PLANNING (AMENDMENT) BILL

Order for Second Reading read. 3.50 pm

The Minister for National Development (Mr S. Dhanabalan): Mr Speaker, Sir, I beg to move, "That the Bill be now read a Second time."

Sir, the Urban Redevelopment Authority's conservation guidelines for Chinatown, Little India and Kampong Glam were announced on 14th July 1988. These guidelines provided information on the history as well as the Master Plan and planning and urban design guidelines that will help shape the future of the conservation areas. In addition, architectural characteristics and standards of restoration for buildings in the conservation areas were provided.

When my Ministry announced the Government's policy on phasing out rent control on 6th October 1988, we said that the conservation areas would be designated as development areas in the first quarter of 1989. This was to enable owners to recover their rent-controlled premises under the Controlled Premises (Special Provisions) Act.

Sir, my speech on this Bill will have a bearing on the other two Bills that are on the Order Paper, that is, the Urban Redevelopment Authority (Amendment) Bill and the Controlled Premises (Special Provisions) (Amendment) Bill, because together they provide the framework to facilitate the conservation programme.

The Planning (Amendment) Bill brings the conservation of areas and buildings within the purview of town planning and development control. The Bill provides for:

(1) The appointment of a conservation authority;

(2) The designation of conservation areas and the demarcation of such areas on the Master Plan; and

(3) The control of works within a conservation area, which may affect the character or appearance of that area in the same manner that we control other developments.

Sir, the most important provision in the Bill is the institution of planning control for works carried out whthin a conservation area. The Planning Act in its present form, controls the development of land but does not specifically cover works of conservation.

To effectively implement urban conservation programmes, there is a need to have an authority which will be given the power and responsibilities pertaining to conservation. The Bill provides for the appointment of such an authority.

"Conservation", as defined in the Bill, means the preservation, enhancement or restoration of the character or appearance, and trades, crafts, customs and other traditional activities of conservation areas.

Sir, over the years the Urban Redevelopment Authority (URA) has built the resources and expertise necessary to carry out conservation in Singapore. The Bill designates the URA, or such other body or person as the Minister may appoint, as the conservation authority. The Urban Redevelopment Authority Act also needs to be amended to enable the URA to carry out its role as the conservation authority. I will elaborate on this when I move the Second Reading of the Urban Redevelopment Authority (Amendment) Bill.

Presently, the competent authority who is responsible for the enforcement of the Planning Act is the Chief Planner of the Planning Department. The Bill intends to allow for the delegation of the duties of the competent authority without diluting his authority. It provides that the powers and the duties of the competent authority may be exercised by any officer of the Planning Department or any officer in the employment of a public authority, subject to the competent authority's direction and control.

With the appointment of the URA as the conservation authority, the powers and duties of the Chief Planner relating to conservation may be exercised by any officer of the URA, who is authorized by the Chief Planner, subject, as I said, to the direction and control of the Chief Planner.

The Bill spells out the process whereby the Minister may designate an area, district or premises as a conservation area. Essentially, the process is similar to that adopted for any alteration or addition to the Master Plan. Where the Minister is satisfied that the proposal submitted by the competent authority is of special architectural, historic, traditional or aesthetic interest, and that it is desirable to preserve this character, the Minister may designate the area, district or premises as a conservation area. Following the designation, the area will be demarcated on the Master Plan and thus made known to the public.

The Bill defines "works within a conservation area" as any decorative painting, renovation or building works which may affect the character or appearance, whether external or internal, of any building, premises or land situated within a conservation area.

With the passing of this Bill, planning controls are instituted for such works. Any person who wishes to carry out any works within a conservation area must have the written permission of the competent authority. When considering such applications, the competent authority may impose conditions to require compliance of any guidelines issued by the conservation authority.

Sir, to provide for powers to enforce the control on planning applications and compliance with conditions as imposed by the competent authority, the Bill seeks to provide that:

(a) A person who does not apply for permission before carrying out works of conservation shall be guilty of an offence and a penalty is imposed for such an offence.

(b) A person who fails to comply with any condition imposed by the competent authority or the Minister shall be guilty of an offence and a penalty is imposed for such an offence.

(c) A person who fails to comply with any condition imposed by the competent authority or the Minister may have his written permission cancelled by the competent authority.

Sir, the Bill also empowers the Minister to make regulations relating to conservation and the carrying out of works within the conservation area. Existing regulations will be amended accordingly.

Mr Speaker, Sir, I beg to move.

Question proposed.

Mr Peh Chin Hua (Jalan Besar GRC): ( In Mandarin): Mr Speaker, Sir, I support this Planning (Amendment) Bill because this Bill is to enable the URA to have the power to preserve, supervise and to take charge of the work carried out in the conservation areas. A conservation area is an important feature of Singapore's history. It is also a national treasure of Singapore. Therefore, when we are actively promoting the formulation of our National Ideology and preserving our traditional values, these conservation areas will provide our younger generation with very rich and vivid teaching materials on our historical and cultural heritage. Today,we are gradually advancing from a developing country along the path towards a developed country. Therefore, preserving certain characteristics and appearance of conservation areas will not only enable our younger generation to know our historical background better but also to appreciate the struggle and the efforts of our forefathers who had contributed to attain the Singapore of today. I understand it is no easy task to delineate conservation areas out of our limited land. However, for the sake of our posterity, we have to preserve more of such areas like Kreata Ayer and Tanjong Pagar. It merits our support. Therefore I support this Bill.

Mr Chng Hee Kok (Tiong Bahru GRC): Mr Speaker, Sir, I rise in support of the Bill. I think this Bill is timely in view of our economic and social development. I agree with the comments made by the hon. Member Mr Peh.

Sir, we are a transition generation. The majority of us here had a chance to live through the old part of Singapore. We were part and parcel of the sights and sounds, hustle and bustle of the old Singapore. We understand what is communal living in the old days. However, the majority of younger Singaporeans do not have the opportunity. They are living in HDB flats. So therefore I welcome this Bill which I think is perhaps a little long overdue.

I have only one concern to raise with the Minister and this relates to those property owners who are affected by the designation of conservation area. I believe the Minister has the authority to direct conservation measures. I am afraid some of those who are affected may not have the financial means to carry out any conservation works. If this is the case, would the Minister consider some means of financial support or help? Or will the owners be unduly penalized? Perhaps, the Minister may like to give some re-assurance on this point.

Dr Lee Siew-Choh: Mr Speaker, Sir, I must also say that in the circumstances obtaining in Singapore today, the Workers' Party is not against the decontrol of controlled premises. Some buildings are very old and dilapidated. And together with the planning and all that, I agree that some form of renovations of conservation areas should be carried out.

But speaking of conservation area, Sir, now buildings works is defined as "any decorative, painting, renovation or building works......, whether external or internal, of any building, premises or land situated within a conservation area." So from this definition, any painting is considered renovation. In Hill Street, Sir, near the place where I work, a coat of whitewash and a little paint externally is all that the URA has done. Nothing more. If that is considered renovation, then surely that is a fraud on the people.

Many buildings have been acquired by the URA and today the Government is the biggest landlord in Singapore. Many people are affected and there is growing concern among sitting tenants, and we would like the Government to give us some clear indication as to how they would deal with certain issues.

As these renovated buildings will ultimately be considered developed buildings, I suppose new rentals will be imposed and other plans will be carried out. I would like, the Minister to give us clear indications on certain questions.

Mr Speaker: Dr Lee, can I know which Bill you are referring to?

Dr Lee Siew-Choh: Sir, I try to link up all the three Bills since the Minister himself has said that his remarks and comments cover all the three Bills.

Mr Speaker: All right. Carry on.

Dr Lee Siew-Choh: Is it all right, Sir?

Mr Speaker: I think you are trying to pre-empt the Minister in so far as some of --

Dr Lee Siew-Choh: I can always wait for the next one.

Mr Speaker: Do you have any objections, Mr Dhanabalan?

Mr Dhanabalan: Sir, I think I will take it in order.

Mr Speaker: You will take it in order. All right.

Dr Lee Siew-Choh: I would like this question, Sir, to be settled because they affect quite a number of people.

On the question of the sale of premises, in Chinatown for example, quite a number of these buildings have been sold. I would like to know when refurbished and renovated, will the old buildings, now controlled buildings, be sold at reasonable prices to sitting tenants? Secondly, in owner-occupied premises, will the owner be allowed to renovate within his own means? Or will he be forced to adhere strictly to URA guidelines and specifications?

In premises recently acquired by URA, where the sitting tenant is the past owner, will the URA release back to the past owner the premises acquired and allow him to carry out renovations according to URA guidelines?

Mr Speaker: Dr Lee, I can see that you are not confining yourself to the Bill.

Dr Lee Siew-Choh: I am in a way. But I have cut off quite a lot of things because they may be redundant.

Mr Speaker: I think what you are saying is more appropriate to the later Bill.

Dr Lee Siew-Choh: So do you want me to repeat or carry on?

Mr Speaker: I think the Minister has indicated that he would prefer you to bring this up later.

Dr Lee Siew-Choh: Building Control?

Mr Speaker: Controlled Premises.

Dr Lee Siew-Choh: I didn't quite get you.

Mr Speaker: The Controlled Premises Bill.

Dr Lee Siew-Choh: Yes, Controlled Premises Bill, the last one?

Mr Speaker: Yes.

Dr Lee Siew-Choh: So I wait till then.

Mr Speaker: Yes, that's right.

Dr Lee Siew-Choh: All right.

Mr Dhanabalan: Mr Speaker, Sir, I thank Mr Peh and Mr Chng for their support for this Bill. A question was raised whether any financial help or assistance would be given to those who own buildings in the conservation areas. There is no plan at the present moment to give any financial assistance. But I think the type of assistance we will be giving under this Act should be sufficient. First of all, once an area is designated as a conservation area, then change of use of buildings within the area, for example a residence changed to a shop or eating house, will not attract development charge. So that is an incentive. Secondly, we have also announced that such changes of use which under the normal circumstances may require payment of car park deficiency charges will also be waived. And the third very important aspect is that this comes under the the last Bill tha I will deal with today - the most important incentive is that the owner would be able to recover his premises, his rent-controlled premises and carry out conservation.

So these are the types of incentives. Over and above that the Government will be planning and implementing infrastructural works. In other words, the public areas - roads, the side-walks, the lighting, planting and so on - would be done in such a way that the whole area becomes attractive so that people will spend money renovating and restoring the buildings and will find that they will be doing it within the context of a total redevelopment, and that will make their property more attractive. But we are not thinking in terms of cash grants because we looked at the problem and we did not think that was necessary. With these measures that I have just mentioned, anybody who has a property in the conservation area should be able to raise a loan from any financial institution to carry out his works.

I thought I might just take this opportunity to comment on one point and that is, the definition of conservation. A coat of paint is not conservation. The block of buildings in Hill Street has not been designated as conservation area. That block and the building next to it, Stamford House, will be temporarily rented out until such time as the demand for commercial space in Singapore requires that whole area be redeveloped. So what is happening at Hill Street is just the sprucing up the place to use it on a temporary basis. It is not conservation. Conservation guidelines are quite detailed and anybody who has a property in a conservation area, if they go to URA and obtain the guidelines, will find that it is not just a coat of paint. There are not only restrictions on what can be done but also things that ought to be done, and this goes far beyond just giving a coat of paint. So I want to clarify to Dr Lee that the building where his clinic is situated is not intended at the present moment to be a conservation area.

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 Dhanabalan].

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