if we bequeath to our children moral decadence or if they are influenced by anti-national elements, it would indeed be a great pity to see our success in the various fields of nation building destroyed by them in a very short time, all because the basic values for their future had not been sound enough. I hope that the relevant Ministry sets up a commission of inquiry into the causes of moral decadence among our youth, and to make recommendations on the ways and means of overcoming these problems. There is no difference between the communist menace and the dangers of moral decadence among our youth. If drug traffickers, pro-communists and others, whose country of origin is outside of Singapore but subsequently obtained Singapore citizenship, are found and proven guilty of such perpetrations then the Government should automatically cancel their citizenships and drive them away from this country There is no Ministry yet to really focus attention to lead our youths on the correct path If we cannot create a special department for the youth, a youth and sports bureau should be set up to look after their problems.

As the Member for Kampong Ubi, I share the views expressed by hon. Members in the House since the debate began. For instance, although this is a small matter but as a Member of Parliament who holds "Meet-the-People" sessions, there are many matters which are brought to my knowledge and which need the assistance of a Member of Parliament. One is the matter of Government officers passing on the buck. If the people want houses, "Go to the MP". If they want licences, "Go to the MP." Incidentally, I happen to be a Minister of State, better still, "Approach the Minister of State." We emphasise that in the present, Government there is no political nepotism. So we must inform these officers that disciplinary action may be taken if they are not careful. Likewise, with regard to payments, here and there people are complaining about payments. Why extra payments for this month? Why merely in respect of PUB charges? If the people write back to appeal, the answer is, "Pay up first and complain later." I remember that when I was a member of the People's Defence Force my superior ordered me to do something and I was not supposed to object. "Do it first and complain later " This is what is happening now. If we pay up first, we will have to wait for three or four months before we can get a refund, This is the problem, Mr Speaker, Sir, I raise this problem because in my constituency, which is a poor constituency, a person earning $200 per month has to budget for food, and this and that. If they have to pay excessive amounts on monthly bills, it is not possible for them to draw up a budget. They will be forced to borrow or to pawn their belongings.

Another problem in Kampong Ubi concerns resettlement. I do not object to resettlement In fact, the question of resettlement has been a political issue since 1972. When I returned from the Philippines the then Minister for Law and National Development notified that Alsagoff estate would be acquired. The people agreed to the acquisition and resettlement for the purpose of redevelopment. Then 1973 passed on until today. What I regret most is the modus operand,' of resettlement. In the kampongs sometimes only a portion of it is cleared; five families would be resettled in the north, seven or eight families in the south, 10 families in the east, and six families in the centre. The houses of those families who had left were not looked after. In the end, the remaining families are scattered here and there. They suffered for more than two years They sent appeals to the Urban and Rural Services Committee to have the drains repaired, and the reply was that the houses would be affected by resettlement but they took two years to move them out. A doctor knows which particular disease requires an operation, but before he operates on his patients he would at least prescribe Panadol to relieve the pain. However, not a single action was taken This happened in my constituency of Kampong Ubi. So there was an absence of fair play. The clearance was carried out haphazardly. The people were told to keep the area clean but mosquitoes were found breeding in stagnant water in the area. As a Member of Parliament. I appeal to the Minister concerned to take action. Clearance should be taken in an orderly fashion, say. start with Jalan Labu, and not clear five houses in Jalan Labu and then another five houses in Jalan Kachang. This is not fair to the families because empty houses become the centre for drug addiction. This was the case in a recent fire which occurred in Geylang Serai, where an empty house was found to have been used as a drug den. This is the after-effect of resettlement.

Another aspect of resettlement is that the officers are not trained in their work., They give an assurance to the people that they will be offered alternative accommodation, but when the time comes there is no accommodation "The houses have been occupied." When asked for a reason, they were told to see the MP. The MP says that, "The flats have been occupied, and therefore, the resettlement officers should not make promises." All that I have related actually happened in Kampong Ubi. I have not touched upon the problems in other constituencies.

Another matter which bedevils the people is citizenship. We are aware that in certain countries the granting of citizenship is tightly controlled. I agree with this policy. But what I regret is that because of the fault of certain parents their children who were born in Singapore had their names misreported at the police station in those days. At that time police officers passed only Standard II or III. For example, the name of "Chang" was changed to "Chong"; "Mohammed" was changed to "Ahmad", and mis-spellings occurred. There are also people who were born in Singapore but are now stateless. They have no country of origin. Is it right that the children should be punished by becoming stateless because of the fault or sin of their parents? This problem, Mr Speaker, Sir, should be given due and weighty consideration.

I was born in Malaysia but I came to Singapore. I became a Singapore citizen and I can enjoy the rights of a citizen of Singapore. In fact, I am a Member of Parliament. Why is it that those who were born in Singapore, but because of the fault of their parents, have become stateless? I have harped on this matter in this House many a time because this issue, on the basis of humanitarian consideration, should be given weighty consideration.

I am not concerned about those who were born outside Singapore I am concerned merely with people who were born in Singapore. Nevertheless, those who were born outside Singapore should also be given consideration. In the spirit of ASEAN we should act. so that our citizens who were born in ASEAN countries, for instance, if 100 of them obtained citizenship we should reciprocate on a mutual basis. Sometimes in a family you find that the wife is a Singaporean and the husband a non-Singaporean, or the wife is a foreigner and the husband a Singaporean. This situation is commonly found for many years now. Before the introduction of family planning such a family may have 10 children and yet they are without Singapore citizenship. In the spirit of ASEAN we should discuss this aspect passionately. We do not wish other citizens to become our citizens. I think this is not quite just

These are the points that are constantly brought up by my constituents who see me during my meet-the-people sessions. As the Member for Kampong Ubi, they put these grievances to me and, as I said earlier. the most important question is our youth. We hope that the Ministry concerned will take positive measures so that we will not be branded by our grandchildren later on. We cannot be proud of our developments, successes and achievements so long as our children suffer from moral decadence.

With this, Sir, I support the Motion moved by the Member for Ulu Pandan.

Some hon. Members: Hear, hear!

3.10 p.m.

The Senior Parliamentary Secretary to the Minister for the Environment (Mr Chor Yeok Eng): (In Mandarin): Mr Speaker, Sir, since the President made his policy speech in this House, many Members have spoken in the debate giving their criticisms or views, many of which seemed quite all right, moderate or objective. They merit the attention of this House and the attention of the Ministries concerned. On the other hand, certain criticisms do not seem practical; they even run counter to the policies and principles of the Government. Therefore, it behoves the Ministries concerned to reply, explain or to correct such criticisms.

Sir, I believe hon. Members will agree with my views, that in the present living environment there are many matters which are easier to talk about than to act, not to speak of the complex entity of a society consisting of a very complicated structure made up of diverse factors. If we emphasise only one aspect of something it may lead to the neglect of other aspects. So only a balanced development can help maintain a balanced progress of a society. There is a Chinese saying to illustrate this point "Though the peony flower is beautiful, it needs green leaves to contrast and bring out its beauty." Moreover, before the plant can grow luxuriantly the gardener has to take a long time and much effort to fertilise, water and to cultivate the plant before it can come into bloom. Therefore, if we just look at things superficially without a deeper understanding and make certain assertions about them, that may not be correct. Therefore, I would like to correct certain criticisms levelled at the Environment Ministry by certain Members. At the same time, I will go a step further to explain the objects and the work of my Ministry.

Sir, first of all. I will reply to the two points of criticism made by the Member for Changi. The Member expressed his dissatisfaction about certain hawker inspectors of the Ministry of the Environment for having taken action against certain unlicensed hawkers. I would like to ask him: if unlicensed hawkers are allowed the same rights as licensed hawkers, then what is the point of the Government issuing licences to the hawkers? What then is the use of setting up markets and food centres? Between these two categories of hawkers there must be some distinction made before the Ministry concerned can know how to exercise control. Furthermore, this matter is closely linked with the question of the maintenance of public hygiene and cleanliness and the preservation of the purity of water supply to ensure that there is no pollution. How are you going to exercise these functions without proper control? Sir. before us is a realistic question, do we want an orderly society or a loosely knit, undisciplined homestead? As a responsible Government we have to maintain law, order and peace for the people, and not just to curry favour with them. In so doing we may offend some people, but because of our duty and responsibility we have to try our best.

The problem of hawkers had been dealt with between 1966 and 1973, that is a period of seven years, during which there was a nation-wide registration of hawkers and issuing licences to them. At present. there are altogether some 28,700 hawkers. Compared with the present population of our country, the number of hawkers is quite sufficient. In the Adendum to the President's speech this point has also been clearly stated. On the other hand, I am sure Members of this House may not want to see a resurgence of the old situation some ten years ago where the roads, car parks and public places were all congested with hawkers, At that time unemployment was at its height. But today the situation is entirely different. We are faced with a shortage of labour. We had to issue thousands of work permits to allow foreigners to come here to work. So the question we are facing now is not the lack of jobs but the manpower. Under these circumstances, I believe the Members will, of course, be very clear about what to do and what to follow.

The Member for Changi has made another criticism. He criticised that the hawker inspectors have been taking action only in the Backbenchers' constituencies and not in the Ministers' constituencies. This is again even more incorrect. Let me quote some figures to the Member for his reference. Since September 1976 until recently, in the Changi constituency there were only seven cases of summons against hawkers. In the Kreta Ayer constituency there were 52 summonses issued.

The Senior Parliamentary Secretary to the Minister for Labour (Mr Fong Sip Chee): (In Mandarin): Sir, on a point of clarification. The comparison does not seem to be quite correct, because in Changi there are very few hawkers whereas in Kreta Ayer constituency there are so many. Therefore, the use of such a comparison is not quite appropriate. It would seem that the Senior Parliamentary Secretary stands suspect of misleading the House.

Mr Chor Yeok Eng: (In Mandarin): Sir, I believe the Member for Kampong Chai Chee has forgotten another point. Changi is a much bigger area, perhaps 10 to 20 times bigger than Kreta Ayer. In view of this, the difference in the number of hawkers may not be so great. Maybe we have got to wait for another day when a proper survey can be made of the number of hawkers in these two constituencies.

In the Kreta Ayer constituency there were 52 summonses issued. In the Rochore constituency there were 59 cases where hawkers were issued with summonses. At the same time, I have to reiterate that in 1967 when the exercise of adjustment of hawkers and the issue of licences was undertaken, the first constituency to have such action taken was Geylang West which was the constituency of the Minister who was in charge of the Hawkers Department then. The second constituency where the operation was done was Tanjong Pagar, the Prime Minister's constituency. From these facts we can say that we do not make any discrimination at all.

Let me now talk about certain questions raised by the Member for Whampoa. He said that we should allocate more hawker stalls to those who are old, poor, destitute or those hardship cases. In fact, the Government has paid attention to this point for many years. But from our experience this is not a good way to help. I would like to say further that the allocation of stalls has been done after a thorough planning and consideration. The truth is that only with proper planning and operation can they make a profit. It is not just a matter of being allocated a stall and you can then make money. More important is that if you allot a large number of stalls to the old or destitute at the same place where the stall-holders lack experience, then it will be of no help to them. Perhaps they might be responsible for the poor business of that hawker centre, and thus they would land themselves in greater difficulty. The Member also wants to know about the conditions for the allocation of 5% of licences to hardship cases, This is not easy to enumerate. I can only tell him briefly that -

Dr Augustine H. H. Tan (Whampoa): Mr Speaker, Sir, on a point of clarification. The Senior Parliamentary Secretary referred to the criteria for the allocation of stalls to old people. Mr Speaker, Sir, my point was that these are people with no other means of livelihood, Although they may have had no previous experience in hawking they still want to give it a try. So why cannot they be given a hawker stall? I have in front of me a letter written by the Hawkers Department to a hawker's application for a stall. If I may read out the criteria listed here:

`I refer to your request ... [etc].

I wish to inform you that this Department has ceased issuing new hawker licences. However, consideration wit be given to applicants if they could , produce documentary proof:

(a) that they have citizen/permanent resident dependants to support;

(b) that they are unable to get alternative employment on justifiable grounds: for example. physical disability:

(c) that they are in financial hardship: and

(d) that they are 40 years old and above.'

Sir, this means that if an old man does not have any children to support, he is, therefore, not eligible. Or if old people are deserted by their children - the children may be earning a lot of money but they are not filial and do not give a cent to the old parents who are then left high and dry, stranded without any means of financial support, again they are not eligible. So what do you do about such old people? According to the four criteria listed, I do not think anybody can qualify at all.

Mr Chor Yeok Eng: (In Mandarin): Sir, just now the Member for Whampoa spelt out the criteria. If there is anybody who satisfies any one of the four criteria listed, of course, he will be considered. Now let me continue. Concerning the definition or conditions on the issue of licences to the 5% hardship cases -

Dr Augustine Tan: Sir, the Parliamentary Secretary has not replied to my question.

Mr Chor Yeok Eng: (In Mandarin): Sir, allow me to continue. He has a lot of opportunity to air his views. Sir, other than what has been said about such people being poor, destitute, old, or in hardship, as the Member has said, there is another situation which will also have to be considered. That is when someone who is affected by Government's clearance scheme is required to be resettled and would thereby lose his means of livelihood.

Now the other criticism is about the raising of hawkers' fees which might lead to an increase in prices.

Mr Fong Sip Chee: Point of clarification, Sir.

Mr Chor Yeok Eng: (In Mandarin): I do not wish to give way, Sir. He will have a lot of time and opportunity to air his views. On this point we have made a careful consideration. In fact, the Government is not trying to increase hawker fees. In fact, it is only a matter of reducing the subsidy given because the subsidy to every hawker stall has been quite substantial and has to be reduced gradually from now. In fact, the present rate is still far less than what is being charged by the private hawker stalls, such as in private eating houses or coffee shops. It is about one-half or one-third of the fees charged by the private hawker stall proprietors. Whatever it is, when adjusting the fees to be charged, Members will be given an opportunity to discuss and debate the matter. When the time comes, if the Member for Whampoa can extend his vision further to understand the real situation without looking through his own blurred glasses -

Dr Augustine Tan: Sir, on a point of clarification. Sir, before the fees are raised, we should be given an opportunity to discuss, and not after.

Mr Barker: That was what he said.

Mr Chor Yeok Eng: I will come to the point.

(In Mandarin) Sir, if he can see further, he will realise that the hawkers do not constitute a significant number in the business population to influence the prices of commodities. The Member for Sembawang appears to be putting on the same shoes as the Member for Whampoa on this matter. It is the manufacturers/distributors, importers and more important the production countries that are responsible for the high increase in prices of commodities and inflation. Anyway, when we make adjustments to hawkers' fees, then hon. Members will have an opportunity to discuss or debate about this matter before we come to any conclusion or decision.

The third point raised by the Member is that the Government should not abolish pasar ma/am which is a characteristic feature of nightlife in Singapore. In fact, there are many features of nightlife in Singapore, not just pasar ma/am alone. In addition this is a matter that affects the Government's long-term planning. The decisive factor as to whether pasar malam should be retained depends on several factors, such as whether the pasar ma/am is in a residential area, or along a main thoroughfare, or whether they will cause complaints of inconvenience to the residents, such as complaints of interference with traffic, noise and pollution, which the Government cannot just disregard. In such cases, the Government will have to consider the reallocation of sites for pasar ma/am hawkers to enable them to continue with their old trade of making a living. Such new sites may be in a market.

The last point mentioned is that street hawkers should not be moved into a market or food centre where business is poor. This suggestion runs counter to the Government's policy and principle and is therefore difficult to accept. The main intention of the Government in the setting up of markets and food centres is to raise the standard of hygiene and to provide better services to the residents. Whether or not the removal of open-air street hawkers from their shabby pitches to well constructed food centres with better facilities will lead to better business actually depends on the individual hawker rather than the location. For instance, if the operator is not "positive" or a person without drive and his food does not suit his customers, then even though the locality is good, he may not get any good business. On the other hand, if he can provide cheap and good food and his services meet with the requirements of his customers, then even if his stall is at a somewhat lonely place, many customers will still go to his stall.

As regards the choice of locality for setting up new markets and food centres and the provision of ancillary amenities, we have all along been dealing with such matters very carefully. We have always considered the need for a suitable locality for the convenience of the residents and customers. Generally, they are centrally placed and we would also provide supplementary facilities such as car parks, tables and chairs, sufficient space and other basic facilities.

Sir, generally speaking, in this age of progress there will be produced two kinds of situations. In one situation, the people can change and adapt to the new environment, where they will be quite comfortable and march forward together with the progress. On the other hand, there will be those who cannot understand and hesitate; they do not adapt to the new situation and cannot face the challenge. So they become "drop-outs." I have full sympathy with such unfortunate people. At the same time, I hope they will strive to catch up with time and compete with the situation for their own good. I would like to appeal to the Member for Whampoa who is a learned and well informed economist and must be quite well versed with economic matters and the vicissitudes of economic situations. He should be able to show the people what to do and where to go. Therefore, I hope he can point out a way to such "drop-outs" to look for a new economic way out for them - of course, not to become hawkers alone - so as to provide new opportunities for them to make a living.

At the same time, I would like to thank the Member for Anson for reminding me that we should pay more attention to penalising those hawker licence holders who do not operate the stalls but sub-letting their licence to other hawkers for profit. I thank the Member for such concern over the malpractice of sub-letting hawker licences, and we shall pay attention to him as we have always done so.

Sir, after replying to all these questions. I would also like to avail myself of this opportunity to talk about the situation of our Ministry of the Environment staff to enlighten Members. These uniformed field officers, in the course of their duty, are often faced with a difficult and dangerous situation. Sometimes they have to carry out their duty late at night. Last month, there was a case where a thunder flash was thrown at a few staff of our Ministry when they were carrying out their duty in the early hours of the morning. Fortunately, nobody was injured. They were then dealing with a few cases of illegal foreign hawkers. If I do not explain this situation, Members may not quite understand. I have said earlier that a society consists of various units which interlink. So, in such diverse units, certain members of society occupy jobs which are better than the others. There are still others who carry out certain jobs which are less desired. Perhaps, we can say that it is individual luck, just as what is said in the Three Kingdoms. The strategist Kun Ming said: "Man proposes. God disposes." So, there must be somebody occupying some place in the society. Such are the difficulties and onerous tasks faced by the hawker inspectors. They are also part and parcel of our citizenry. In the course of their heavy duty, there may be certain faults or shortcomings. Very often these faults are quickly seized upon and criticised. However, seldom do we hear of any praises for any good work done by them in difficult circumstances. This is not fair to them. Therefore, lately, this work of uniformed officers is a job not liked by the young members of our society. For the same reason, there are people who are already in this kind of job in the Government service and they also want to leave. I am not trying to argue for them or to defend them. What I am saying is that there should be some clearcut line drawn between what is right and to be rewarded and what is wrong and to be punished. My contention is that if any of them has committed any serious and inexcusable error, then he should be severely punished. On the other hand, if any of them has not committed any error but has accumulated merits for diligent and faithful work, then we should by word or deed give them some commendation or encouragement. Seriously speaking, if we are short of such loyal and faithful uniformed personnel, then it will be worse for the people of Singapore and they cannot enjoy a life as comfortable as the one they have now, So, in view of this, we should not single them out and cavil too much about their faults and shortcomings. I believe that Members of this House will share my views.

Dr Augustine Tan: Sir, a point of clarification. Let me hasten to add that the Hawkers Department has done a very good job indeed in re-locating the majority of hawkers in good hawker centres. My point is that I am not against the re-location policy as such, but simply requiring hawkers, already in good locations but on the streets, to move into those hawker stalls which have been vacant for a long time because the sites of those stalls are not good for business. I do recognise that there is a personal element involved - that some people are just no good at doing business. But we are talking about hawkers who are holding temporary licences and who are doing well in their present location.

I think, in our resettlement policies in general, not too much attention has been given to the loss of business incurred by the people who are forced to resettle in the process, whether they are shopkeepers or hawkers. I have no quarrels with the general policy of requiring our young people to go out and work to learn a skill and so on rather than taking up hawking. But at the same time let us be mindful of people who are old and who are widows, who either have no alternative means of livelihood or in the case of a widow, which the Senior Parliamentary Secretary chose to ignore altogether, is really a very pathetic one, Sir, As I said earlier in this House, she may be below 40 years or above 40 years, and if she has three or four children to support and if she only qualifies for a $200" a month job as a sweeper or cleaner, how can she possibly support the children? At the same time if she has to go out and work, she cannot bring the children along with them. So she has to rely upon a baby sitter. But if she is given a hawker stall, she at least can have the younger children with her and that will save her the additional expense of a baby sitter. So I hope the Hawkers Department will relent in this particular regard, namely, for hawkers and for widows and also for other people who are resettled, like farmers who have no other means of livelihood.

As we urbanise rapidly, the opportunities for the small man are disappearing rapidly. If anybody wants to start a provision shop or any kind of shop nowadays, he has to tender thousands of dollars per month rental in order to get any kind of business going. When a farmer is resettled into a Housing and Development Board flat, he loses the supplementary income that he can derive from having a few chickens, pigs and growing some vegetables. What can you do in a one-room flat if your children are not supporting you, and your rentals and PUB bills have to be paid, and the Hawkers Department just refuses to give you a hawker's licence? What alternative -

Mr Speaker: Dr Tan, I think your point has been taken.

The Minister for National Development and Communications (Mr Lim Kim San): Sir, I think he is making a statement.

Mr Speaker: Yes.

Mr Chor Yeok Eng: (In Mandarin): I think the Member for Whampoa has not paid attention to my reply. He made several points regarding the old, the widowed and the destitutes. In my reply I said that the Government has all along been paying attention to all these hardship cases. But what I was trying to say was that, in the same locality you cannot put all the same type of people together because it was of no help to them. On the other hand, it would contribute to poor business in such centres because all these people might be inexperienced in their business.

On another matter raised by him, namely. resettlement. I would say that under the Government resettlement scheme we certainly give favourable consideration to people who are required to be resettled and have thus lost their means of livelihood. We have in actual fact taken care of them.

The Leader of the House (Mr E. W. Barker): Sir, Members can certainly speak freely but there are certain rules of debate in this House. Perhaps I should remind every Member that when they get up on a point of clarification, they are to make their point but not a five-minute speech.

3.50 p.m.

The Minister for Labour (Mr Ong Pang Boon): Mr Speaker, Sir, I would like to take this opportunity to elaborate on some of the more important aspects of labour policies which are outlined in the Addendum to the Address.

We do not have natural resources or a big enough domestic market. Our continued well being depends on our ability to attract foreign investments and to sell our goods and services abroad. We were able to do this in the late 60's and early 70's aided by a favourable international economic situation. As a result we achieved double digit economic growth rates and enjoyed the benefits of successful development. Jobs were created. Wage increases were announced by the National Wages Council. There were increases and improvement in social services.

However, the international economic environment has grown difficult. With the more than quadrupling of oil prices and fear of inflation, the industrial nations of the West have aimed for a modest growth rate of 5% per annum till the end of the 70's. The unemployment rates in these countries are expected to remain high. In 1976, the world economic recovery slowed down. Though the US, Japan and West Germany have announced their intention to stimulate their economies, the international economic situation for 1977 remains uncertain.

OECD countries are our main sources of investments. They are also our important trading partners. Given the economic problems in these countries, investments will be difficult to come by. Furthermore, we will have to face competition for investments from our competitors like South Korea and Taiwan. Our competitors will also be marketing products and services in competition with us in these and other countries.

Given increased difficulties in getting foreign investments and increased market competition and the need to find jobs for the 26,300 school leavers who will be entering the labour market each year for the next few years, policies to maximise our ability to persuade local and foreign capital to set up factories here and for overseas markets to buy our goods and services are called for. Where labour is concerned, it is in their long term interest that unions help to maintain industrial peace and pursue realistic wage and fringe benefits demands.

Across-the-board wage increases and increases in the range and quantum of fringe benefits would not be possible in the immediate period ahead. Wage and other increases have to be tied to higher productivity. It is a tribute to the trade union leadership that it has moved in this direction. In the 1975/76 National Wages Council session, the union leadership has accepted full-offsetting of built-in annual increments and a freeze on fringe benefits. The National Wages Council will look into the question of offsetting of not only annual increments but all forms of increases in remuneration.

Two aspects of wage policies attracted considerable publicity recently. One related to the payment of annual wage supplement. Honourable Members will no doubt recall that in April 1972, the National Wages Council, in an effort to end multitudinous disputes over bonuses and to provide for orderly wage increases, recommended that employers be given the option of choosing either an Annual Wage Supplement (AWS( plus Annual Bonus or Annual Wage Increase plus AWS. It also recommended the freezing of the levels of the Annual Wage Supplement. For those who had paid bonuses of a month's wages or more before, the Annual Wage Supplement would be calculated on the average of the bonuses of the last three years or the last annual bonus, whichever was higher, subject to a maximum of three months' wages. The only variation allowed was a decrease in the Annual Wage Supplement when trading result or productivity diminishes significantly. For those who had not paid bonuses or paid them at less than one month's wage, the Annual Wage Supplement should not exceed one month's wage. The annual bonus paid under the first option was negotiable subject to a maximum of three months' wages. These NWC recommendations were incorporated in an amendment to Section 46 of the Employment Act which were debated and approved in this House and became operative in July 1972. However, it was subsequently found that firms could still legally pay Annual Wage Supplement in excess of the frozen quantum. On 26.12.75 Section 46 was further amended to make it mandatory for employers and unions to observe the frozen levels of Annual Wage Supplement. At the same time, provision was made for employers to make additional payments subject to a maximum of three months' wages with the written prior consent of the Minister for Finance.

The hon. Member for Bukit Ho Swee has suggested that employers be allowed to pay Annual Wage Supplement up to a maximum of three months' wages without having to apply for Government approval and that unions be given the right to request for higher AWS if employers made substantial profits. These proposals will mean a re-opening of negotiations on additional AWS payments in the case of many firms whose frozen quantum of AWS is below three months' wages. This will be contrary to the objective of the Government's wage policy of reducing disputes over bonuses in the form of Annual Wage Supplement and providing for orderly wage increases largely through the form of NWC wage guidelines It will also not be appropriate given the uncertain and more difficult future ahead of us.

According to a survey of 2,016 firms conducted last year by my Ministry, 168 firms, employing 25,192 workers, were found to have been paying AWS in excess of the frozen quantum. Firms which have not been paying additional AWS in the past should continue to pay only the frozen amount of AWS. The problem lies with those who have paid above the frozen levels in the past. In the interest of industrial relations, the Government has allowed these companies to maintain the 1975 level of additional AWS payments if they continue to make profit in the year of application. If, however, in 1976 or subsequent years, such companies incur losses, no additional AWS payment will be allowed and they will therefore pay only the frozen amount of AWS. This is a reasonable solution to the problem of those who have paid additional AWS contrary to the policy laid down in 1972.

The other aspect relates to fringe benefits. The last NWC session had recommended a freeze on the range and quantum of fringe benefits for existing companies and the provision of the minimum in the Employment Act for new companies. There had been press reports that some employers had tried to take advantage of the present situation by withdrawing accustomed fringe benefits from their employees after they have joined a trade union. My Ministry considers such actions anti-union and contrary to the spirit of tripartism which has been the foundation of our industrial harmony. Unless there are very good reasons, the same fringe benefits should be paid as before unionisation A freeze on fringe benefits is a good first step. The subject needs further deliberation by the NWC. Fringe benefits need to be rationalised and "bizarre" ones or those which are not conducive to our economic growth should be discontinued.

Mr Speaker, Sir, our workers will need to be conscientious and disciplined They must strive for higher skills and competence in the years ahead to enable Singapore to achieve a comfortable level of economic growth in the midst of a less promising future of the world economy. The practice of job-hopping among our young workers must be curbed. In most cases, job-hopping among our workers can be attributed to their lack of dedication and professional pride in their job and their impatient pursuit for higher monetary rewards and rapid promotion As a measure to discourage job-hopping for frivolous reasons, the National Wages Council will be considering whether employees who job-hop should enjoy the full wage increase recommended. Several hon. Members have spoken on job-hopping. Their concern and reservations on the matter will be taken fully into account by the Council when it deals with the subject. I have no doubt that in making its recommendations, the Council will be mindful of those workers who change jobs because of a genuine search for opportunity to improve their skills. Monetary disincentive at best will alleviate the problem to some extent. The long term solution lies in employers taking more initiatives in building up a stable workforce through better motivation and concern for their workers.

Mr Speaker, Sir, our entrepreneurs and managers must also play their part in preserving and improving our competitiveness. They must pursue more aggressive marketing policies. They must seek more determinedly to improve the productivity of their firms. The onus of raising productivity rests with management. Despite much encouragement on the part of the Government, not much progress has been made in this field. Part of the problem seems to be that both employers and unions do not know very much of the subject beyond the desirability of the principle of higher productivity. The hon. Member for Boon Lay himself has said he does not know what is productivity. One can assume that members of the public know even less about the matter. The National Productivity Board will have to do more promotional work in the field of productivity. For the benefit of those who were absent in this House last week when the Member for Whampoa elucidated on the subject, I would like to add that productivity means how well one uses our resources whether it is capital, labour, materials or machinery, to produce goods and services. An increase in productivity can result from using the same amount of resources but getting increased output or value of services provided Alternatively, you may get higher productivity by producing the same amount of goods or value of services with reduced amount of resources. Productivity increases can be obtained through better or more efficient use of either one or more of the resources used for production. Thus, management can be improved, the technology used upgraded or labour induced to give of their best.

The National Wages Council has been grappling with this problem during its last few sessions. It has come to the correct conclusion that while it can exhort employers and unions to higher productivity, productivity guidelines should be worked out at the plant level. I have been informed by the National Productivity Board that areas for productivity improvement in our firms are many. Employers should initiate action to make better use of the resources of their firms. If they have difficulties in this regard, the National Productivity Board will provide the necessary assistance. The Board can train managers, supervisors and workers in modern management techniques and systems. It also has a team of experienced consultants who can provide technical advice to companies to improve their methods and quality of production and their marketing and financial systems.

Management should also work out productivity incentive schemes. The benefits of higher productivity must be shared between employers and workers This having been said, it should be recognised that schemes to increase productivity will have to be worked out, implemented, and positive results achieved before incentive schemes are drawn up. The demand by union for incentives as a pre-condition to increase productivity is the other reason why employers have adopted a lukewarm attitude towards any productivity scheme.

In opening the NTUC Seminar on "Maximising the Benefits of Productivity" at the Trade Union House on 29th October, 1976 of NTUC advised the participants that productivity programmes must precede incentive schemes, not vice versa, and that a more rewarding strategy for trade unions will be to get productivity programmes going, make them yield results, and then proceed to the negotiating table with confidence, and self-respect. I would like to commend the MPs who have spoken on this subject in this House as well as the unionists outside to take note of their leader's advice. Nevertheless, it is gratifying to note that a number of companies have on their own initiative implemented productivity incentive schemes. Again the National Productivity Board will provide the necessary assistance to firms which may have difficulties in setting up such schemes. The Board has a corps of industrial engineering consultants who are experienced in setting up standards of performances which are basic to productivity incentive schemes.

Mr Speaker, Sir, last year the state of industrial relations remained stable and harmonious. There were fewer number of strikes and other forms of industrial actions than the previous year. A total of four strikes and 10 minor work stoppages occurred in 1976 as compared with seven strikes and 19 minor work stoppages in 1975 The conclusion to be drawn from this happy situation is that tripartism is progressing and collective bargaining is working in Singapore.

To meet the challenges ahead, it is vital that we improve on the practice of industrial relations so as to achieve greater industrial harmony. This requires the joint efforts of labour, management and the Government. My Ministry will further improve its industrial relations services by adopting a more alert and positive approach to the prevention and settlement of industrial disputes. Priority will be given to the setting up of a departmental Labour Service to build up a corps of experienced labour and industrial relations officers. At present, almost all the officers in the Ministry are from the common user grades and, as part of their career development, they are subject to external postings after a short period on the job Officers who have the inclination and flair for such work and the requisite experience are not able to remain long enough to establish close rapport with both management and unions alike, and to pass on their experience to the younger officers. Furthermore, common user officers may not have the necessary aptitude for such work. With a departmental service, the problems associated with an open service will be avoided. Only suitably qualified persons and those who wish to make the Labour Service their career will be recruited and trained. The Ministry of Finance is now working out with my Ministry the details of the Scheme. The Scheme is intended to cover 21 Division I officers, 56 Division II officers and 70 Division Ill officers. There is, therefore, good prospects for advancement within the Labour Service.

The trade unions had in the past 17 years made invaluable contributions towards the achievement of the national economic and social objectives. They could be counted upon to take the initiative to work for better mutual communication with management and inject greater professionalism among the second and third echelon union leaders. Through training, they will approach labour-management relationships from a cooperative, not combative, position :and conduct negotiations with moderation and an acute awareness that national interests must not be sacrificed. As regards the third partner in the tripartite partnership, some of them will have to discard the obsolete concept of industrial confrontation vis-a-vis the union. Personnel mismanagement in the form of adoption of inflexible and insensitive approach to labour-management problems and taking a too rigid stand on managerial prerogatives must be corrected. In many undertakings, systematic procedures for communication will have to be set up and there should be more consultation between employers and employees. Through better communication, company loyalty can be evolved and misunderstandings leading to disputes can be avoided.

Mr Speaker, Sir, with our dependence on trained and productive manpower, optimal utilisation of our labour force must always be our goal, Not only is it important for our workers to acquire skills, utmost efforts must be taken to preserve and safeguard our human resources. The problems of safety and health attendant on our rapid industrialisation have been identified by my Ministry and over the last few years, my Ministry has, contrary to the impression created by the statement of the hon. Member for Potong PaSir, devoted considerable effort and time to improving the industrial safety and health of our workers,

Activities were organised to promote greater safety and health consciousness on the part of both managements and workers. Three campaigns covering all factories, the construction industry and the shipbuilding and repairing industry respectively and one safety month for the wood-working industry have been held so far, A monthly publication entitled the "New Worker" on the problems relating to safety and health was started in 1973. The Ministry also laid down comprehensive standards of industrial safety and health. The Building Operations and Works of Engineering Construction Regulations was enacted in 1971. A new Factories Act was brought out in 1973. The Factories Act will be further amended shortly to provide for enhanced penalties for contraventions of safety provisions which are likely to result in the death of or bodily injury to workers. A code of practice and a guidebook were issued in 1974 for construction worksites. Guidebooks were issued on various aspects of safety and health. In 1975 a guidebook on safety in shipyards and on fire and explosions was published. Those on power presses and forklift trucks were released in September and October 1976 respectively. In 1973, a guidebook on silicosis was issued. This was followed by others - industrial dermatitis and noise-induced deafness in 1975, and hearing conservation and compressed air illness in November 1976. A van was commissioned in May 1976 to provide audiometric tests to workers. A tripartite study group on accident prevention in shipyards was set up in 1973 and a tripartite advisory committee appointed in 1975 to assist in the implementation of its recommendations. An advisory committee on the construction industry, which included representatives of developers and contractors, was established in 1973. Furthermore, to improve safety administration in factories, the Ministry enacted legislation requiring the setting up of safety committees and the appointment of safety officers. Training programmes were also organised for safety personnel, supervisors and workers, and industrial first aiders and nurses.

The Ministry also expanded its Factory Inspectorate from a total establishment of 36 inspectors in 1973 to 55 inspectors in 1976. The Factory Inspectorate stepped up its enforcement by increasing the number of worksite and factory inspections from 9,995 in 1973 to 11,528 inspections in 1976. Consequently, 8,741 notices of noncompliance were served on occupiers in 1976 as compared to 1,689 notices in 1973.

As a result of these efforts, positive progress has been made in the industrial safety and health situation in our two most accident-prone industries. Using the American Standards Association criteria, the accident frequency and severity in the construction industry in 1973 were 6.9 accidents per million man-hours worked and 3,860 man-days lost per million man-hours worked as compared to the 1976 statistics of 3.0 and 926 respectively. For the shipbuilding and repairing industry, the 1 973 accident frequency and severity rates were 16.9 and 2,880 as compared with 11.0 and 1,096 for 1976 respectively. These figures show that the accident rates have declined.

While this decline is satisfying, nevertheless the Ministry is seeking to further improve the industrial safety and health standards in our industry. In absolute numbers in 1976 there were 698 and 1,095 accidents in construction worksites and shipyards respectively as compared with the 1975 figures of 651 and 1,142 accidents. In terms of fatalities, there were in 1976, 32 deaths in the construction industry and 15 in the shipbuilding and repairing industry The comparative figures for these two industries for 1975 were 36 and 21 fatalities. respectively. There is some improvement but more needs to be done especially by the construction industry.

Where the construction industry is concerned, the Housing and Development Board, the largest developer, has agreed to my Ministry's suggestion to set up a safety department and to train its site supervisors in safety. We will concentrate on solving two major types of accidents - falling from heights and being struck by falling objects.

The hon. Member for Potong Pasir has said that very little has been done to retrain our construction and shipyard workers to cope with the new situation. He might like to know that in addition to campaigns and the supervisors' courses, the Factory Inspectorate has been conducting safety orientation courses at construction worksites. In addition, a film on hazards in the construction industry to be shown to workers will be ready shortly. In the case of shipyards, some 13,800 workers have so far attended the safety orientation course organised by my Ministry.

The hon. Member has also opined that wooden scaffolding should be replaced by metal scaffolding. This matter has been considered in the past. A committee headed by the Director of Public Works made recommendations in 1 972 for the safe use of wooden scaffolding. Its recommendations were circularised to all contractors. Metal scaffoldings, although more stable and mobile, have disadvantages which militate against their usage. In hot weather, they become heated which render them difficult to handle. When it rains, they are slippery and hazardous. But the most important inhibitive factor is one of economics. Metal scaffolds are almost three times more costly than wooden scaffolds. Until the costs of metal scaffolds can be reduced substantially or when we are prepared to accept a significant increase in cost of construction with the consequent increase in rental or selling price of HDB flats, wooden scaffolds will continue to be used for many more years. The hon. Member has also argued for metal scaffoldings on the grounds that steel girders have to be hauled up to high places. He might wish to know that such girders are usually hoisted up through proper lifting equipment. It is an unsafe practice to pull them up using metal scaffolding. The hon. Member for Potong Pasir can profitably enrich his knowledge on this subject if he acquires a copy of this report.

In the case of shipbuilding and repairing industry, my Ministry, through the Advisory Committee on Accident Prevention in the industry, will work with shipyards to implement industrial safety and health self-regulating systems as part of their management functions. A consultancy team has been set up to assist shipyards in this and other safety problems. My Ministry is examining a proposal to set up an Occupational Safety and Health Institute to provide training, consultancy and research services. At present, training, consultancy and research are conducted on an ad hoc basis by different bodies. Therefore an institute to co-ordinate such activities appears necessary, especially as we continue to industrialise and meet other problems of industrial safety and health. A report submitted by an ILO expert on the matter is being examined by my Ministry.

Finally, I agree with the hon. Member for Potong Pasir that one important technique of accident prevention is analysis of accident statistics. He complained that the statistical data in the Ministry's Annual Report lacks vision and does not allow employers and workers to pin-point the areas that need greatest vigilance. Mr Speaker, Sir, statistical data on industrial safety in the Annual Report is to give a summary picture of the situation in the year reported on. It is therefore general and not meant for use for specific safety measures by employers or workers. The hon. Member might like to know that detailed statistics on industrial accidents in construction worksites and shipyards are being maintained and analysed by the Ministry. These statistics and their analysis are supplied to the two Advisory Committees for remedial action. These statistics are also supplied to shipyards and contractors. I might add that any employer or occupier should know the nature and causes of accidents in their own factories or worksites. They need not therefore rely on the Ministry for such statistics as implied by the hon. Member. However, his proposal that safety committees be required to keep standardised accident frequency and severity rates will be looked into by the Factory Inspectorate.

Mr Speaker: Order. I suspend the Sitting now and will take the Chair again at 5 o'clock.

Sitting accordingly suspended at 4.30 p.m. until 5.00 p.m. Sitting resumed at 5.00 p.m.