forging a greener tomorrow
TRANSCRIPT
Jessica Cheam
forging a GREENER
TomoRRowSingapore’s environmental journey from slum to eco-city
forging a GR
EE
NE
R T
om
oR
Ro
wSingapore’s environm
ental journey from slum
to eco-city
Jessica Cheam, 29, is a nature lover who lives in a part of Singapore surrounded by four nature parks and has trees as neighbours. She believes that respect for the earth and a sustainable lifestyle should be at the core of every individual’s actions.
She has covered housing, development issues, environment, energy and climate change on both the domestic and international level for The Straits Times for the past six years. She is frequently invited to speak on sustainability and the media at national and global events. She is also the founder and editor of the portal eco-business.com, a leading provider of news and views for Asia Pacific’s sustainable business community.
In December 2009, she won a global journalism accolade at the Earth Journalism Awards held in Copenhagen by Internews and the World Bank. In March 2010, she was named Young Journalist of the Year by SPH. In February 2011, her stories on sustainability won her the first Asean Green Technology Journalism Award and later that year, she also received a merit award for the environmental leadership category of the Ten Outstanding Young Persons awards by JCI Singapore.
She has a distinction in Masters in Journalism from London’s Goldsmiths College and a first-class honours degree in Film and Literature from the University of Warwick.
Many today will look back on Singapore’s early post-independence kampong days with nostalgia and memories of a simpler village life. But those who knew Singapore in the ’50s and ’60s will also recall how water supply was frequently disrupted, came from standpipes and had to be carried home in pails for cooking and washing.
Toilets were outdoor huts with a hole in the ground that housed a night soil bucket – these had to be changed manually every day by an army of daily-rated employees, dispatched throughout Singapore to maintain some semblance of cleanliness in the chaos of the slums scattered around the city. Streets were choked with rubbish and congested with hawkers plying their food amid poor hygiene conditions; various kinds of waste were discharged into rivers and waterways, making them open sewers. The risk of catching diseases such as typhoid, malaria and cholera was high.
Singapore has come a long way since those days to become an internationally-recognised clean and green city, known for its innovation in recycling water to the highest standards. Its streets are among the cleanest in the world, and its rivers and waterways now double as water catchments and recreational venues for kayaking and water-skiing. It was no easy feat, but thanks to the vision, commitment and tireless efforts of the people charged with pulling Singapore out of its slum conditions, the transformation was possible in four short decades.
This book, commissioned by the Ministry of the Environment and Water Resources for its 40th anniversary, tells the story of that journey through the insights and anecdotes of key personalities. It traces the origins of the ministry, charts its course through the trying decades, and grapples with the present and future challenges that Singapore faces in an increasingly resource-constrained world where environment and climate issues have taken centre stage. It takes you behind the scenes to reveal the forces that put Singapore on its quest to be a global, model sustainable city.
Jessica Cheam
forging a GREENER
TomoRRowSingapore’s environmental journey from slum to eco-city
Published by straits Times Press Pte ltdenglish/Malay Newspaper divisionsingapore Press holdingsMezzanine Floor, information Resource Centrelevel 3, Podium block1000 Toa Payoh North, News Centresingapore 318994Tel: (65) 6319 6319 Fax: (65) 6319 [email protected]
sTRaiTs TiMes PRessexecutive director shirley hewPublishing Manager shova lohsenior designer lock hong liangMarketing & Operations Clara Wongeditor Mary lee
PhOTO CRediTsalphonsus Chern (for MeWR): cityscape on front cover & 4, 9
(bottom right), 71 (bottom), 72, 76–87, 168, 169, 188–193
Khoo Teck Puat hospital: 175
MeWR: 7, 135, 167, 176 (bottom), 178, 180 (top), 181 (top), 182, 183, 184 (top), 185, 187, 194, 196, 199
MOT: 173
Nea: 96 (top), 108, 146, 171, 172, 176 (top), 181 (bottom), 186 (bottom), 204
Philip Ong: 186 (top)
Pub: 69, 115, 119, 122 (left), 139, 149, 161, 170, 177, 180 (bottom), 184 (bottom), 202
shell Companies in singapore: 174
darren soh: 203
sPh: all other photos in this book
© 2012 Ministry of the environment and Water Resources
all rights reserved. No part of this publication may be reproduced, stored in a retrieval system, or transmitted, in any form or by any means, electronic, mechanical, photocopying, recording or otherwise without the prior written permission of the publishers.
NaTiONal libRaRy bOaRd, siNgaPORe CaTalOguiNg-iN-PubliCaTiON daTa
Cheam, Jessica.Forging a greener tomorrow / Jessica Cheam. – singapore : straits Times Press, c2012. p. cm. isbN : 978-981-4342-15-5isbN : 978-981-4342-16-2 (limp)
1. environmental policy – singapore. 2. environmental protection – singapore. i. Title.
ge190.s55363.70095957—dc23 OCN805924461
Foreword 7 Prologue 8
1 Starting from Scratch 172 Building Blocks 393 Hardware to Software 594 Dawn of a New Era 895 What Lies Ahead? 137 Our People 166 Environment Awards 198 Acknowledgements 205 Index 206
foreword
The quality of our environment and adequacy of water resources play a crucial role in determining the well-being of our people and the competitiveness of our economy.
Our founding leaders, especially Mr lee Kuan yew, had the great foresight to make environmental protection a hallmark of singapore’s development since independence. On the 40th anniversary of MeWR, we can have good reason to celebrate our achievements – that in spite of our resource constraints, we have been able to successfully enhance our living environment, ensure secure supplies of potable water, enjoy clean air with blue skies, beautiful reservoirs and waterways, and become a working model of the future sustainable city. These achievements have also enabled singapore companies to pursue opportunities overseas, using their track records in singapore.
We are facing a more resource-constrained and uncertain future. it is crucial that we remain bold and optimistic about how we can make economic development and environmental protection a virtuous cycle instead of seeing them as trade-offs.
looking after our environment is a collective responsibility, and my colleagues and i hope this book will help explain the considerations that guide our approach to the environment and water resources thus far. i hope readers will also be inspired to play their part in helping all of us continue to make singapore a model for sustainable urban living, and a liveable, clean and green island that we and future generations will be proud to call home.
ViVian Balakrishnan
Minister for the Environment and Water Resources
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Prologue
iT was on the banks of the singapore River where it all began. The water highway of the heart and soul of the modern metropolis that is now singapore once saw Malayan princes and Portuguese raiders sail onto its shores to explore the rustic island. it was where stamford Raffles eventually set up the first trading port of singapore, paving the way for the modernisation of an island nation with no hinterland. The river was also home to squatters, coolies, hawkers and traders who shared the river banks alongside bumboats and tongkangs (a type of light wooden boat).
One of them was retiree Koh Chiew Tiong, 81. he arrived in singapore from China’s Fujian province as a seven-year-old. he spent a large part of his life, from the 1950s to 1970s, along the river, living in a two-storey shophouse in Telok ayer. he found work as a coolie along the banks. speaking in the hokkien dialect, he recalls: “in those days, the streets were dirty and filthy and hawkers lined the roadsides everywhere.”
Work was tough, but plentiful. a coolie since his 20s, he carried various goods – sacks of corn, provisions and even rubber squares – from the bumboats on the river onto the shore, to be loaded onto lorries. The company cook would rustle up a simple fare of noodles or rice for the workers. When food was not provided, he would go to the “New Market” – now known as ellenborough
Prologue
ThE JouRNEy
“The presence of slums in cities is a shame on its political leaders. There is no dignity for people who do not have even basic access to safe drinking water or toilets… it is a reflection on the will of its leaders. singapore is one of the cities that is inspiring for its best practices.”
United Nations Human Settlements Programme (UN-Habitat) undersecretary-general and executive director Anna Tibaijuka
at the World Cities Summit 2010, Singapore
“after independence, i searched for some dramatic way to distinguish ourselves from other Third World countries. i settled for a clean and green singapore. One arm of my strategy was to make singapore into an oasis in southeast asia, for if we had First World standards, then businessmen and tourists would make us a base for their business and tours of the region.”
lee Kuan yew, From Third World to First: The Singapore Story: 1965–2000
Boat Quay in the ’50s (above) where Koh Chiew Tiong (below), now 81, used to be a coolie; he and son Steven, 55, who spent his teens helping his father carry sacks of goods, stand beside the cleaned-up Singapore River
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Market – along boat Quay: “There were many warehouses then, and shops that made fishballs. hawkers sold coffee and cooked food in the area. We ate there and i remember the stench of the river before we could see it. and when we finally caught sight of it, the water was black,” he says.
The singapore River – historic not just for its key role in singapore’s economic survival – was also unforgettable for its putrid stench of rotting garbage, human and chemical waste. in a way, the river encapsulated the country’s mounting problems in those early post-independence days. singapore had gained self-governance from the british a few years earlier in 1959, joined the Federation of Malaysia in 1963, and was booted out on 9 august 1965 due to bitter disagreements, with “no signposts to our next destination” as singapore’s first prime minister lee Kuan yew wrote in his 2000 memoir. it was a “heart without a body” that had a population of 1.9 million largely unskilled people, a nominal per capita gross domestic Product (gdP) of us$512 per year and unemployment rates of 10–12 per cent threatening to trigger civil unrest.
at that time, more than two-thirds of singapore’s population was living in inner city slums and in squatter settlements on the city’s fringe. Mr lee recalls: “Thousands would sell cooked food on the pavements and streets in total disregard of traffic, health or other considerations. The resulting litter and dirt, the stench of rotting food and the clutter and obstructions turned many parts of the city into slums.”
it was in those uncertain days that singapore’s founding leaders set in motion an imaginative strategy that sought to create jobs and transform singapore’s economy into an export-oriented industrialised one, even while aggressively tackling its housing, environmental and public health problems. some efforts had begun as soon as singapore achieved self-governance: in 1960, the housing and development board (hdb) was set up to drive a massive home-building programme, while the economic development board (edb) was established to market singapore to the world as the top emerging investment destination in southeast asia.
Creating jobs was key to singapore’s survival but along with the growth of industries came air and water pollution. Water supply was also a critical priority as the country was heavily dependent on Malaysia for water. singapore had
signed two water agreements with Malaysia in 1961 and 1962 that gave it rights to obtain water from Johor, the Malaysian state closest to singapore. While PM lee had ensured these agreements were made part of Malaysia’s constitution during the separation, he was informed that Malaysia’s first prime minister Tunku abdul Rahman had told a british diplomat: “if singapore doesn’t do what i want, i’ll switch off the water supply.” as Mr lee later recalled: “every other policy has to bend at the knees for our water survival.”
in 1977 he posed a challenge to the Public utilities board (Pub) chairman lee ek Tieng: “suppose we could capture every drop of rain in singapore, could we become self-sufficient?”
Thus began Pub’s twin challenges of cleaning up singapore’s waterways even as it worked to capture as much rainfall as possible by damming up the
“every other policy has to bend at the
knees for our water survival.”
PM Lee Kuan Yew on the role water played in Singapore politics
Former PUB chairman (1978–2000), Lee Ek Tieng
Standpipe at Kampong Radin Mas in Singapore, 18 June 1954: bath time to little Mat Noor means the standpipe – the village pump; and here he is enjoying it before dashing back home to get dried and then off to bed; but many in his village bathe there, too, and the queue is long; it was 8 pm before Mat got his turn
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country’s various streams to increase the country’s water supply. its work over the decades would eventually answer PM lee’s initial question – yes, singapore could become self-sufficient through a variety of ways.
but added to the water challenge was the overwhelming task of building up singapore’s infrastructure so as to keep up with modernising and housing the nation. The Public Works department (PWd) under the Ministry of National development (MNd) began implementing sewerage and drainage systems that would improve waste disposal methods and alleviate floods; these floods had afflicted parts of singapore, causing deaths and millions of dollars in damages.
The anti-Pollution unit (aPu) was set up under the Prime Minister’s Office in 1970 to tackle increasing water and air pollution caused by singapore’s rapid industrialisation, and the environmental Public health division under the Ministry of health (MOh) worked to control and eliminate the outbreak of infectious diseases rampant in those days such as cholera, typhoid and malaria.
PM lee also personally launched nationwide environmental efforts such as the Tree Planting Campaign in 1963, which led to greenery sprouting along all roads, on vacant plots of land and new properties. all these efforts culminated in the “Keep singapore Clean” campaign, which Mr lee marked in 1968 as a “new bid for healthier and more wholesome social conditions in singapore”.
it is against this backdrop that the Ministry of the environment (eNV) was formed in 1972 to bring all aspects of pollution control and environmental health in singapore under one organisation. it absorbed the departments under MOh and MNd that dealt with pollution control and environmental health. With this new consolidated emphasis on the environment, the ministry embarked on various development plans that laid the foundation for singapore’s First World infrastructure.
Today, the boat Quay that was once so familiar to Mr Koh is no more. singapore is now a cosmopolitan city of five million with a per capita gdP of us$50,123 in 2011 that enjoys low unemployment rates of two per cent. The water in the singapore River, cleaned up in the ’80s, is not a murky black but a clearer shade of blue where fish survive and the stench is gone. Passenger boats ferry tourists up and down the river, while eateries, cafes and pubs that line the
(top) Miss Susan Chong of the Anti-Pollution Unit explaining to Education Minister Dr Tony Tan how gas detecting machines work (1985)
(left) The APU introduced machines that had four funnels that would detect discharge of carbon monoxide, ozone, sulphur dioxide and nitrogen oxide
“suppose we could capture every drop
of rain in singapore, could we become self-
sufficient?”
PM Lee Kuan Yew’s 1977 challenge to PUB chairman Lee Ek Tieng
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river banks inject a distinct buzz to the city centre. in the distance, the skyline of singapore’s central business district is dramatically different from what Mr Koh remembers as a coolie. There are more, and taller, skyscrapers now and the new singapore Flyer ferris wheel rotates slowly against the towering structures of the Marina bay sands integrated resort under a brightly-lit night sky.
Mr Koh’s son, steven, now 55, who used to help his father carry goods from age 14, recalls clearly the day when bumboats were not allowed on the singapore River banks, thus signalling the transformation of singapore and the end of thousands of livelihoods which depended on the manual work.
he recalls with nostalgia the years he spent growing up along the river, helping coolies and making friends, but he appreciates the investment and work that singapore has put into modernising the city. “The area looks so different now,” he says, “it’s so much cleaner and the bay area is beautiful.” These days, new memories are made as the elder Koh, his son and grandchildren stroll along on the banks of the Marina barrage, almost taking for granted the fresh, clean air and the lush greenery.
singapore had, in the words of lee Kuan yew, “built and progressed”. “but no other hallmark of success will be more distinctive than that of
achieving our position as the cleanest and greenest city in southeast asia,” he wrote.
This is the untold story of the people who made this singapore possible.
(opposite) Keep Singapore Clean Campaign 1968
(bottom) Minister for Health Chua Sian Chin (third from left) toured the Boat Quay area to see the challenge of cleaning up the Singapore River (1971)
17
“The government recognises the need to have a highly organised and well-planned infrastructure to tackle the problems of pollution before they reach the stage in other large cities where the waterways have been devastated and the air polluted. The deterioration of the environment will bring in its wake innumerable health problems which will in turn stifle our development. singapore cannot afford the mistakes of these large cities. Preventive steps to control pollution had to be taken. hence, immediately following the general elections, the Ministry of the environment was created in september 1972.”
From ENV’s first annual report in 1972
“The ultimate aim of my ministry is to make life more pleasant for everyone through anti-pollution and other measures… environment is the thing now.”
Lim Kim San, first Minister for the Environment, 1972–1975,
1979–1981 and PUB chairman, 1971–1978
1 Starting from Scratch
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The front page headline of The Straits Times newspaper that day declared: “singapore to step up war on pollution”. and on the front line of this war, singapore had a new weapon in its arsenal: the newly-formed Ministry of the environment (eNV).
since it gained self-governance in 1959, singapore had been urbanising with new towns and factories rapidly rising from the ground. but with the rapid development also came air and water pollution. When lim Kim san was sworn in as the first Minister for the environment, he warned that if singapore did not take immediate measures to keep its environment clean, pollution would reach a stage where “it will be too late… We will find it impossible to live.”
eNV had some difficulty getting off the ground, revealed reports at that time. indecision over which departments to include and the reluctance of senior civil servants to see the break-up of their “empires” delayed the setting up of the ministry. but the combination of singapore’s rapid urbanisation
and the emergence of the environment as one of the major global issues in the 1970s gave impetus to the case for integrated action – the rationale for the ministry. its formation followed quickly after the united Nations Conference on the human environment in stockholm in June 1972. singapore was one of the first countries to form a ministry dedicated to the environment.
Mr lim recalled an incident in February 1970 when he was Minister for the interior and defence: “i was looking out of my office window at Pearl’s hill one day and i thought the rains were coming. but on taking a closer look, i realised that the murkiness was smog… i purposely went up to Mount Faber to view it. The smog was so thick that i asked myself: if singapore did not take this thing in hand now, what would happen in the future?”
Mr lim, known also as “hdb man” for his role in singapore’s successful housing programme, set out his vision for eNV then: “as it is with industrial development, the smoke that comes out of factories has to be controlled. We are also increasing our catchment areas, so our water must be clean. We must ensure that hawkers do not dirty the water, making it unfit for human consumption or wasting it… environment is the thing now.”
eNV took in the whole environmental Public health division, under the Ministry of health, which included the various city, rural and environmental health services, vector control, various health education services, and the engineering section dealing with the aspect of effluent water. it absorbed the units under the Ministry of National development and the Public Works department which were concerned with the prevention of pollution, sewerage, drainage and irrigation, building and planning. its responsibilities also covered cemeteries and crematoria, food and drugs control, food hygiene, and notification of infectious diseases, hawkers and cleaning branches.
as a reflection of the importance the government placed on tackling pollution, an anti-Pollution unit (aPu) was formed in april 1970 under the Prime Minister’s Office. The aPu had a close working relationship with eNV on pollution matters and was integrated into eNV in april 1983.
“it will be too late… We will find it
impossible to live.”
Lim Kim San, appointed Minister for the Environment in 1972, on what would happen if Singapore did not
keep its air clean
(previous page, left) Coolies (manual workers) unloading goods from barges at Boat Quay (1956)
Lim Kim San tours his Cairnhill constituency as part of the “Keep Singapore Clean” campaign (1971)
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Water rationing and Lim Kim San
S ingapore’s leaders had considered desalination of seawater as early as 1971.
InatelevisedinterviewinAugustthatyear,thenPUBchairmanandlaterfirst
Minister for the Environment Lim Kim San revealed that it was seeking the advice
of experts on this possibility.
Pulau Ubin could also have had a different fate from the recreational island it
is today. A Dutch consultant had conducted a study to determine if the island was
suitable for a reservoir project, which would involve damming part of the sea and
linking two tips of the offshore island to form a big basin in the Straits of Johor.
These were just some of the ideas that were considered in those early days
when Singapore faced acute water shortages. Water had been rationed during
periods of extreme drought in 1961 and 1963. And in 1971, when drought hit
Singapore, its citizens yet again faced the prospect of water rationing. Mr Lim
wasSingapore’sfirstvocalcampaignerforconservingthatpreciousresource.
His approach to water conservation, however, was to keep it as voluntary as
possible. He urged the public to reduce its daily consumption by 25 per cent,
adding that water rationing could be avoided if the rains arrived. His tips: not to
wash anything under a running tap, and to recycle water from washing windows
toflushthetoilet.Hiscampaignworked:publicconsumptionofwaterinMay
1971 was the lowest in four months and Singapore managed to stave off water
rationing. Mr Lim emphasised that despite water agreements with Malaysia, it was
crucial for Singapore to obtain as much water as possible from its own resources,
even while being stringent in its use. In 1973, PUB devised a groundbreaking
four-tier tariff system for water to punish wasteful users: careful users of water
wouldbenefitwhilethosethatconsumedmorepaidmore.Laterin1997,when
the pricing of water was reviewed, the government set out to recover the full cost
of production and supply, taking into account the cost of the “next drop” of water,
benchmarked at the price for water desalination.
Lim Kim San being presented with a poster on how to save water (“Make Every Drop Count”) by Sze I Ming, president of the Singapore Production
Management Association (1971)
Singapore-Malaysia Water Agreements
S ingapore and Malaysia signed four agreements that regulated the supply
of water from Malaysia to Singapore.
• 1927 Agreement: This allowed Singapore to rent 2,100 acres (8.5 sq km) of land
in Gunong Pulai for the purpose of water collection and storage.
• 1961 Agreement: The Tebrau and Scudai Rivers Water Agreement replaced the
1927 Agreement. It gave Singapore full and exclusive right to draw the water
within the designated land at Gunong Pulai, Sungei Tebrau and Sungei Scudai
for 50 years up till 2011.
• 1962 Agreement: The Johor River Agreement, valid until 2061, gave Singapore
the full and exclusive right to draw water from Johor River up to a maximum of
250 million gallons per day (mgd).
• 1990 Agreement: It allowed Singapore to construct a dam across Sungei Linggiu.
Singapore would pay for building, operating and maintaining the dam. It
supplemented the 1962 Water Agreement and would also expire in 2061.
PM Lee Kuan Yew and Malaysian PM Dr Mahathir Mohamad shaking hands after water talks in 1988 which eventually led to the 1990 Agreement
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a Straits Times report on eNV in the month it was set up said it all: “a lot has been done – a great deal more needs to be done.” even though singapore had improved on certain environmental aspects since 1959, its leaders recognised that it was only the beginning of a long journey.
Mr lim made it clear then that singapore’s priority in environmental conservation would focus on water pollution control. This would enable singapore to be increasingly reliant on its own water supplies. The three main enemies in this fight to clean up singapore’s waterways were trade effluents such as waste from food-based industries, chemicals such as toxic metals, and sullage from households and hawkers.
The long-term aim was to collect as much of singapore’s abundant rainfall as possible. but to do so, singapore’s streams and canals must be free of pollution or treatment of water for human consumption would be costly. To achieve that, the Prohibition on discharge of Trade effluents into PUB chairman (since 2004) Tan Gee Paw
Water Courses Regulation had been passed just the year before (1971) with industries being given a year to comply with the new standards.
Meanwhile, young engineers were given the task of drawing up singapore’s first Water Masterplan. Pub chairman Tan gee Paw was one of the small team of three in a new water planning unit that had been tasked to formulate the masterplan in 1972 which would outline singapore’s strategy for expanding its water resources.
“in those days, there were no powerful computers to do simulations,” recalls Mr Tan in an interview. The team had to learn how to do everything on their own. “i was thankful we had a computer in Pub, a huge computer that occupied the whole room which was meant to print all the Pub bills. We had to start from scratch and it took about two years,” says Mr Tan, now 69. “i remember asking the guy in charge of it, lau Ping sum, for permission to use it. he said yes without knowing i didn’t know a thing about computers! it was most challenging; we worked late into the night, reading manuals on how to programme the computer and when we finally figured it out, we used it to start simulating rain runoff so we could see what happened in extreme events, and calculate the water yield in certain catchments. That’s how our first water plan came to be,” he says.
singapore had three reservoirs then – MacRitchie, Peirce and seletar – all located in protected catchments in the central nature reserve. Part of the strategy was to create reservoirs by damming rivers to create large bodies of freshwater over time. due to singapore’s limited land, these were unprotected catchments where development was allowed. a number of reservoirs, such as Kranji, Pandan, Murai and Poyan, were formed this way.
in that first masterplan, Mr Tan and his colleagues also experimented with reclaiming water. “Those were exciting times, especially when we discovered every drop of water could be recycled,” he says. it was the beginning of what would eventually be known as “NeWater”, but in those days, it was known as “reclaimed water”, where advanced reclamation plants treated sewage to potable drinking-water standard. in 1974, Pub built such a pilot plant – but it was ahead of its time and the costs astronomical. “it was not
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job and eNV needed to look for labour-saving tools to get the job done. in 1972, an island-wide cholera outbreak occurred from May to
september – the largest in singapore’s history till then. it was not due to infected water supply, but to poor personal hygiene and food hygiene of food handlers. Food hawkers would handle food with bare hands that were unclean, and bowls were washed in used buckets of water before serving the next customer. The mission to medically examine food handlers was intensified. “i remember our officers would go like detectives and question people on what food they ate, where they bought them, and tackled the problem at source,” says Mr lee.
it did not help that hawkers operated within close range of sullied drains and primitive latrines. Former chief engineer of Pub’s drainage department donald goh, 72, now retired, recounts how in those days, large parts of singapore were still unsewered and the city relied on the night soil bucket system to get rid of human waste.
“every day, night soil collectors would visit each toilet, pull out the full buckets and shove an empty one back in,” says Mr goh. a few thousand were employed as these workers then under the eNV’s general services unit. Night soil was then disposed of at three stations – at albert street, Jalan afifi and Toh Tuck Road. Mr goh says of the workers: “They were a breed you can’t find now. Nobody wanted to do the work, it was tough and filthy.”
he says of those days: “The smell was really bad. People used to smoke cigarettes while they were doing their business so it would help to kill the stench. as a matter of courtesy, after we finished our business, we would use a sheet of newspaper to cover what we had dumped, so the next guy that came in wouldn’t have to look at it.” sometimes, when children could not take the smell, they would defecate outside in the nearest drains. spillage of the waste would also occur during collection, contributing to poor levels of hygiene on the streets. some of the toilets were also located near hawkers so there was a real issue with food safety as the waste attracted cockroaches and made it easy for water-borne diseases to spread, he added.
Edmund W Barker, ENV Minister, 1975–1979
a robust technology because the equipment in those days was rudimentary, membranes were not well made and didn’t last long. after one year, we decided to close the plant. it’s like a car, it must run every day. you can’t have it out of action three days a week – but that was what was happening. There was no way we could upscale it to a large municipal plant, the reliability wasn’t there. but still, it remained on our radar,” says Mr Tan.
in the following years, eNV under the leadership of Minister edmund W barker would beef up legislation that would give it more control of singapore’s waterways and what was discharged into them. in 1975, Parliament passed the Water Pollution Control and drainage bill, which would require all waste water to be discharged into sewers to minimise pollution of the streams and canals.
Cleaning up SingaporeWhile work was ongoing to tackle singapore’s water woes, the diverse departments of eNV were gearing up on an extensive development plan for singapore. eNV’s first permanent secretary lee ek Tieng remembers that “environment” had a different meaning back then.
“These days, you say environment and people talk about global warming. it’s a more nebulous concept. in those days, environment meant public health. We were talking about infectious diseases and cleaning up of streets because of hygiene matters,” he says.
“My idea for the ministry was to integrate the two types of responsibilities, public health and engineering, into one. it was very basic work – about providing the right infrastructure for a growing city,” he says.
in those days, there was no training provided. People had to learn on the job, reveals Mr lee. “The important thing was you had to explain to the staff what was the objective and the target – without having to spell out in detail how to do it.” under Mr lee, eNV sent its staff for postgraduate studies to do related courses such as public health engineering to build up the expertise of the ministry. “This paid off over the years,” Mr lee says.
he also introduced mechanical sweepers to street cleaning to overcome the shortage of cleaners or daily-rated employees. The employment
“it was most challenging; we worked late into
the night, reading manuals on how
to programme the computer and when
we finally figured it out, we used it to start simulating rain runoff so we could see what happened in extreme events, and calculate the
water yield in certain catchments. That’s how our first water plan came to be.”
Tan Gee Paw, PUB chairman
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To contain the situation, the new sale of Food act was presented in Parliament by eNV in 1973 which provided legal backing for more effective and wider control of the sale of food. eNV’s hawkers branch also continued to build on the work started in 1968 to license all hawkers, which would enable the government to identify, control and contain street hawkers. it focused on the planning and construction of more hawker centres to re-house street hawkers with the ultimate aim of preventing pollution from the hawkers and raising the standards of public health. singapore’s first hawker centre at yung sheng Road was completed in July 1972, and in that decade, more hawker centres such as those at empress Place and North bridge Road were completed.
Lee Ek Tieng, one of the 10 men who received the promised gold medal at the Clean Rivers Commemoration ceremony from PM Lee Kuan Yew (see pages 30 and 51); then Permanent Secretary for the Environment, he had taken up PM Lee’s challenge and helped to turn the Clean Rivers idea into reality (1987)
The need for centres and homes that provided adequate sanitation also gave much impetus to eNV’s sewerage scheme. in the same year, eNV laid about 19 km of sewers while private developers and statutory boards laid roughly 32 km of minor sewers. extensive sewerage work was carried out, the biggest of which was for the bukit Timah area, which would take 10 years to complete and serve 350,000 residents.
engineers built on the sewerage Master Plan, formulated in the late 1960s, which was tied to singapore’s overall land-use Concept Plan. The masterplan, later renamed the used Water Masterplan, served as a guide for the development of sewers and formed the foundation for planning the management of used water in singapore. in 1972, the department also
Eliminating pollution sources meant modern sanitation and plumbing in the Boat Quay area, which was one of the last to use night-soil buckets (1984)
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main sewage pumping stations, and over 700 km of sewers. Mr goh was part of a team of engineers then tasked with surveying the
land for the sewerage scheme. it was no easy feat – the process involved going to villages and surveying people’s homes. “i remember people would get very angry when we turned up, partly also because we uncovered illegal samsu (cheap rice liquor) being brewed in some of the backyards,” he recalls with a laugh.
sometimes, the engineers would come face-to-face with gangsters who would wait for them from the early hours in the morning. “They would threaten us, hoping that we would leave them alone,” says Mr goh. but eventually, they knew that they would have to move and make way for the sewerage work. The villagers were offered compensation and relocated to modern homes with adequate sanitation as part of hdb’s housing programme.
Those were the times when being an engineer meant getting dirty. “as young engineers, we had to inspect the pipes. so we went into the sewers until we were chest deep in shit. When we came out we had to bleach ourselves,” recalls Mr goh. but despite the smell, work was interesting, he adds. “There was a sense of achievement for all of us when we sewered all of singapore. it was exciting… we felt like we had contributed to the cleaning up of the country.
“if you don’t see all the difficulties, you’d find it hard to appreciate. Then, we were so used to dirty water, roadside drains, it was difficult to understand the need for being clean, moving to a proper centre where you have tap water to wash your dishes… singaporeans don’t appreciate that today. They are so used to it. The absence of it will anger them, rather than have them appreciating that the engineers those days did a good job. i guess you can’t blame them because they are born in a different time, where the environment is so clean. Now you hear they go overseas and complain that places are so dirty. That’s because they are so used to singapore,” he says.
eNV’s extensive sewerage works not only drastically cleaned up the country and reduced water-borne diseases, but also enabled the government to resettle squatters and those living in slums to modern apartments with
“The smell was really bad. People used
to smoke cigarettes while they were doing
their business so it would help to kill the stench. as a matter of courtesy, after we
finished our business, we would use a sheet
of newspaper to cover what we had
dumped, so the next guy that came in
wouldn’t have to look at it.”
Donald Goh, former chief engineer of PUB’s drainage department
piped drinking water, electricity and sanitation, notes lee ek Tieng. in addition, building proper sewerage systems also meant that wastewater could be separated from rainwater collected in catchment areas, making it possible for water collected in the reservoirs to be used.
The cleaning up of singapore that eNV undertook in the 1970s was soon to take on a new dimension when Prime Minister lee Kuan yew spoke at the official opening of the New upper Peirce Reservoir on 27 February 1977.
“saving water must become a way of life,” PM lee told citizens in his speech. he explained that it was far too costly and involved the “awful business of digging up the whole of singapore” to have a “double reticulation system” – where there are two pipes, one for drinking and cooking, and the other for all other uses such as washing floors and watering gardens.
Hundreds of hawkers like these in Hock Lam Street were asked by ENV to move to hawker centres (1974)
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he declared: “Whatever it is, it should be a way of life to keep the water clear. To keep every stream, every culvert, every rivulet free from unnecessary pollution.”
he then challenged eNV: “i think that eNV should make it a target in 10 years [to] let us have fishing in the singapore River and the Kallang River. it can be done. because in 10 years, the whole area would have been redeveloped, all sewage water will go into the sewage and the runoff must be clean; the only people who can dirty it will be the hawkers and those stupid and ignorant enough to believe that ‘that canal’, ‘that river’ is his free rubbish collection dump.”
The day singapore achieves that, Mr lee said he would give a “real solid gold medal” to whoever has been in charge. “but if it isn’t done we will go back… if i am still around and in charge in 1986, i will find out where it went wrong and whoever, whichever group of people made it go wrong and failed to one, either engineer the system; two, re-establish new habits of disposing of sullage water and rubbish. Well, i have got a special piece of lead not for striking medals – i think i’ll add it to their water supply.”
eNV Permanent secretary lee ek Tieng recalls that moment: “it came out like a bolt from the blue, literally,” and caused ripples throughout the ministry.
it was a task that was set to preoccupy eNV for the next decade.
Prime Minister Lee officially declared open the PUB’s Upper Peirce Reservoir in 1977; it was Singapore’s largest impounding reservoir; Lim Kim San (right) was PUB chairman
The fine line between economic development and environmental protection
A ir and water pollution was becoming a problem in the 1970s. Air pollution
was aggravated by vehicular exhaust. The burning of fossil fuels by oil
refineries,powerstationsandgrowingindustriescompoundedtheproblem.In
1970,theAnti-PollutionUnit(APU)wassetupunderthePrimeMinister’sOffice
to control pollution and to penalise those whose standards were not up to scratch.
It was an idea that then Prime Minister Lee Kuan Yew mooted after a visit to
Boston, which had mandatory inspections on the emissions of cars. APU started
its air-quality monitoring in residential and industrial areas. A legal framework
was implemented, including the Clean Air Act, passed in 1971. ENV introduced
laws to control pollution from motor vehicles to prevent smog, covering carbon
monoxide, oxides of nitrogen, hydrocarbons and lead emissions from vehicles.
The city’s leaders sought to assure both the private sector and the public
that the government would adopt a balanced and rational approach between
economic development and environmental conservation. But companies had to
follow certain rules if they wanted to be based in Singapore – adequate pollution
controlmeasureswasoneofthem.AsthefirstENVMinisterLimsaid,“the
economicbenefitsofsomeoftheseindustriesmaybegreat...buttheymaynotbe
able to compensate for the social cost of pollution, which may be even greater.”
Policymakers made sure industries were screened so that its operations would not
have adverse effects on the environment. Singapore turned down an attractive
offerbyanAustralianfirmtorentoneofitsislandstosetupanironplant.
APU demanded high environmental standards of companies. One example
was Singapore’s petrochemical industry with its heavy air pollution. APU required
thesefirmstoinstallagroundflaresystemtoallowformorecompletecombustion
of waste gases and reduce the amount of air pollution.
Says Lee Ek Tieng, who was head of the APU then: “One multinational
company lobbied EDB because it did not want to spend $5 million to install
agroundflare.TheycomplainedthatAPUwasgivingthemproblems.Butour
ministers remained neutral. Finally, they put it in.”
Minister for Health Chua Sian Chin (1968–1974, second from left), carrying out surprise checks on several factories and markets in Jurong and Tanglin Halt, when he announced that laws would be introduced on air pollution, which would be monitored by the newly set-up Anti-Pollution Unit under the Prime Minister’s Office (1970)
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Once a flooded nation
Thefrontpageheadlineon12December1969read:“Worstfloodsin35
years cause three deaths and devastation throughout Singapore”. The total
deathtollwaseventuallyfive.Singaporehadexperiencedtheheaviestdownpour
thedaybefore–467mmofrainwithina17-hourperiod–sincethefirst
automatic rainfall recorder was installed in Singapore in 1931, and this heavy
rainfall had coincided with a high 3.1 m tide.
Hundreds of citizens who were preparing to celebrate the Hari Raya festival
foundthemselvesfleeingfromfloodwaterswhichrushedthroughthecityandrural
areas. Reports said that soon after daybreak, a 49-year-old woman and her 22-year-
oldsonwerekilledwhenlandslidescausedbythefloodssmashedtheirhomeinthe
Telok Blangah area. In the afternoon, a coconut tree uprooted by the rapid waters
crushed a 52-year-old man to death.
The devastation was widespread and cost $4.3 million at 1969 prices. The
floodshadcutroadandraillinksbetweenSingaporeandPeninsularMalaysiaand
paralysed the city transport system, partially crippling telephone and electricity
systems,delayedflightsandtrappedthousandsallovertheisland.
(top and right) Floods were a common sight
during the 1960s and ’70s
Submergedvehicleswereacommonsight,andpigcarcasseswerefloating
on the river. Farmers suffered heavy losses in livestock and crops. Troops from the
SAF Training Institute and the Singapore Infantry Regiment joined the police in
one of Singapore’s biggest rescue and evacuation operations. Even Royal Air Force
helicopters were deployed, rescuing people trapped atop their homes and trees in
theheavily-floodedBedokcanalarea.
Deputy Prime Minister Teo Chee Hean remembers the day vividly. Floods
were a way of life then. For many years, whenever it rained heavily the water
levels would rise to the steps of his house. It was fun for him and his siblings, who
would “play with paper boats and watch the water recede”. But on that day in
1969, the rains did not stop and the water levels did not ease.
“The waters kept rising and even though I was already quite tall by then, the
water came up to my chest,” he says. “Our rooms were all submerged and my
father and I, we carried our beds and put them on the dining room chairs so as to
keep them dry. But it kept raining and the water kept rising. Finally, we decided to
leave the house, and we had to transport my grandmother in one of those metal
tubs that you washed clothes in. My mother and sisters, they were all up to their
necks in water. My father and one of his friends had to ‘piggy-back’ my younger
sisters to safety.”
Fortunately, no one in his family was harmed, although household items and
possessions were destroyed, including his grandfather’s huge collection of family
photographs,recallsMrTeo.Morethan3,000peoplelosttheirhomesandfive
died.
Thispromptedaseriesoffloodalleviationschemes.In1972,ENVcompleted
thefirstphaseoftheBukitTimahFloodAlleviationscheme,costing$7million,
which diverted water from the Bukit Timah – a low-lying area with a history of
floodingbacktothe1930s–throughUluPandan.Officialscalculatedthatthe
magnitudeandfrequencyoftheBukitTimahvalleyfloodswouldbegreatly
lessened,andfloodwateroverflowingthecanalwouldbereducedby60to70
per cent.
Yap Kheng Guan, 61, who joined the ENV drainage department in 1975,
remembers how there was a sense of urgency and mission that characterised
those days when Singapore’s engineers raced against time to implement adequate
drainage infrastructure.
“The waters kept rising and even
though i was already quite tall by then, the
water came up to my chest.”
Deputy Prime Minister Teo Chee Hean
A lake? No, it was Farrer Park, flooded after almost continuous rain for 20 hours (1967)
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Through a network of culverts, drains and canals, work that the PWD had
donepreviouslyalleviatedoreliminatedfloodinginsomeareas.Butinmanyparts
of Singapore, drainage systems constructed decades ago were proving incapable
of discharging storm runoff from catchments that had since been developed.
“It was a real sense of emergency,” says Mr Yap, former senior consultant of
PUB.“Wesawforourselvesthesufferingofthepeoplebecauseofthefloods.
Possessions were destroyed, people had to be evacuated and worse of all, we saw
people dying,” he says.
Despite the best efforts of the authorities to ramp up Singapore’s drainage
infrastructure,in1978,Singaporewashitwithitsworstfloodinhistory–one
thatsurpassedeventhehorrorsofthefloodsof1969.Thecountry’sinfrastructure
simply could not keep pace with rapid urbanisation.
In the 24-hour period on 2 December, a total of 512 mm of rainfall hit
Singapore and it coincided with the highest tide of the year. It was almost a
quarter of Singapore’s average annual rainfall. It wreaked utter chaos throughout
Singaporeandstrandedthousandsofpeopleasfloodwaterssweptintomany
Yap Kheng Guan, 61, former senior consultant of PUB, standing in one of the canals he was responsible for engineering to cope with heavy rainfall (2010)
housing estates, said reports. Army and police boats had to move in to evacuate
peoplefromfivesubmergedareas–KampungSanTeng,PotongPasir,Lorong
Buangkok, Lorong Kinchir and Lorong Chuan.
“People got out of their vehicles to get a better look around, when they saw
a man touch a lamp-post and fall down to lie beside it, dead. The lamp-post had
become live,” observed one reporter.
Mr Yap recounts: “It was a tragedy and seven people died – some by drowning
and some were electrocuted. It was very sad to see the aftermath, the debris, the
destruction. I grew up in a school, St Andrew’s near Potong Pasir, that saw frequent
flooding.Ithithomethatthiswasseriousbusiness.Thesenseofmission,the
urgencytofixthingswasveryreal,”hesays.
In close consultation with the Singapore’s planning agency, the Urban
Redevelopment Authority (URA), Housing and Development Board (HDB) and
JTCandotheragencies,ENV’sdrainagedepartmentintensifieditsworkonthe
drainage masterplan, which started in the mid-1970s. The masterplan guided the
provision of drainage systems and set aside drainage reserves for future use; it also
targetedflood-proneareasandimplementedsuitablefloodalleviationprojects.
Since 1973, more than $2 billion has been spent on the construction of new
drainsandcanalsinSingaporeandthishashelpedtoreducethefloodprone
areas in Singapore by 95 per cent, from 3,200 ha in the 1970s to about 56 ha
in 2012.
Mr Yap notes: “It is a drastic change. It’s a nice achievement for us, because
webuckedthetrendwhereinmanyurbanisingcitiesyoufindthefloodprone
areas increasing. But here because of the extensive work we carried out, we took
careofthefloodingproblem,andpreventednewfloodareasfromemerging.”But
thefloodingproblemwouldprovedifficulttoberesolvedforgood(see page 164).
“it was a tragedy and seven people died – some by drowning
and some were electrocuted. it was very sad to see the
aftermath, the debris, the destruction. i grew up in a
school, st andrew’s near Potong Pasir, that saw frequent
flooding. it hit home that this was serious
business. The sense of mission, the urgency
to fix things was very real.”
Yap Kheng Guan, former senior consultant of PUB
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Ulu Pandan Incineration Plant
A part from being tasked with removing night soil, ENV’s General Services
Unit also disposed of the refuse collected throughout Singapore and worked
with the Public Works Department in the clearing of obstructions, unauthorised
structures and derelict vehicles. Rubbish then was sent to the Koh Sek Lim and
Tampines dumping grounds. Singapore generated about 1,600 tonnes of waste
daily then. ENV was aware at that time that land in Singapore was scarce and
alternativeandmoreefficientmethodsofrefusedisposalwereneeded.In1972,it
began studies into the construction of an incineration plant.
Ong Seng Eng, 59, who joined ENV in 1978 as an engineer, recalls that
illegal dumping of waste in Singapore was a big problem then. To encourage the
properdisposalofwaste,nofeewaschargedfordisposalatlandfillsforwastethat
weighed less than 1 tonne.
“The main aims then were to clean up the city and improve public health in
the most cost-effective way. Waste had increased several-fold, and we soon ran out
ofspaceforlandfill,”saysMrOng,whoiscurrentlythedirectoroftheNational
Environment Agency’s (NEA’s) Waste and Resource Management Department.
Waste-to-energy incineration was found to be the most effective solution.
Teams of engineers went to Japan to study how the country incinerated and
disposed of its trash. They discovered that in addition to reducing the volume of
the waste, the heat energy produced from the combustion process in incineration
could be used to generate electricity, while ferrous metals from the ash residue
were recovered for recycling.
ConstructionofSingapore’sfirstwaste-to-energyincinerationplant–theUlu
PandanIncinerationPlant–beganin1976andwasofficiallyopenedin1979by
Lim Kim San. The plant handled on average 1,100 tonnes of waste per day, which in
2008 made up about 15 per cent of the total waste disposed in a day in Singapore.
It also generated, on average, about 5,800 MWh of energy each month, enough to
powersome16,000four-roomHDBflatsforamonth.
It ceased operations in 2009 after 30 years, but this was 10 years more than it
was initially planned for.
(below left) A bunker in the Ulu Pandan Incineration Plant before it was closed in 2009; refuse transported to the plant by refuse collection trucks was emptied into the bunker before giant cranes transferred the garbage into the furnace; (centre, from left) crane control room technicians Ahmad Adam, Lee Boon Seng, P Manickam and Lee Kok Woon; (below right) refuse collection truck driver Tan Boon Kwee, clearing his final load of refuse
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“An ideal urban environment is certainly not arrived at by accident or pure chance. It needs knowledge and effort and perseverance not just on the part of a few individuals but the whole community. Both government and people have to be actively committed in working towards the goal of an ideal environment if it is even to be partially realised.”
EW Barker, ENV Minister 1975–1979
“The lighters are gone and the water is cleaner.”
Ong Pang Boon (right), ENV Minister, looking out on the Singapore River in 1984
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The United Nations Environment Programme’s executive director then, Dr Mostafa Tolba, who visited Singapore in 1978 said many developing countries could learn from Singapore on how it had solved several of its environmental problems. The environment was just emerging as a global issue and the UN General Assembly wanted world leaders to discuss plans for a new international development strategy to meet world environmental problems. He said then: “Singapore could lead the way in tackling housing and water problems.”
But even though Singapore had achieved a certain level of success, ENV still had its work cut out. In fact, the ministry came under fire at a Parliament session in 1977, when then Member of Parliament for Potong Pasir Ivan Baptist accused ENV of letting the “Keep Singapore Clean” campaign, initiated in the 1960s, come to a “grinding halt”.
Mr Baptist had pointed out that while tourists and the public sang praises of the clean and green surroundings of Singapore, these were only referring to main streets and its sidewalks. In the kampongs and squatter areas however, he said, there was “filth and squalor”.
It was to be a common complaint that surfaced regularly in the late 1970s. While there were areas that were spruced up, many parts including the Singapore River, Sungei Whampoa and the Kallang Basin were still dirty and polluted. ENV was aware that it had to continue building on the foundations laid in the previous decade. Mr Barker reassured the House then that action was being taken and the ministry was speeding up its programmes, while in the interim dispatching public health officers to visit certain areas daily, and ensuring regular disposal of refuse and night soil buckets.
In the decade that followed, Singapore was to undergo a radical transformation that would usher it into the modern era. What became the ultimate symbol of this metamorphosis was the clean-up of the Singapore River – a vision set out by Prime Minister Lee Kuan Yew that turned into
“Singapore could lead the way in tackling housing and water
problems.”
Dr Mostafa Tolba, UNEP’s executive director, 1978
(previous page, left) PM Lee Kuan Yew setting an example along Cheng Cheok Street in keeping roads clean (1959)
(right) Squatters living along the Singapore River treated it as a garbage bin and as a toilet – and then allowed their children to bathe in it (1983)
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The end of an era
O n 24 January 1987, Singapore said goodbye to a primitive way of life and
entered a modern era. “Modern sanitation has arrived at every home in
Singapore, sounding a death knell to the century-old night soil bucket system,”
said news reports on that day.
From that day, the 78 night soil workers who served families in rural areas
would no longer go on their daily rounds to empty and clean the buckets
of human waste. The system – introduced in Singapore in the 1890s – had
been phased out by ENV in a bid to provide modern sanitation for the whole
of Singapore. Night soil workers had either been redeployed as cleaners or
retrenched. Altogether, 15,369 night soil buckets were phased out from 1982 till
1987. It was the result of a $1.6 billion effort by ENV to develop an island-wide
sewerage system that was accelerated in the 1970s.
To mark the official end of the night soil bucket system, ENV held a closing-
down ceremony at its last night soil disposal station at Lorong Halus in Tampines.
Former chief engineer of PUB’s drainage department Donald Goh recalls that day
of the ceremony: “We wanted to keep the last bucket. ENV officers cleaned it and
kept it, as a reminder to the younger generation of a previous way of life.”
Among the users were:
• 21,000 unsewered premises;• 27,000 squatter families; • 610 pig farms rearing 76,000 pigs; • 480 duck farms rearing 125,000 ducks; • 5,000 street hawkers;• 580 vegetable and fruit wholesalers;• 3,600 industrial operators;• 60 boatyards and 800 lighters;• 430 backyard motor repair shops.
As Mr Barker said when ENV embarked on the extensive exercise: “These developments will take time. The immediate programme is to phase out latrines hanging over rivers and to extend the daily night soil removal service.”
Singapore’s last night soil bucket reached the end of the road at the Lorong Halus station, laid to
rest with 1,500 other buckets; Tan Kim Wah, who had been picking up the buckets for 20 years,
was glad to say goodbye to his job (1987)
reality. This transformation of the Singapore River and Kallang Basin from an open sewer to a pristine artery had entered Singapore’s national consciousness and history in more ways than one. It represented the people’s determination to deliver Singapore out of its backward past; it also became a metaphor for the transition of a messy colonial entrepot into a self-governing island nation that had pulled its weight in the world.
The big clean-upBut the work was challenging. In the process of the clean-up, ENV discovered that the nation’s drains, canals and rivers were being used as convenient open sewers.
The water-witch vessel was used to scoop up all the flotsam in the Singapore River brought down by the current, emptying its “bucket” into large rubbish bins on a barge (1983)
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Relocation of hawkers and squatters and installation of sewers, which began in the late 1960s, were thus accelerated. The first task: ENV’s Hawker Department had to relocate 31,000 street and illegal hawkers. Officers combined persuasion with punitive action, including sending 200 enforcement officers out on the streets to ensure the street hawkers would not return.
Martin Nathan, current head of the National Environment Agency’s Northeast Regional Office, recalls that when he joined ENV some 40 years ago as an enforcement officer, he was part of a team tasked to ensure that hawkers were not illegally subletting their makeshift stalls. His duties included conducting checks on street hawker clusters in Boat Quay, Orchard Road, Chinatown and Empress Place, ensuring proper disposal of garbage and food waste, and inspecting the papers of vendors who were required to be vaccinated against typhoid and X-rayed for tuberculosis.
Dealing with the illegal hawkers was not easy. Once officials had relocated legitimate hawkers into proper centres, groups of illegal hawkers would descend on the same cleared areas to set up new makeshift stalls and pushcarts. To deal with them, the enforcement teams were backed by armed police escorts and dozens of workers, and equipped with lorries with lift cranes.
“We had to seize the illegal structures and tear them down, haul away bulky items such as textiles, lorry-loads of fruits… the biggest danger was bodily harm. We faced allegations of abuse of power and intimidation by thugs. It was highly stressful on officers,” Mr Nathan recalls. “The public was also not supportive and would voice unfriendly sentiments to arouse anger and fuel fights. When we had to seize the hawkers, there was a high likelihood of a fracas and fights would break out when the hawkers called for reinforcements from friends,” he adds.
There were instances when even the riot police had to be called in to rein in the crowd and armed escorts had to draw their revolvers to put off assailants. Some memorable incidents include one where a hawker had set fire to his pick-up to prevent Mr Nathan’s team from seizing it, and in another, members of the team were injured after hawkers assaulted them with fruit knives at Cambridge Road market. Some hawkers also falsely accused the officials of corruption, he says. The team had to negotiate with illegal hawkers to give up their trade to seek proper jobs and businesses. “Many did so for fear of our clampdowns.”
(bottom left) Part of the huge crowd of hawkers at the Havelock Road licensing exercise by the Singapore City Council; an average of 400 licences were issued every day (1952)
(bottom right) Illegal hawkers facing police action at Raffles Place (1959)
Environment Minister Lim Kim San visits Koh Kim Kai, 27, an assistant public health inspector, who had been attacked by a hawker with a fruit knife at Cambridge Road market (1975)
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Water Conservation Plan 1981
I n the early 1980s, water consumption rates in Singapore spiked along with
new industries setting up such as wafer fabrication plants, which needed huge
amounts of water. The unaccounted-for water rates were also at high levels. PUB
tasked its officers to formulate the first Water Conservation Plan.
This was done based on five key strategies: reducing wastage, recycling
and reusing water, using non-potable water, education, and incentive schemes.
A Water Conservation Unit was set up to promote water conservation and to
reduce wastage. PUB stepped up a detection programme to uncover leakages in
Singapore’s water distribution system.
Chan Chow Teing, 61, joined PUB in 1976 as a design engineer in the
water supply department and in 1981, he was posted to the Waste Control
and Inspectorate Branch, which was responsible for waste detection, water
conservation, approval of pipes and water fittings, and water tank inspection.
He recalls: “There was a call to conserve our water resources… Those days,
water wastage was common in public places like cinemas, hawker centres, club
houses, hotels, etc where the public often left the tap running after washing their
hands in the washrooms.”
To prevent such wastage, PUB made it compulsory for public places to install
“Self Closing Delay Action Taps” that allowed water to run for a few seconds and
turned off automatically. Rubber hoses, with free running water commonly used
for washing activities, were required to be fitted with a nozzle control device.
Officers also visited hotels, industrial and commercial premises with high
water usage to advise them on how to use water more efficiently. PUB worked
with HDB to introduce cisterns of a smaller capacity in all public housing
developments to save water.
To promote water conservation at home, PUB organised seminars and talks
at schools to convey the water-saving message. Some tips: looking out for pipe
leakages at home, not leaving the tap to run while brushing teeth or washing
hands, and use of water-saving devices such as installing thimbles on kitchen taps
and shower heads to reduce the flow of water.
Parliamentary Secretary (Social Affairs)Chan Chee Seng (left) at a “ Water is
Precious” exhibition at the Maude Road community centre (1976)
Some of the hawkers were more understanding about the need to move. Chan Yeow Seng, 68, who was helping his father at the family’s chicken rice stall at Smith Street since the ’50s, recalls how his family’s entire livelihood depended on the stall. Business was brisk and they would prepare the food on the street, getting water they needed from taps nearby. Rubbish that the stalls accumulated was disposed of at dumps located just opposite the street. When officials started relocating the hawkers, Mr Chan, the oldest of four children, said the family was uncertain of the move, and afraid that it would damage their decades-old business.
“In the end, we knew we had no choice. We also understood the Government’s objective in raising standards. But we miss the days when we had all the space in the street, where we would set out tables and chairs for our customers,” says the father of three daughters. In 1983, Mr Chan’s chicken rice family business moved to the second level of Block 335 Smith Street, also known as Chinatown Complex. It is the largest hawker centre in Singapore with more than 700 stalls. Mr Chan still operates his Heng Ji Chicken Rice stall there, more than 70 years after his father started it on the streets near Boat Quay.
Mr Nathan says that despite the dramatic scenes and backbreaking work, the officers were motivated when they saw tremendous improvement in public health and hygiene on the streets of Singapore. “This kept us going… It was satisfying despite the challenges. We also helped some illegal hawkers who did not know how else to make a livelihood get proper stalls and licences… the exposure we got on the job strengthened us and gave us confidence in dealing with difficult situations in the future. We also built strong camaraderie among the officers,” he adds.
In the end, about 5,000 hawkers in the Singapore River’s catchment area were relocated to centres with proper infrastructure that provided washing facilities and were linked to sewers, while others were absorbed into the workforce. Members of Parliament and grassroots leaders were also enlisted to help in the process, which was politically sensitive, and to deal with complaints and appeals. By 1986, the last of the street hawkers had been successfully relocated.
“In the end, we knew we had no choice.
We also understood the Government’s
objective in raising standards. But we
miss the days when we had all the space in the street, where we would set out
tables and chairs for our customers.”
Chan Yeow Seng, whose father started the Heng Ji Chicken Rice stall more than 70 years ago in
Smith Street, which moved to the Smith Street food centre in 1983
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W Apart from hawkers, waste generated by pig and duck farms was also a major source of water pollution. There were also hundreds of backyard industries, such as charcoal production and the making of soya bean products. These businesses operated in homes or small factories across the catchment area. The pig and duck farms were initially relocated to Punggol but by the mid-80s, the Government decided to eliminate the farming industry due to limited land and their pollutive activities.
Then there was the shipyard industry operating in the Kallang Basin and the lighterage industry along the Singapore River whose activities polluted the Kallang River with oil, debris and rubbish. It was difficult persuading the industries to move, said PUB Chairman Tan Gee Paw.
There were also the squatter colonies that had to be relocated into high-rise housing in new towns, and proper sewerage systems built to replace the night soil bucket system. He recalls: “We knew the squatters and the night soil system had to go. There was no way we could lay sewers while they
were still there. And if we couldn’t connect the wastewater, solid waste and rubbish systems, there was no way we could clean up the catchment or use the water from the river. So we aggressively ramped up the resettlement programme with HDB. And we laid sewers in every block so that residents could move in.
“It was an exciting period in Singapore’s development but it did not come without a cost. In those days, residents were not happy about their resettlement, and those in boatyards at Sungei Kallang were angry. When we went to survey the area, the boatyard people would chase us and throw sticks at us. They knew we were there to do something they would not like.”
But the tenacity of the officers enabled them to press on. They continued to persuade and prepare for the industries to move. Finally, the recession of the early 1980s also forced many shipbuilders to consolidate and relocate to new areas in Pandan, Jurong or Tuas. The hundreds of bumboats that trawled the Singapore River also had to give way to a modern container
“There would have been no clean
and green Singapore without Lee Ek
Tieng.”
Lee Kuan Yew, From Third World to First: The Singapore Story:
1965–2000
(bottom left) The end of the road for 22 large pig farms in Punggol, which were highly pollutive (1989)
(bottom right) A squatter colony behind Keng Cheow Street (1951)
(next page left) Tree-planting at Sungei Kallang Drainage Reserve along Marymount Road (1980)
(next page right) Construction work on a section of Sungei Kallang at Braddell Road (1968)
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(left) Barges and bumboats moored along the Singapore River for unloading and loading (1979)
(top) PSA’s Tanjong Pagar Terminal (1996)
system. Chief engineer of pollution control then, Tan Teng Huat, said in an interview in Pioneers Once More: “We knew we had a job to do and we saw the good of it. But we also knew that in the process we would upset a lot of people’s livelihoods and their way of life.” The Port of Singapore Authority (PSA) had built cargo handling storage and mooring facilities in Tanjong Pagar, and by 1983, the lighters were relocated there.
Speaking at the Clean Rivers Commemoration held at Marina Mandarin Hotel in 1987, Prime Minister Lee Kuan Yew recounted how since the 1930s, whenever he passed by the Singapore River, he would get the “full blast of this mysterious odour”. But that year, as he strolled along the promenade near Parliament House, the odour no longer “assaulted his senses”.
As he handed out gold medals to the team of 10 officers in charge, PM Lee outlined the three factors that made it possible – the vision of what was possible with modern engineering; the courage and tenacity to implement
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W unpopular measures; and changing life-long habits and uprooting outdated industries.
The clean-up cost the Government nearly $300 million, excluding resettlement compensation, and would pave the way for the construction of the Marina Barrage later in Singapore’s history.
Mr Tan recalls the moment it was all done and dusted: “The change was dramatic – from a bustling river, to a quiet one. I remember going down to the river banks and taking a walk. It was silent, no lorries, no boats, or baskets of all kinds of rubbish. We were struck with nostalgia and asked ourselves ‘what have we done?’ But we all knew it was necessary and we’re happy to see that nightlife has now returned to the river.”
Eliminating diseases and floodsWhile the 1980s were characterised by the comprehensive clean-up of the Singapore River, ENV continued to achieve milestones in its relentless pursuit to improve Singapore’s environment.
(opposite page) River taxis cruising along a clean Singapore River (2000)
(left) Checking to see if mosquitoes are breeding in the gulley
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W One significant impact in achieving high levels of cleanliness in Singapore was that it helped to eliminate mosquito-borne diseases. Malaria, in particular, was the most threatening vector-borne disease in Singapore before and after the two World Wars. Singapore’s rapid urbanisation – which displaced hilly and swampy areas conducive to mosquito breeding – and its integrated disease control programme enabled it to tackle the epidemic. The system ENV established was capable of detecting and eliminating the focus of transmission quickly, preventing recurrence.
Lee Ek Tieng tells of an “operations room” in ENV, from which they would monitor the outbreaks. “Whenever the disease struck, we let the patient get treated by the hospital, but we would go out and hunt for the source. My officers would trace where the patients had gone, isolate the areas, and inspect suspicious areas… by getting rid of the source, we controlled the outbreak,” he says.
Thanks to these efforts, Singapore was declared malaria-free by the World Health Organisation on 22 November 1982. Mr Lee says proudly, “We were the first in Southeast Asia to be malaria-free. And this put pressure on our neighbouring countries as they still had malaria in their rural areas.”
In 1986, ENV rolled out its largest civil engineering project – Phase Two of the Bukit Timah Flood Alleviation Scheme. The success of the first phase had convinced the Government of the need for good drainage. Marketing manager Melanie Foo, 36, who lived along Bukit Timah Road in the ’80s, recalls that the area was still experiencing flash floods then. “One time, I remember the waters swelling and coming up to thigh level. My sister and I would wade around in the waters in the rain. My parents would insist that we walk in the middle of the road because if we walked too near the side, we might slip and fall into the drain and get washed away,” she says.
ENV’s work on the flood alleviation scheme soon made such floods a rare occurrence. In addition to deepening and widening the Bukit Timah Canal, a second 4.4 km tunnel diverting water from the canal to Kallang River was constructed, along with other smaller drains and canals downstream. The initiative was a complicated project that cut across one expressway and involved works close to the intersection of two major expressways. It cost $240 million and took five years to complete. What made it even possible in
the first place was the foresight of British engineers who had earmarked land to implement a diversion canal in plans in the ’50s. If this had not been done, the dense built-up nature of the area would have made it too costly to implement the scheme.
ENV’s engineers were to learn and apply this long-term approach in the drainage work that followed in the ’80s. PUB’s Yap Kheng Guan recalls that work on the Mass Rapid Transit (MRT) in Singapore had just begun around that time and caused much concern for the “drainage guys”. “It was something we took very seriously. If we had extremely heavy rainfall, the underground structures for the MRTs could be flooded and it could knock out the entire system. There were many vulnerable points to consider – where passengers enter at ground level, the ventilation tunnels, service cables… So we had to make sure we took extra precautions right from the start.”
This involved convincing MRT builders to include flood barriers such as stairs where the highest step is built one metre above the highest recorded flood level. At Newton MRT, for example, the ventilation shaft emerges from the ground like a tall flower – the result of listening to the engineers, says Mr Yap, who advised that the shafts should be placed beyond ground level in case of flooding. Till this day, even during flash floods in Orchard Road, no MRT tunnels or stations have been flooded, he notes.
Tunnelling work – the first phase of a major flood alleviation scheme to divert water from Bukit Timah Canal to the sea (1969)
What’s that smell?
Water Reclamation Plants (WRPs) used to be called Sewage Treatment Works but were renamed in 2001 to reinforce the idea that used water was a resource to be reclaimed. In 1980, the Kranji WRP was commissioned, and in 1981, the Seletar and Jurong WRPs opened. WRPs were located in areas that were once rural and previous technologies meant open tanks were used and a 1 km buffer zone had to be imposed because of the odour. In the 1990s, the WRPs were progressively covered up and this buffer was reduced to 500 m.
55
Covered tanks at the Ulu Pandan WRP
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The Central Expressway tunnels were another example where flood protection was integrated in the shape of a bump on the expressway, which prevented water from going into the tunnel during extreme weather, he adds. Pump systems were also installed so that the infrastructure had two or three “lines of defence”.
In 1984, a Road Drainage Improvement Task Force was set up to handle localised flooding on roads and to reduce disruptions to traffic during heavy rainstorms. It was structured to ensure efficiency and different departments tackled different aspects, from the design of roads to cleaning and even maintenance of drains. It would identify roads that were prone to flash floods and seek engineering solutions to the problem such as raising low-lying roads and clearing drains to remove blockages. This task force is so effective that it still exists today under PUB. It was at the forefront of Singapore’s renewed efforts in tackling the flash floods that it experienced in 2010 and 2011.
It was also in this decade that the common refuse chute in HDB blocks was introduced to make waste collection easier. Refuse from these high-rise blocks could then be collected daily from a refuse chamber at the foot of the blocks.
By 1988, 96.5 per cent of the population was served by modern sanitation as ENV’s extensive sewerage work continued its aggressive pace. The next
ENV moves to Scotts Road
The buildings in the ’80s were characterised by the well-tried formula of reinforced concrete construction with varying degrees of prefabrication. Finishes, however, were upgraded with the use of ceramic tiles, glass blocks, carpets and even natural stones. One example is the Environment Building (inset), which consists of a 25-storey tower and a five-storey annex. Completed in 1986, it stands prominently along Scotts Road; the tower has two massive cylindrical structures housing the lifts and services, contrasting sharply with the light curtain wall which clads the offices. Essentially modernist, it is distinguished from other office blocks by its ground floor, kept open for public use, with lush landscaping and partly-covered public space well-suited to the tropical climate.
(From: Framework and Foundation: A history of the Public Works Department)
year, licensing of general waste collectors which serviced the industrial and commercial sectors was introduced and required the use of vehicles and equipment for collecting and transporting waste from the collection points to the disposal facility. This improved the reliability and quality of the refuse collection services.
As Singapore approached the end of the ’80s, public health was no longer just about poor sanitation. Former chief executive of PUB Khoo Chin Hean, who joined ENV in 1977, notes that public health risks were beginning to come from other sources such as industrialisation and trans-boundary pollution.
“At that time, the chemical industries in Singapore were taking root and India suffered the Bhopal tragedy. The hole in the ozone layer was already a major global concern. Global warming concerns were also just about to wash onto our shores,” says Mr Khoo, who was also former director of the Environmental Policy and Management Division.
The Bhopal disaster in 1984 was a gas leak incident in India that was considered one of the world’s worst industrial catastrophes. Leakage of poisonous gases resulted in hundreds of thousands of people being exposed and as many as 25,000 deaths were attributed to the disaster.
To address these concerns, ENV set up a new directorate to address the issues and became more involved in international and regional forums, recalls Mr Khoo. In 1989, Singapore acceded to the Vienna Convention on the Protection of the Ozone Layer, and the Montreal Protocol on substances that deplete the ozone layer.
It marked a new era in which ENV shifted its gaze outwards now that it had largely addressed Singapore’s urgent environmental needs. This meant more active participation in international dialogues and also a greater focus on the “softer” side of environmental issues such as engaging the wider public. This would lay the foundation for Singapore’s first Green Plan in 1991, which aimed at raising the awareness of Singaporeans about these new environmental concerns.
Says Mr Khoo: “A better public understanding of the issues helped to secure much support on initiatives that required each of us to ‘think global, act local’.”
A part of Stamford Canal along Buyong Road being rebuilt in 1979 at a cost of $32 million to prevent flooding in the Stamford-Orchard Road areas; work to widen and deepen the 4.1 km canal took about 30 months
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“Through the Green Plan, the Government hopes to develop Singapore into a city with high standards of public health and a quality environment. It will also be one whose people are concerned for and take personal interest in the care not just of their immediate environment but also the global environment.”
Tan Guong Ching, ENV Permanent Secretary, 1992–1995
3 Hardware to Software
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W The Ministry of the Environment (ENV) changed its well-known red and white logo on its 18th anniversary to a circle of green, blue and white as Singapore ushered in the ’90s.
Dr Ahmad Mattar, Minister for the Environment then, declared that ENV had succeeded in its mission to tackle Singapore’s pressing environmental woes. The new logo, meant as a “guiding light” for the ministry, marked “a mature ministry” that would face “new challenges, in addition to existing ones”, he said. Singapore had transformed from an Asian backwater to a modern city and had set its sight on a loftier goal for the next decade – to be a model environment city for the future.
In 1991, ENV launched the first Singapore Green Plan, which set out that, by 2000, Singaporeans would enjoy “high standards of public health, a quality environment” and become an “environmentally conscious and responsible people”. Singapore’s new ambition was to become the industrial centre for environmental technology and a regional environment conference venue.
To deliver on that ambition, ENV set up a new division – the Environmental Policy and Management Division (EPMD), which would have three departments that dealt with strategic planning and research, international environment and policy, and pollution control. It also promised to promote the use of environmentally-friendly consumer items through schools, community groups, companies and the media, introduce a green labelling scheme for products, and raise standards on pollution.
These moves would ensure that Singapore’s environmental standards and infrastructure remained ahead of the curve, but ENV was painfully aware that the larger challenge was not the “hardware” but the “software” – grooming a population that embraced environmentalism as a way of life. In its first annual Clean and Green Week in 1990, the ministry organised and funded multi-themed activities aimed at schools, businesses, NGOs, grassroots communities and consumers. Dr Mattar said at the launch: “In spite of years of public education and numerous campaigns, we have not succeeded in motivating our people to develop an environmental and civic
consciousness. This must change… When the time comes, I want all of you to participate in the Clean and Green Week with a great sense of mission.”
The birth of the environmental movementThe new decade would also see the rise of environmental civic societies in Singapore – albeit with a bit of a push from the public sector. That same year, a non-government organisation, the National Council on the Environment (NCE) was launched at the first Clean and Green Week to help the Government realise Singapore’s environment city vision. Initially comprising 19 key personalities from the private and public sectors, the council’s mission was to encourage and co-ordinate public participation in environmental protection.
Dr Mattar acknowledged that so far, the Government had been the key player in the cleaning and greening of Singapore. But it could no longer stay this way. The responsibility of improving the environment should be a shared concern of all Singaporeans, he said. The formation of NCE, later to be renamed the Singapore Environment Council, would be “an additional conduit through which public opinion on environmental issues can be represented.”
The ministry’s logoTo reflect the change in the ministry’s long-term role, the colours of its logo were
changed in 1990 to blue, green and white – representing purity and a clean
environment, similar to the theme of the existing red and white logo (bottom
left). It also maintained a round shape to ”embody the delicate environment
and ecosystem in which we live”, said Dr Ahmad Mattar then. The circle also
symbolised protection and conservation of our environment – the principal role of
the ministry. To depict a clean and healthy environment, clouds and a continuum
of horizontal bands were used. The clouds represented clean air, the green bands
symbolised clean land, and blue bands represented clean water.
The ministry’s name was changed in 2004 to the Ministry of the Environment
and Water Resources (MEWR, see page 111).Dr Ahmad Mattar, ENV Minister,
1985–1993
(previous page, left) Elias Park Primary School pupils use pails of water to wash their hands during a water rationing exercise (1996)
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W The first chairman of NCE Robert Kwan set out the council’s greatest challenge then: To educate a whole generation on the need to be environmentally responsible. Its first executive director, Kirtida Mekani, recalls those early days: “The idea was to mobilise people to connect and care for the environment through education and activities.”
To green young minds, NCE worked with the Ministry of Education to create books with an environmental message. The council was restructured as an IPC, or Institution of Public Character, which was allowed to receive tax-deductible donations. After two years, it was renamed the Singapore Environment Council (SEC) because, says Mrs Mekani, “it was a national body to serve Singapore at large and SEC was a more holistic name”.
Singapore’s shift in focus to individual action and collective environmental awareness in the 1990s reflected a larger global trend where the environmental movement had begun to emerge with a sense of urgency. The first United Nations Conference on Environment and Development, also known as the Earth Summit, held in Rio de Janeiro in June 1992,
represented this movement. Singapore – though a tiny island nation – made its contribution through Ambassador-at-Large Professor Tommy Koh, who chaired the preparatory committee for the summit. He was charged with the difficult task of seeking consensus among the many nations on global environmental issues.
Prof Koh recalls in an interview that the main challenge in chairing the committee was that the environment had “become so politicised” that countries were unable to agree on anything except the Rio Declaration of Principles. “We went to Rio with about 300 bracketed texts or disputed texts. Given the little time we had in Rio, most of my colleagues did not think I would succeed in achieving consensus on so many disputed texts. Miraculously, we succeeded,” he says.
The summit would give birth to the UN Framework Convention on Climate Change and later, the Kyoto Protocol. In 1996, Singapore acceded to the Basel Convention on the Control of Transboundary Movements of Hazardous Wastes and their Disposal. But it stopped short of joining the
Environmental Policy and Management Division (EPMD)
The EPMD was established in January 1991 under ENV. It was moved to
the National Environment Agency (NEA) and renamed the Environmental
Protection Division (EPD) in July 2002. The EPMD’s role was to protect and sustain
the quality of Singapore’s environment. There were three departments:
• Strategic Planning and Research Department, which formulated strategic plans
for the ministry and focused on minimising the environmental impact
from pollution and waste. It carried out research and development work in
relevant areas of environmental technology, such as waste minimisation.
• International Environment and Policy Department, which looked after
regional and global environmental issues. This department projected Singapore
as an environmentally-responsible nation and promoted Singapore as an
environmental technology base and a model environment city.
• Pollution Control Department, which was responsible for the planning and
implementation of programmes to control hazardous substances and toxic
wastes and monitoring of air and water pollution.
Tan Teng Huat, 72, director of Environment Policy and Management
Division (1995–2000), ENV
Professor Tommy Koh, who chaired the preparatory committee of the first Earth Summit in Rio in June 1992
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W Kyoto Protocol when it was created in 1997. Minister for the Environment then, Yeo Cheow Tong, explains that Singapore chose to wait because the negotiations were at the preliminary stage. “Being a small country, we were not a key player on the global stage at that time… It was prudent for us to participate, but also not to commit too early until the dust had settled.”
The decade of innovationWhile ENV shifted its gaze outwards it never lost sight of domestic issues, which always came first. It continued to introduce the legislation necessary to keep up with Singapore’s development pace. In 1991, ENV introduced emissions standards for diesel vehicles and the Pollutant Standards Index, or PSI, which measured pollution levels in the air for major pollutants. It also implemented the Environment Public Health (Control of Noise from Construction Sites) Regulation that capped noise levels at construction sites.
The ministry also got creative with policymaking, implementing a bill in 1992 that allowed it to issue a “corrective work order”(CWO) against recalcitrant litterbugs. Those aged 16 or older who had been caught littering or dumping in public places had to don brightly-coloured vests and clean a public area for up to three hours. The idea was to shame and embarrass litterbugs so they would think twice about repeating the offence. Mr Yeo says the ministry felt it needed more tools in its belt: “Imposing fines was just doing more of the same. We needed to have additional tools… and the CWO helped to bring the awareness of keeping the environment clean to a higher level. Of course, all campaigns have a finite life… it shows that educating people on public behaviour is a difficult task. But I would say the situation today has definitely improved from what it was in the ’90s.”
Policymaking was not the only area in which the ministry sought innovation. Its engineering capabilities were about to be tested and pushed to its limits with several high-profile infrastructure projects. ENV had just completed its largest drainage project – Phase 2 of the Bukit Timah Flood Alleviation Scheme – and implemented a computerised system that gave early warnings for flood-prone areas across Singapore.
“Being a small country, we were not a key player on the global stage at that
time… It was prudent for us to participate,
but also not to commit too early until the dust had
settled.”
Yeo Cheow Tong (below) ENV Minister, 1997–1999
In 1993, one of the world’s largest incineration plants then – the Senoko Incineration Plant – was completed, marking yet another milestone in Singapore’s solid waste management system. Built at a cost of $560 million, it enabled Singapore to incinerate most of its waste and reduce the amount of precious land needed for dumping.
Along with Singapore’s rapid development, the amount of waste generated also increased dramatically, from 1,600 tonnes daily in 1972 to 3,200 tonnes in 1982 and 6,200 tonnes by 1993. Singapore’s remaining landfills – the Lim Chu Kang and Lorong Halus dumping grounds – were rapidly approaching their expiry dates. Lim Chu Kang was closed in 1992, while Lorong Halus closed seven years later. At the opening of the Senoko plant, Dr Mattar announced that Singapore had no choice but to dump its waste on an offshore island.
This would eventually lead to Semakau Landfill, which has arguably become Singapore’s most well-known engineering marvel – dubbed the “Garbage of Eden” by New Scientist magazine. The idea of building an offshore landfill by reclaiming land from the sea had no precedent anywhere Litterbugs carrying out CWO
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W else in the world. ENV sent officers to study near-shore landfills in Japan as well as barging systems in the United States. A specialist consultant, Camp, Dresser and McKee International (CDM) was engaged to conduct a detailed study of the design, construction and operation and it concluded that the plan was viable. In 1994, then Minister for the Environment Mah Bow Tan submitted a proposal to the Cabinet for the landfill.
Deputy Prime Minister Teo Chee Hean, who took over from Mr Mah as Environment Minister from 1995 to 1997, recalls the thoughts that ran through his head when he first heard of the proposal. “I was Minister of State in Finance then. I had to read the paper twice. In essence it said: Give us a billion dollars to build a big hole in the ground and let’s fill it with rubbish. I needed to hear the briefing on this one,” he recalls with a chuckle.
The Cabinet approved the final plan – the cost was $1.2 billion – and construction began in 1995. Mr Mah recalls the logistical and environmental challenges then: “We were dumping rubbish into the sea essentially. We wanted to make sure we weren’t solving one problem and creating another. So the challenge was how to make it an environmentally-sustainable landfill.”
Semakau Landfill was created by building a rock bund connecting two offshore islands – Semakau and Sakeng. The bund enclosed 11 cells that were lined with impermeable geomembrane and marine clay, and water was pumped out of the cells before the ash from incinerated waste was deposited each day.
Semakau finally began operations on 1 April 1999, marking an important achievement for Singapore. Mr Yeo, the Environment Minister who opened the landfill, recalls the day: “It symbolised Singapore’s visionary approach – to turn two small islands into a viable landfill site, that at the same time preserved the nature reserves in that area. The traditional concept of a landfill is that it is a gross place, smelly and dirty and you don’t want to go there or live there. We’ve managed to change that concept totally.”
Today, eight of those 11 cells have been filled and lush vegetation has sprouted across these areas. In 2005, under the direction of Minister for the Environment and Water Resources, Dr Yaacob Ibrahim, the island was opened to the public for recreational activities. Volunteer guides from the
Raffles Museum of Biodiversity Research offer regular public walks that show off the landfill’s rich biodiversity.
Mr Mah, who was ENV Minister from 1993 to 1995 and has since retired from the Cabinet, adds: “Semakau has since become a hallmark of our success as a country. Because we were prepared to take a long-term view, and had an ability to look ahead, today we see the results.”
In 1997, ENV also reached another milestone – 100 per cent of Singapore was served by modern sanitation, a contrast from just 32 years before, in 1965, when proper sanitation was only available to 45 per cent of the population.
Despite that, ENV was already looking ahead. Singapore’s existing used water infrastructure was reaching its maximum capacity and economic life. It could either continue expanding and upgrading existing infrastructure, or experiment with a new approach that would allow it to transform its used water system. In the spirit of innovation, ENV took a bold step with the latter, implementing a cutting-edge $3.65 billion Deep Tunnel Sewerage System (DTSS) that would allow large volumes of wastewater to be transported to centralised water reclamation plants for treatment. It eliminated the need for continual upgrading and later allowed Singapore to reclaim and treat used water to produce NEWater.
DPM Teo, who was Minister for the Environment when plans were brewing for DTSS, said this was a project that again reflected the ministry’s long-term infrastructure planning. “It was an enormous amount of money to spend on something that Singaporeans would never see.
“At the time of conception, it was groundbreaking. We were digging the deepest, longest tunnels running across the whole island – deeper and bigger than the MRT tunnels. That freed up a lot of land and the system was more reliable – it also provided the foundation for the eventual development of NEWater plants. I was very excited and went to see how the engineers installed the last piece of the deep sea outfall for the plant.”
Even as ENV continued embarking on challenging engineering projects in this decade, it also started to inject innovation into Singapore’s environmental sectors by involving the private sector. By the 1990s, the
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Semakau Landfill, dubbed the
“Garbage of Eden”,has arguably
become Singapore’s most well-known
engineering marvel.
The New Scientist magazine
“Semakau has since become a hallmark of our success as a
country. Because we were prepared to take a long-term view, and had an ability to look ahead, today we see
the results.”
Mah Bow Tan (below), ENV Minister 1993–1995
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The Chestnut Avenue Waterworks (right) is the first membrane water treatment plant in Singapore. The waterworks comprises two separate yet interconnected treatment plants. The first is a conventional water treatment plant while the second is an immersed ultra-filtration membrane plant. Commissioned in 2003, the ultra-filtration membrane plant was constructed to increase the treatment capacity of the waterworks and to produce potable water of high quality.
Chestnut Avenue Waterworks
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Deputy Prime Minister Teo Chee Hean (in red) and Dr Yaacob Ibrahim (pointing), MEWR Minister, enjoying MacRitchie Reservoir on 25 July 2009, after the first phase of the reservoir’s upgrading work was completed
ministry privatised various public services, such as the waste collection system for households. The aim was to improve efficiency and reduce costs. But ENV had to tread carefully to ensure that service levels to the public were not compromised. It took a two-step approach: the refuse collection arm of the ministry was corporatised and it was given a three-year period to prove itself. When it was satisfied with the results, ENV then liberalised the sector to allow more players to enter by ending its monopoly status.
Following the success of this privatisation exercise, ENV in the next decade would introduce a design, build, own and operate (DBOO) model when it privatised the incineration plant industry. It awarded long-term contracts with fixed payments to private sector companies to optimise design, construction, operations and maintenance costs as a package. This public-private partnership (PPP) model would prove to be highly effective in grooming homegrown companies in the environmental sector – which was part of the vision of defining Singapore as an environmental centre outlined in the Singapore Green Plan.
DPM Teo, who oversaw this wave of corporatisation when he was Environment Minister, recalls that it came at a time when it was also more difficult to recruit public servants for certain jobs such as public cleaning or refuse collection.
“We wanted to introduce modern methods as innovations to the system to gain greater efficiencies. We felt that privatisation was a good path to take and I think it has delivered benefits,” he says. If done properly, privatisation allowed for new ideas and efficiencies to be brought to the system. “Today, we see companies like SembCorp and Keppel building incineration plants overseas, for example in Qatar and in the UK – they started doing this at home first. So it has brought us benefits both in terms of bringing in new ideas and efficiencies, and also grooming businesses that Singapore can export. It also reflected how our thinking on the environment expanded from one where we looked after local issues, to also considering the regional and international environment,” he says. This maturity was to manifest itself at the turn of the millennium, when Singapore moved to cement its position in the world as Asia’s leading model urban city.
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Completed in 2008, Phase 1 of the DTSS comprised a 48 km-long deep tunnel sewer running from Kranji to Changi, a centralised water reclamation plant at Changi, two 5 km-long deep sea outfall pipes and 60 km of link sewers.
The heart of the DTSS, the Changi Water Reclamation Plant (WRP), is a state-of-the-art used water plant capable of treating 800,000 cubic metres (176 million gallons) or 320 Olympic-size swimming pools of used water a day to international standards. The treated used water is then
discharged into the sea through deep sea outfall pipes or channelled to the Changi NEWater factory on the rooftop of the reclamation plant, where it is further purified through advanced membrane technologies into NEWater.
The DTSS project was crowned “Water Project of the Year” at the Global Water Awards 2009 in Zurich, Switzerland.
The Deep Tunnel Sewerage System
(below) The Deep Tunnel contract at the Ang Mo Kio site
The Changi Water Reclamation Plant (WRP) cost $2.2 billion to build and can treat up to 800,000 cubic metres of used water daily. It is a compact structure with two deep pumping shafts more than 25 storeys underground consisting of five pumps each which move used water from the deep tunnel to the plant for treatment.
The plant is covered, ensuring that odour is contained as much as possible. It is also the first to have a NEWater factory built on its rooftop so that treated used water can be further purified into NEWater.
During the construction of the Changi WRP, there was extensive use of three-dimensional (3D) modelling software for its design and construction. The software enabled virtual walkthroughs of the site as it was designed and built, allowing visualisation of the installation for better coordination and interfacing. This technology enabled the identification and avoidance of clashes involving the arrangement of pipes and equipment during construction.
Furthermore, a database that fully integrated with the 3D models was developed to capture information on equipment
and machinery in the plant. This enabled easy verification on specifications and quantities of materials and equipment within the Changi WRP.
As the Changi WRP was near the sea, seawater intrusion was a major concern. A groundwater cut-off wall along the site perimeter, stretching 2.7 km and reaching depths of 22 m to 30 m, was built. The wall ensured that the site remained dry for excavation and installation of bored piles. With the groundwater cut-off wall, the excavation pit could be formed by gentle slopes, protected by erosion control blankets using bio-degradable material which was used in Singapore for the first time. This simple and ingenious approach eliminated the need for cofferdams and kept project costs down substantially.
In the course of constructing the Changi WRP, about 4.5 million cubic metres of earth was excavated and 3,339 bored piles, with diameters ranging from 0.7 m to 2.2 m, were installed. About 1.6 million cubic metres of concrete and about 181,000 tonnes of steel reinforcements were used.
The Changi Water Reclamation Plant
(below) Launching of the Tunnel Boring Machine for the construction of the DTSS tunnel near Ang Mo Kio
(opposite) Large capacity pumps at Changi WRP help lift used water 50 m from the deep tunnel into the plant for treatment
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Centrifuges are used to squeeze water out from sludge before it is sent for further processing
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Senoko Incineration Plant
T he completion of the Senoko Incineration Plant in 1992 marked an important
milestone in Singapore’s solid waste management system. Constructed at
a cost of $560 million and designed to incinerate 2,400 tonnes of refuse a day,
it was one of the largest incineration plants in the world. It is also one of the
cleanest plants in the world, equipped with the latest electrostatic precipitators to
remove dust particles and with scrubbers to remove acid gases from the flue gas.
Incineration is the most cost-effective method of refuse disposal for land-
scarce Singapore as it reduces the volume of refuse that needs to be dumped by
more than 90 per cent. In addition, energy generated by the combustion of refuse
can be recovered for power generation. By 1992, Singapore had three incineration
plants that generated a total of 391 million kWh of electricity – sufficient to meet
the power demands of two large housing estates, each the size of Ang Mo Kio
new town.
That year, a total of 22,500 tonnes of scrap metal were also recovered at the
incineration plants for recycling.
Dr Ahmad Mattar said at the opening ceremony that it was “of the utmost
importance that a concerted effort be made to check the phenomenal rate of
refuse generation” in Singapore. “Every Singaporean has to play his or her part to
reduce waste and to reuse or recycle unwanted materials.” This remains true to
this day.
(top) The Senoko Power Station’s remaining smokestack (left) and the two smokestacks of the Senoko Incineration Plant
(bottom left) Bukit View Primary School students being briefed at the control room at Senoko Incineration Plant (1999)
(opposite page) This stretch of Bukit Timah Road (left) and Dunearn Road (right) with the deep canal (middle) was back to normal 24 hours after intense rainfall flooded the area on 6 June 2011
Bukit Timah, an area of Singapore with a history of perennial flooding dating back to the 1930s, was about to bid farewell to the horrors of the devastation it experienced in 1969, and again in 1978 during the worst floods in Singapore’s history.
At the opening of Phase Two of the Bukit Timah Flood Alleviation Scheme, Dr Ahmad Mattar, Minister for the Environment then, recalled: “The Bukit Timah area has long been associated with floods. These floods have affected us in many different ways. Some would remember having to move valuable property and articles onto table tops and shelves as the flood waters invaded our homes and offices during the monsoon seasons. Some school examinations had to be cancelled because students could not get to the examination halls on time because of the floods. I also remember having to wade through knee-high water to sit for my second-year examinations in 1961 at the then University of Malaya in Singapore.”
But in 1991, with the opening of the $240 million Second Bukit Timah Diversion Canal, flooding within the Bukit Timah catchment would be a thing of the past.
The 4.4 km-long canal, which runs from Swiss Cottage School to Kallang River near Jalan Toa Payoh, drains off flood waters from the mid-section of the Bukit Timah Canal into Kallang River. It is the largest drainage project undertaken by the ministry and stretches from the junction of Upper Bukit Timah Road and Jurong Road to Serangoon Road. It then continues as Rochor Canal until Crawford Street, where it discharges into the Kallang Basin. The total catchment area served by both canals is about 2,700 ha.
In the past, the area experienced about 12 floods a year, with waters sometimes rising above 0.7 m. Under the first phase, a 3 km diversion canal was constructed in 1972 to divert flood waters in the Upper Bukit Timah area to Sungei Ulu Pandan.
The Bukit Timah floods
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The Government had an initial plan to convert Punggol into a landfill but subsequently decided to set it aside as a new housing estate instead. It was from these discussions about where to dispose of Singapore’s rubbish, which was mounting in volume along with the country’s rapid economic growth, that the idea for an offshore waste disposal site came to fruition. ENV officers began feasibility studies in the early 1990s, including going to the world’s largest landfill then, Fresh Kills Landfill in New York City, to study its operations. It provided the basis which Singapore’s engineers built on and eventually designed Semakau Landfill.
Located 8 km south of Pasir Panjang, the landfill began life in April 1999 and is the world’s first man-made offshore landfill created entirely out of sea space. Ash from Singapore’s incineration plants and non-incinerable waste such as construction and renovation debris are transported from the mainland by barges to the landfill for disposal. The first phase of the project took four years to complete at a cost
of $610 million. It spans an area of 350 ha and has a capacity of 63 million cubic metres – that’s 25,000 Olympic-sized swimming pools.
To create the landfill space, a 7 km rock bund was built to enclose a part of the sea off Pulau Semakau and Pulau Sakeng. The bund was lined with impermeable membranes and a layer of marine clay to ensure that the waste was contained within the landfill area. Other facilities such as a transfer station for waste collection vehicles, diesel generators, a visitor centre and recreational amenities were also built on the island to ensure the sustainability of the landfill’s operations.
While building Semakau, ENV took a number of measures to minimise the environmental impact on the island’s natural ecosystems, which included lush mangrove forests and rich coral reefs. Some mangrove that had to be removed were replanted, and to protect the coral reefs,
Semakau Landfill
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(this page) Tuas Marine Transfer Station
(right) Incinerated ash is transferred to barges for transport to the Semakau Landfill
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minded people who enjoy nature and have a passion for it. “We have conducted over 200 trips to Semakau over the last seven years and it never fails to amaze me that we are still finding organisms that we have never seen before at Semakau, on almost every trip!” she says. “I am very pleased that there are many who are very committed and till this day, remain strong supporters for the Semakau outreach programme.”
One memorable experience she recalls was when she hosted Dr Yaacob and his family on an inter-tidal walk. The family was amazed by the range of species spotted on the trip, such as a sea cucumber or a sea star, she recalls. Dr Yaacob adds that he remembers how his children were excited too, especially when they saw fireflies light up the night sky. “The fact that we were able to bring back nature to a waste site was wonderful,” he says.
Semakau’s Phase 1 is estimated to last until 2015. Mr Ong and his team are already working on the development of Phase 2 of the landfill, which has to be ready by then.
They are studying ways to maximise the remaining sea space to make the landfill last longer. Currently, Singapore
generates 18,000 tonnes of waste daily, out of which about 58 per cent is recycled. Semakau Landfill manager Ivan Yap, who joined ENV in 1993, says that the biggest challenge in stretching out the landfill’s lifespan is increasing Singapore’s recycling rate and educating the public about the importance of minimising the amount of waste that Singapore generates.
Besides helping Mr Ong run and maintain the island’s operations, Mr Yap says they also work with other agencies on activities such as organising the Semakau Run, which raises money for environmental NGOs, and hosting groups that visit the island. Mr Yap says the staff on the island are close and often “hang out” with one another. “The job won’t make you rich, but you do feel a sense of achievement… being part of the whole system that keeps Singapore running,” he says.
Sean Lim, a technical officer who helps with the maintenance on Semakau island, adds that it is the outdoor nature of the job that he enjoys the most. “I love the environment here, it’s totally different from the mainland. Here you have the sun, sand and sea and nature is a big part of the landfill – unlike on the built-up mainland,” he says.
fine mesh silt screens were used so the sediment from the construction would not affect the sensitive coral.
Phase 1 of the landfill comprises 11 cells, out of which eight have already been filled. On the dormant waste land, grass and shrubs grow abundantly, with occasional sightings of lalang and casuarinas. The area now supports 50 to 60 species of birdlife and other animals. The bunds and breakwaters facing the sea have also recovered and marine life has returned.
Semakau, now managed by the National Environment Agency (NEA), remains Singapore’s only landfill for waste disposal – an engineering marvel that has since attracted fame locally and internationally for being a “Garbage of Eden” for the biodiversity that has sprouted on what is essentially urban waste.
Today, 13,000 people visit the island each year for activities ranging from educational tours to inter-tidal walks where tropical sea creatures can be spotted, and astrology clubs even camp over on the island for a bit of star-gazing on its southern tip. NEA restricts the number of visitors to minimise human impact on the island’s ecosystem.
General manager Ong Chong Peng, 55, who joined ENV in 1982 and has been in charge at Semakau Landfill since 2005, speaks with a sense of pride about the place.
“Semakau is the first of its kind and serves a very important purpose in keeping Singapore clean. It’s a meaningful job to be doing, knowing that it contributes to
society,” he says. Mr Ong oversees the landfill’s operations and his duties include the operation and maintenance of the Tuas Marine Transfer Station and the Semakau Landfill with the help of about 30 NEA staff and external contractors.
Former MEWR Minister Dr Yaacob Ibrahim recalls the first time he visited the island: “I remember seeing the mangrove and all the greenery and I thought, surely this cannot be a landfill? The biodiversity on the island was fantastic… So I asked, why can’t we open it to the public?”
This would mark a turning point for the island, which in 2005 eventually opened itself to visits from the public, hosted by tour guides from the National University of Singapore’s Raffles Museum of Biodiversity Research.
Its scientific manager (education and research), Wang Luan Keng, recalls how she was at that time looking to start an outreach project to increase the public’s awareness of Singapore’s biodiversity when the inter-tidal walk was suggested by Ria Tan, founder of WildSingapore, a local environmental website. The duo faced some challenges, such as obtaining funding and finding volunteer guides who were willing to commit to training and conducting walks, but overcame those to establish what is now a popular activity for citizens and tourists alike. Guides were given training, including field sessions to familiarise them with the organisms. To date, 100 volunteers have been trained, out of whom 28 are regulars.
Ms Wang says the Semakau walks bring together like-
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Sean Lim (left), higher technical officer, and Ong Chong Peng, general manager, inspecting the diesel generator on Semakau Landfill which supplies electricity to the buildings on the island
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It marked a moment in the history of both countries, especially for PUB staff who had spent all their lives at these facilities. The 95 staff working there were given the option of retiring with benefits or being transferred to PUB’s other facilities along the Johor River. Fifty-three of them chose to continue working with PUB.
Today, the staff are deployed at Johor River Waterworks or Linggiu Reservoir – two separate facilities that Singapore built under water agreements inked in 1962 and 1990. This allows Singapore to draw up to 250 million gallons of water a day from the Johor River until 2061. In 1990, an agreement between the State Government of Johor and PUB was signed for the building of Linggiu Dam upstream of the Johor River Waterworks. The idea was to collect the runoff from that part of the Johor River catchment in a large body of water, which could be used to regulate the flow in the Johor River. By collecting and storing storm water from the catchment, the reservoir also helps to alleviate flooding downstream of the river during heavy rainstorms.
Under the 1990 Agreement, PUB made a one-time upfront payment of RM320 million in 1990. At that time, the Linggiu Dam was the largest dam project that PUB had ever undertaken and took three years to construct. The water catchment size of 216 sq km is about one-third the size of Singapore; the reservoir is about 55 sq km with a perimeter of 92 km, located some 90 km from Johor Bahru. The land
within the Linggiu Dam reservoir and catchment area has also been designated a protected place by the Johor State Government to safeguard water quality. As a result, the reservoir is a slice of tranquil tropical beauty, surrounded by lush greenery that extends for miles. Environmental impact assessments were also conducted to ensure that the impact was minimised. Staff even reported sightings of elephants in the early days of the construction of the dam.
Saddle dams were built along the reservoir to ensure that water would not overflow into another catchment area. The water that the dam releases also helps to regulate the salinity of the water. Downstream, the Johor River Waterworks extracts about 250 million gallons of water – about 500 Olympic-sized swimming pools – per day.
The Waterworks today consists of three plants – A, B and C – built in phases from 1967 to 2001. Some 161 staff, including those from the expiry of the 1961 Water Agreement, work at the Waterworks today. Three water pumping stations carry the water from the Waterworks into Singapore’s service reservoirs before they are distributed to homes. Singapore’s water needs are met from a combination of water from its own local catchments, NEWater, desalinated water and water imported under this agreement.
Johor River Waterworks
(below and facing page) The Linggiu Reservoir at various stages of construction
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(this page and overleaf) The spillway channel releases excess water when Linggiu Reservoir is full to prevent damage to the dam
(opposite top) Standing at 52 m, equivalent to a 13-storey high building (mostly underwater), the draw-off tower extracts water from the reservoir to regulate the river flow
(opposite bottom) Water level gauges at Linggiu Reservoir
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“It is no mean achievement for a densely populated country of nearly four million to keep its environment clean and green. Very few cities in the world of comparable densities do as well as us. We have succeeded because we went green long before the Greens in the world put a premium on the environment.”
Prime Minister Goh Chok Tong, 1999
4 Dawn of a New Era
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Environment Lim Swee Say got a rude jolt when he saw an article in Newsweek magazine describing Singapore as being “on the threshold of environmental disaster”.
The finding was based on a World Economic Forum (WEF) study, which rated Singapore among the worst 10 in an environmental sustainability ranking of 122 countries. The WEF had developed an index based on 67 factors that described the environmental sustainability of a nation’s economic activities. Mr Lim, who is currently Minister in the Prime Minister’s Office, recalls that moment: “Wow, Singapore is one of the worst 10? What I saw in Singapore, and what I saw in the story – there was no connection.”
The WEF study had compared Singapore with countries that were bigger and better-endowed with natural resources. In the end, the study team did a re-rating and Singapore emerged 65th out of 122. But Mr Lim says that even though he did not agree with the initial findings, the ranking prompted him to ask tough questions as he led the ministry into the new millennium.
“Are there areas where we can do better? (The article) reminded us that no matter how well we did, it might not be good enough for the future.”
What followed was a complete overhaul of ENV’s structure. Mr Lim decided that the ministry should focus its attention on direction and policy and leave the daily operations of maintaining Singapore’s high environmental standards to statutory boards. This would enable the organisation to respond faster to the challenges that the new century would bring.
In 2001, Mr Lim announced that PUB, formerly under the Ministry of Trade and Industry, would join the Environment Ministry as the national water authority taking charge of Singapore’s water-related aspects, while a new environmental agency – later called the National Environment Agency (NEA) – would oversee environmental protection and public health issues such as air quality and clean land, control of disease vectors like mosquitoes and rats, and food safety.
He told Parliament then: “We want to be a clean, green and fine city, but not a city of fines.” Just following the three Rs to “reduce, reuse and
recycle” to be more green was not enough, he said. He wanted a fourth R – for “recover”. “We believe the environment is a closed loop… what goes in must come out. We are talking about tying the two ends together, closing the environmental loop,” he said.
His vision for Singapore’s environmental ambitions were to be articulated in the Singapore Green Plan 2012 (see page 134) which marked a new milestone in Singapore’s journey in sustainable development. It was launched in 2002 – the same year that the World Summit on Sustainable Development was held in Johannesburg – and reflected a growing global trend.
The 2012 Green Plan committed Singapore in this global endeavour towards sustainability. As Mr Lim wrote then: “We know that what we have achieved today cannot be taken for granted. Sustaining the environment requires endless vigilance, action and innovation. Even as the world is still grappling with traditional environmental concerns, new ones emerge.”
The new plan built on the one launched in 1992 and outlined Singapore’s response to the challenges of sustaining the environment even while pursuing economic progress. It included targets such as making two-thirds of Singapore water catchment areas, up from 50 per cent, raising recycling rates, and looking into the use of renewable energy.
Trying new thingsThe ministry went through what Mr Lim calls “a process of reflection” in the early part of that decade. To broaden the ministry’s horizon and experience, Mr Lim personally led study trips to Germany and the Netherlands to learn about the best practices in environment management in the world. Under Mr Lim, ENV also adopted the “3P approach” – involving the public, private and people sectors – in its various programmes such as recycling, which would eventually define how the ministry and its statutory boards would engage the wider community in the coming decade.
In 2002, the NEA was formally launched to manage aspects such as pollution, noise, waste management, public cleanliness and the upgrading of hawker centres and public toilets. It also took on a new arm – the
“We believe the environment is a
closed loop… what goes in must come out. We are talking
about tying the two ends together,
closing the environmental loop.”
Lim Swee Say, ENV Minister. 2000–2004
ENV Minister Lim Swee Say, 2000–2004
(previous page, left) Child enjoying Marina Barrage, part of the Active, Beautiful, Clean (ABC) Waters Programme
(previous page) PM Goh, flanked by ENV Minister Lim Swee Say and PUB chairman Tan Gee Paw turns on a NEWater pipe at the Bedok plant (2003)
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Ministry. One of its key functions would also be to nurture the growing local environmental sector and work with the private sector to develop better environmental solutions which could be exported.
Lam Joon Khoi, currently the ministry’s deputy secretary, was NEA’s first chief executive. His top concerns were “business continuity and forging a strong integrated organisation that works well with the community and industry”, he says. “We had to balance enforcement and environmental promotion roles.” Through a 3P Partnership Fund of $1.5 million a year, NEA established new ways of supporting these roles. For example, the NEA operational units were restructured into five Regional Offices with operational boundaries aligned with those of the five Community Development Council (CDC) districts.
MEWR’s former Minister of State Dr Amy Khor notes that NEA was among the first few government agencies to set up offices that interacted closely with communities on the ground. “Many of the aims and mission of NEA cannot be done without the support of the community. For instance, fighting dengue, addressing the littering problem, encouraging energy conservation, green habits and adopting good public health and hygiene practices to prevent the spread of infectious diseases are all dependent on the support of the community and individuals,” she says.
Mr Lam adds: “The restructuring helped to establish a strong partnership between the NEA units and the CDCs, spawning many community-led activities to promote the environment messages and outreach.”
One such activity was the annual Clean and Green Week, rebranded in 2007 as Clean and Green Singapore – to mark its move to a year-long campaign that targeted attitude change and grassroots communities to get individuals to take action. Environmental events and initiatives are held throughout the year, but each year the campaign is given special attention around November. The overarching theme of a clean and green lifestyle is supported by three approaches – a clean environment; energy efficiency and resource conservation; and Singapore as a city of gardens and water.
“We had to balance enforcement and environmental
promotion roles.”
Lam Joon Khoi, NEA’s first chief executive
National Recycling Programme
I n 2001 NEA launched the National Recycling Programme (NRP) for
households to recycle waste. Under the NRP, recycling bags or bins are
distributed to each household for residents to separate their recyclables from
refuse. The recyclables are collected fortnightly on a scheduled day by the
appointed recycling companies.
By 2011, participation in the programme had grown to 68 per cent, from
14 per cent in 2001, with 25,300 tonnes of recyclables collected.
To further encourage households to recycle, NEA made more recycling bins
available – first, by providing one bin for every five public housing blocks,
and then raising this to one recycling bin per block for new contracts.
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and made concerted efforts to engage their residents to play their part,” says Mr Lam.
Former Nominated Member of Parliament Professor Simon Tay, who was asked to be chairman of NEA, says he was surprised to be asked but enjoyed contributing to the agency from a different perspective. “I tried to get the agency to think a bit more, evaluate the ‘doing’ process… it covered so many different aspects of daily life.”
Severe Acute Respiratory Syndrome (SARS)NEA’s mettle was soon to be tested when Singapore was hit by the SARS crisis in 2003 that gripped the world, particularly Asia, and led to the loss of 33 lives in Singapore. Mr Lam recalls that the outbreak put NEA into “overdrive
Professor Simon Tay, NEA’s first chairman, 2002–2008
Then Senior Minister Goh Chok Tong and community leaders planting a Red Penda tree sapling at Mountbatten Town Day on 8 November 2009; he also introduced a programme in Mountbatten that focused on being green while preparing meals, minimising waste and conserving energy during cooking, choosing products with less packaging and using appropriate pots and pans – all part of the Clean and Green Singapore drive
mode”. NEA staff were deployed in several areas around Singapore to tackle the epidemic. Their work involved tracing of suspected infected persons, promoting good hygiene practices to restore public confidence and to minimise risk of infection, disposal of contaminated products, advice on the special handling of the related deaths and the decontamination of affected areas.
To tackle the crisis, NEA launched the “Singapore’s OK” campaign to make people aware of the importance of personal hygiene. It rolled out the campaign progressively – to food centres, public toilets, condominiums, workers’ dormitories, schools, restaurants, markets, hostels and construction sites. With each phase, NEA staff would involve the public and businesses, ensuring that the right practices were in place before sticking the “Singapore’s OK” label on premises.
“It was a massive 3P and confidence-building exercise on a national scale… The NEA staff rose to the occasion, despite the danger posed by SARS,” says Mr Lam. “The Singapore’s OK campaign helped us to turn SARS from a threat into a challenge and opportunity for us to really test our 3P approach and networks.”
Ravindran Nair, 55, head of NEA’s Department of Public Cleanliness, still remembers March 2003 as clearly as yesterday. NEA’s operational units had just been set up. He led a team of 10 NEA staff and 100 workers from cleaning contractors to clean up 28 blocks in the Wholesale Centre at Pasir Panjang where a cluster of SARS cases had popped up.
The work was backbreaking. As the complex was closed abruptly, the occupants had to abandon their stalls and leave immediately. The NEA team had to remove tonnes of rubbish, including perishable food and dried goods, which were lying around in the corridors. These had to be removed and the entire complex cleaned and disinfected. The NEA team deployed forklifts to stack the crates of rubbish for disposal, and brought in refuse collection vehicles, compactors, high pressure washing and disinfection equipment for the task, which took more than a week.
“I still remember receiving that Sunday morning call to duty,” says Mr Nair. “I never imagined the magnitude of the job till we arrived at the site.
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went about cleaning up the entire place for the next week or so. We were stationed around the clock at the complex to clean up and sterilise the entire place. When it was all done, there was a sense of satisfaction knowing that we had met the challenge.”
NEA’s role went beyond cleaning up at-risk areas; many officers were enrolled to help in contact tracing – identifying, treating and quarantining residents who had come into contact with an infected person. Senior manager of sanitation and vector control G Thurainadan, 44, from NEA’s South Eastern Regional Office was among the pioneer batch of NEA’s contact tracing team. He recalls that when SARS first broke, there was much confusion as no one knew what to expect.
“I was a young officer then and did not give a second thought to the infectious nature of SARS; very little was known about it at that time. We worked late, often until midnight, to ensure that all SARS contacts assigned to us for the day were quarantined properly,” he says.
It was not an easy task and officers often met resistance. The biggest challenge was getting residents to comply with quarantine requirements. “Most of them brushed away their symptoms as nothing serious. It took a great amount of patience and hours of persuasion to convince residents,” he says.
He recalls a specific case where a single mother living in Boon Lay Drive had locked herself and her children at home with three padlocks on the gate. Neighbours had reported that the family had flu-like symptoms but the mother refused to open the door or speak to officers. Mr Thurainadan’s team had to find her ex-husband and get him to persuade her to open the gate and eventually go to a hospital with the children. In another case, Mr Thurainadan had to carry a wheelchair-bound lady down 12 floors as the lift had broken down, so she could get into an ambulance to be taken to hospital.
“I stepped into Tan Tock Seng Hospital to serve a quarantine order on a patient about to be discharged, and noticed that the entire lobby and treatment rooms had floor and wall tiles hacked off and covered with
Singapore’s OK
T he Singapore’s OK campaign was launched in
2003 to improve public hygiene when Singapore
was fighting SARS. Later in 2009, it was relaunched in
response to a possible H1N1 (bird flu) virus outbreak.
NEA officers distributed educational pamphlets
to Singapore’s 109 hawker centres to provide tips on
food and personal hygiene. Outlets which met the
criteria were given a Singapore’s OK decal to display.
(top) May 2009 poster in a hawker centre remindng operators and patrons to be extra
careful when it comes to personal hygiene
(right) Minister for the Environment and Water Resources Yaacob Ibrahim placing the Singapore’s OK logo at the entrance of Sims
Place hawker centre; looking on are Sims Place Hawkers Association chairman Lin Si Qi (centre)
and NEA CEO Andrew Tan (right)
“I was a young officer then and did not give a second
thought to the infectious nature
of SARS; very little was known about it at that time. We worked late, often until midnight, to
ensure that all SARS contacts assigned to us for the day were quarantined
properly.”
G Thurainadan, an NEA contact-tracing officer during
the SARS period in 2003
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Healthcare workers in a tent outside Tan Tock Seng Hospital during the SARS crisis (2003)
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was when it struck me that we were dealing with a deadly virus,” adds Mr Thurainadan.
NEA’s involvement in controlling the spread of SARS through contact tracing, quarantine orders and the large-scale clean-up of public areas enabled MOH (Ministry of Health) to concentrate on treating the outbreak. The nation heaved a collective sigh of relief when, at the end of May 2003, the World Health Organisation (WHO) declared Singapore SARS-free.
Through the SARS episode, the young NEA also gained maturity and experience in both its operations and processes, which helped it deal with a severe dengue outbreak in 2005 which saw a record number of more than 14,000 dengue cases that year.
DengueThe ministry’s former permanent secretary Tan Yong Soon says the Government was aware of a rising number of dengue cases since 2000 but the reasons for this were not well understood. In the 2005 outbreak, the ministry – together with other agencies such as the Singapore Land Authority (SLA), Land Transport Authority (LTA), Ministry of Education and Ministry of Defence – left no stone unturned. All premises and areas, including rooftops, drains, gutters, air-conditioning trays, bus shelters, Town Council areas and more, were thoroughly checked and their design reviewed.
MOH and NEA established a system of notification and assessment that allowed officers to quickly respond to the outbreak. Political leaders supported the ministry’s actions, he says, and a dengue-watch committee involving mayors helped coordinate contact with the community and mobilised the public. “Public understanding, involvement and mobilisation were very important… NEA was then able to provide information on dengue clusters and mobilise residents in tackling and preventing dengue,” he adds. In fact, NEA had wanted to put up warning signs in neighbourhoods where dengue clusters were found, but community leaders objected, saying that the
Lessons learnt from a crisis
N EA’s handling of the SARS crisis was not without criticism. A local student had
unfortunately contracted the virus later in August 2003 while at the Environmental
Health Institute (EHI). The EHI was a new department set up under NEA in 2002 to
support its role as the national authority responsible for vector control and leading
research in the related fields.
EHI contributed to NEA’s expertise during the SARS outbreak by agreeing to
cultivate the live virus in its laboratory – required for the study of the virus and
development of diagnostic kits. But oversights in work processes and a cross-
contamination of virus led to the student contracting the virus. The Government took
prompt action and suspended the lab’s activities. The EHI’s procedures were overhauled
and in 2005, it began a new lease of life when it moved into Biopolis which provided
more secure technologies and allowed it to expand its scope of research.
Minister Lim Swee Say says of that episode: “It was an incident that affected me
a lot emotionally. When SARS happened, everybody was living in fear. No one knew
what it was, or how it spread… and EHI bravely volunteered to handle the virus and
prepare the samples for other research laboratories to study the virus. Somebody
needed to take the risk… Our lab technicians risked their lives to handle the virus. To
me, that was a display of human courage and professional commitment.
“But when the mistake happened after the crisis was over, I was really torn. There was
a public outcry and witchhunt to take them to task… Even though they made the mistake,
we should not forget the sacrifice they made in helping us fight SARS during the crisis.”
Research scientist Tang Choon Siang disinfects the work surfaces in one of the labs at the Environmental Health Institute
NEA’s poster campaign against breeding Aedes mosquitoes which spread dengue
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public and MPs were roped in for these exercises with residents. “Our work eventually paid off when we finally broke the cycle of transmission and brought the outbreak under control,” he adds.
The dengue scare led to a thorough review of NEA’s control strategies, says Mr Nair. Prior to the outbreak, NEA’s operations were more reactive – it would only move into affected areas when there were reported cases. But following the outbreak, NEA implemented a “Dengue Preventive Maintenance Programme” which required regular checks of all premises in Singapore at fixed frequencies depending on the risk they posed. This required more manpower. The Central Regional Office, for example, boosted its workforce from 180 to 250 officers after the 2005 outbreak.
Research by the Environmental Health Institute (EHI) on dengue clusters also allowed Singapore to pre-empt outbreaks. Mr Tan says that Singapore’s integrated approach between operations and research in dealing with dengue was recognised by the WHO, which designated EHI as a WHO Regional Collaborating Centre in 2011.
reputation of the neighbourhood and price of properties would be affected, recalls Mr Tan.
NEA’s Ravindran Nair, who was then senior manager in charge of sanitation and vector control at the South Western Regional Office, remembers how dengue clusters were sprouting all across the island at that time and NEA’s resources were stretched to the maximum.
To meet this challenge, NEA officers concentrated on clusters and conducted indoor checks in homes. Staff from other government agencies and volunteers checked public areas to remove mosquito breeding spots.
“We had to work long hours every day and over every weekend for almost two months while we planned these ‘carpet-combing exercises’, trained the volunteers, equipped them, deployed them and managed the entire control operations,” he says. Work began early on site at six in the morning and
Dengue-control operations involve house-to-house checks for breeding sites
Tan Yong Soon, Permanent Secretary MEWR (2004–2010)
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coordination among numerous government agencies, strong community support and leadership… NEA was able to keep the mosquito population under control and dengue at bay.”
Dr Yaacob Ibrahim, who was minister at that time, calls tackling of the outbreak one of NEA’s success stories and a “defining moment” for the agency. “The way NEA managed it, publicised it, and communicated it… was fantastic. People remembered the bus adverts and it clicked,” he says, referring to the advertisement campaign by NEA that effectively used visuals to convey the danger of dengue.
No sooner had NEA succeeded in tackling dengue when it faced another challenge – haze pollution from Indonesia’s forest fires. In October 2006, the 24-hour Pollutant Standards Index (PSI) reached 128 – a level not seen since the haze in 1994, when the PSI hit 142. The haze affected Singapore, Malaysia, Thailand and Brunei. Former NEA chief executive Lee Yuen Hee notes that it was difficult dealing with the haze because its source was outside Singapore – a sign of the increasingly global nature of environmental issues like climate change and trans-boundary pollution. NEA’s officers had to learn how to deal with officials from foreign countries and other international organisations.
But perhaps NEA’s biggest test comes from the very people it serves. Both Mr Lee and current NEA chairman Chew Gek Khim point to NEA’s increasingly demanding customers as the source of the agency’s top challenges.
Sunita Kaur (left) and Lam Sai Gek doing research work on mosquitoes
and dengue at the EHI
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market and hawker centre using large tents, so that the hawkers could continue earning their living while the centre was being reconstructed.
Ms Chew notes that NEA’s job was not just about responding well to crises, but to meet increasing demands of the public’s higher environmental standards. “I was fortunate in that I inherited a well-functioning and stable organisation,” she says. But as the agency grew, so did the challenges. Top of the list was “engaging with a more demanding populace that was also rapidly growing… who wanted things like cleaner roads, fewer smokers and less noise from construction sites”. Singapore’s rapidly increasing population was also straining the country’s infrastructure and systems. She adds: “The increased population density resulted in more littering, leading to more problems with pests and rodents. We also had more construction activity and thus more complaints about noise pollution.”
Apart from dealing with complaints, another key challenge for NEA was to change the mindset of the population and their lifestyle habits. She notes
NEA’s customers are diverse – hawkers, stall-owners, entertainment outlets, businesses and companies and members of the public. “They come with multifaceted needs and expectations and are an increasingly demanding lot,” says Mr Lee. NEA officers need good communications and listening skills and empathy. One occasion when this was put to the test was when a hawker centre at Block 628 Ang Mo Kio Avenue 4 caught fire and was totally destroyed in October 2007.
Overnight, more than 200 hawkers lost their livelihood. NEA officers not only had to assist the hawkers cope with the loss, but also had to come up with solutions to help them tide over the difficult period while the hawker centre was being rebuilt. NEA worked closely with the area’s local MP Seng
(opposite page) From the roof of the Marina Barrage – a view of the city skyline shrouded in haze (2009)
(left) Aerial view of the fire damage at a hawker centre at Block 628 Ang Mo Kio Avenue 4, on the night of 16 October 2007
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regulations and regulating the public through fines and other punitive measures. What NEA must try to do is “engage the public to change their mindsets and consequently their behaviour,” she adds. These include being mindful of mosquito breeding, recycling whenever possible, reducing carbon emissions and being conscious of littering and wasting precious resources.
To meet the challenges, NEA has been recruiting more staff and training them to be more effective and responsive to Singapore’s changing societal needs, she says. NEA has been engaging the public through education via the media, schools, as well as nonprofit and private sector groups to help spread the message that “the environment is everyone’s responsibility”.
A NEWater eraOn National Day, 9 August 2002, 60,000 Singaporeans uncapped pristine bottles of NEWater and made a hearty toast to the nation along with Prime Minister Goh Chok Tong. Echoes of “Cheers!” reverberated around the National Stadium as Singaporeans drank up the water in a unifying moment that would be recorded in history books.
It was an idea mooted by a Straits Times Forum letter writer, and the biggest public debut for the bottles of NEWater as yet. It symbolised a significant achievement for a country that had few water resources. More importantly, it put Singapore on the road to self-sufficiency in water and in one fell stroke eliminated the thorny issue of water security that it had grappled with Malaysia for so long. Speaking in 2002, PM Goh had noted that “time had not changed this perception that water is to be used as leverage against Singapore” and that it would be better for bilateral relations to reduce this reliance.
Later in 2003, at the official launch of NEWater, Mr Goh would thank Malaysia for supplying Singapore with water “all these years, and in the years to come”.
“I see our diminishing reliance on Johor water in a positive light,” he said. “It will take the sensitive issue of water out of the equation of bilateral relations. Singapore and Malaysia can then focus on mutually beneficial
cooperation. Together we can be a formidable force in economic competition against others, and in addressing other common challenges.”
This was possible thanks to Singapore’s engineers, who never kept their eye off technological improvements and future possibilities. Current PUB chairman Tan Gee Paw recalls that in the late ’90s, news was filtering to Singapore that membrane technology had become more reliable and more cost-efficient. He then sent a two-man team to the United States to study water reclamation projects in California and Virginia. Chief technology officer at PUB Harry Seah, one of the two engineers sent, recalls that he was excited about seeing it work, although there were doubts about whether the process could be replicated in Singapore. And even if it could, would Singaporeans accept it?
ENV and PUB then constructed a pilot plant at Bedok in May 2000 for engineers to process 2.2 million gallons of water per day. Mr Seah says his team worked day and night: “Three shifts, 24 hours a day. We did tests in the day and also at night to make sure time would not be a factor… We couldn’t afford a single mistake.”
Within half a year, the experiments were done. In November that year, the team perfected a treatment method that used three processes – microfiltration, reverse osmosis and ultraviolet radiation – to reclaim water that was superior even to the one they discovered in the US, which only used two processes. Mr Seah remembers his first words to the team as they looked at the wells of crystal clear water. He pumped his fist: “We’ve got it!”
Tan Gee Paw, then permanent secretary at ENV, remembers when he got the call to say the plant was doing its first run. “There was a well that was 15 feet deep, but was 10 times clearer than the water in a swimming pool. We knew we got our solution.” It was a phenomenal breakthrough that would change the course of history for Singapore.
Soon after, in 2001, PUB, which had been under the Ministry of Trade and Industry, was integrated into ENV. Mr Tan was made both chairman and chief executive of the new PUB. “Those were exciting days,” he says. “Decisions could be made quickly and we could implement our plans quickly.” The ministry moved swiftly to build three more plants at Kranji, Seletar and Ulu Pandan in the next few years; Ulu Pandan came under the
“NEA must try to engage the public to
change their mindsets and consequently their behaviour.”
NEA chairman (since 2008) Chew Gek Khim (below)
Prime Minister Goh Chok Tong drinking a bottle of NEWater to applause at the National Day Rally, 2002
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design, build, own and operate (DBOO) model that allowed private sector companies to get involved and introduce efficiencies.
NEWater would become part of a new “four national taps” strategy outlined by former ENV Minister Lim Swee Say in 2002 – the first two being Singapore’s local reservoirs and water from Johor, and the fourth desalinated water. Mr Lim recalls wondering what would happen if Malaysia itself had run out of water, or if the water got too polluted. “These were urgent concerns… so PUB pressed hard with their research work and was progressing with very good results. We felt we were ready to take that great leap forward.”
Reclaiming used water to make NEWater was the breakthrough that enabled Singapore to “multiply the water supply”, he says. Now that was achieved, the remaining challenge was to convince the public that NEWater was okay to drink.
The ministry then targeted three groups – the business community, grassroots leaders and students. “We set up exhibitions, and simplified the concept of the membrane technology in a way that the public could understand,” he recalls. PM Goh at that time also instilled public confidence
by drinking NEWater publicly. “In the meantime, Johor was making fun of us. Some people even made fun of my name and called me ‘Lim Shee Shee’ (drink toilet water, in Chinese dialect),” Mr Lim laughs. “They were just sceptical – but at the end of the day, we managed to generate enough trust and momentum for the public to understand that NEWater is even cleaner than tap water.”
Ministry gets an expanded mandateSingapore’s ability to deliver itself out of its water predicament signalled a nation coming of age. To reflect the importance of water to its history and survival, one of the first things that Singapore’s third Prime Minister Lee Hsien Loong did was to rename the Ministry of the Environment the Ministry of the Environment and Water Resources (MEWR) in 2004. He said then the change “reflects its significantly expanded role in charge of a strategic national resource”.
Dr Yaacob Ibrahim, who took over at the helm of the rebranded ministry in 2004, says: “We thought it was useful to put water in the (ministry’s) name to show its importance. Having done so, we needed to focus the minds of Singaporeans on water.”
With this expanded mandate, the ministry undertook a long-term review of Singapore’s water masterplan and identified key strategies that would allow Singapore to be self-sufficient in water before the expiry of the Water Agreements. MEWR’s former permanent secretary Tan Yong Soon says that water sufficiency was his top priority. Singapore had succeeded in producing NEWater but there was still much to be done. Out of these discussions, ideas were hatched for further maximising Singapore’s catchment areas, to build a new Marina Reservoir and produce more NEWater and desalinated water. “We also had to ensure water production was efficient and priced affordably, and constantly review the plan to ensure capacity was built up progressively to meet projected demand and in a timely manner,” Mr Tan adds.
In 2005, PM Lee opened Singapore’s first desalination plant – SingSpring – built by homegrown water technology firm Hyflux, marking yet another milestone in Singapore’s journey towards self-sufficiency in water. The $200
Water water everywhere – and all to drink: pupils from Red Swastika Primary School scrutinise the clarifier at Bedok Waterworks (1998)
Renaming it the Ministry of the
Environment and Water Resources
“reflects its significantly
expanded role in charge of a strategic national resource”.
Prime Minister Lee Hsien Loong, 2004
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water needs and its energy-efficient design enabled it to supply desalinated water at one of the cheapest rates in the world: 78 Singapore cents per cubic metre – about half the cost elsewhere. It was also the first public-private partnership (PPP) project for the water industry.
Hyflux chief executive Olivia Lum recalls that this project was the biggest yet for the company – its $200 million cost was larger than the entire company’s market value at that time. Hyflux beat 10 other bidders. But even before the project got off the ground, two successive partners had quit following internal company problems. “But despite those obstacles, we were able to deliver the project ahead of schedule. The project showed that teamwork made things happen – the teamwork between Hyflux and PUB,” she says.
“We gained a lot from our first PPP experience – not just the design and technical aspects of a desalination plant but also operational issues. In particular, it was our first time seeking project financing and we learnt a valuable lesson,” she adds. SingSpring became the firm’s showcase desalination project and the ticket for Hyflux to expand into the region. With the plant under its belt, it began winning desalination project contracts in China, the Middle East and North Africa. “Today Hyflux is recognised as one of the world’s leading desalination suppliers and it all started with this SingSpring Desalination Plant,” she says.
Former Perm Sec Tan Yong Soon notes that the PPP model also grew after the success of the SingSpring plant. “The PPP model cannot work for all types of public projects, but it did work well with major water and environmental infrastructural projects,” he says. PUB and NEA improved their understanding of the PPP model and used it effectively for the Ulu Pandan and Changi NEWater plants, the new incineration plant and later on, the second desalination plant, both in Tuas. “This has kept production efficient, and costs competitive,” he adds.
At the opening of the SingSpring plant, PM Lee noted that with all four national taps flowing, Singapore would have a “diversified, reliable and cost-effective supply of water”. The Government would commit $1.5 billion over Vienna Waterworks deputy managing director
Walter Kling (right) presenting PUB chief executive Khoo Teng Chye with a water sculpture during the closing ceremony of the Singapore International Water Week in June 2009
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such as the Marina Reservoir and NEWater factories. In a scene reminiscent of the 2002 National Day Parade public debut of NEWater, PM Lee led dozens of MPs in a toast with small bottles labelled “Desal H2O”. He said then: “We must continue to work together to secure our future water needs. For Singapore, water will always be a strategic resource, and not just an economic commodity.”
The Little Red Dot gets on the global mapNEWater catapulted Singapore onto the international stage. It had, as a Straits Times report in 2007 put it, “turned its Achilles heel into Achilles”. Dr Cecilia Tortajada of the International Centre of Environment and Water said then that Singapore was “the only country in the world that had managed to close the water circle”. Journals around the world began profiling Singapore’s water story, as PUB hosted a stream of overseas visitors who came to Singapore keen to learn more.
Alongside recognition for Singapore’s water policies, a thriving water industry began to grow. Homegrown firms such as Hyflux, Keppel Engineering, SembCorp and Aromatrix Technologies flowed overseas and international firms were drawn to set up in Singapore to partner PUB in piloting R&D projects and testing new technologies.
Former PUB chief executive Khoo Teng Chye says PUB played a key role in developing this expanding water industry through its big contracts that helped to build local expertise in water technologies. “PUB worked with EDB to promote this water industry, and that also involved strengthening PUB’s international image and promoting the idea of Singapore as a hub for water companies,” he says.
StORmwateRmaNagemeNt
Sea
tReatmeNt Of USed wateR
COLLeCtiONOf USed wateR
SUPPLy Of wateR tO the POPULatiON &
iNdUStRieS
tReatmeNtOf Raw tO
POtabLe wateR
COLLeCtiONOf RaiNfaLL iN dRaiNS & ReSeRvOiRS
deSaLiNatiONReCLamatiON
Of USed wateR
RaiN
iNdiReCt POtabLe USe
diReCt NON-POtabLe USe
the wateR LOOP
The SingSpring Desalination Plant in Tuas (2005)
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its approach in managing Singapore’s water resources. Dr Yaacob recalls a visit to Singapore’s western catchment area in the early days when he first took over the Environment and Water Resources portfolio. “I was stunned. PUB had a fantastic resource… you look at the four reservoirs there; they’re so pristine and beautiful. So I asked, ‘Why can’t we bring the people closer?’”
From that visit, Dr Yaacob says he realised that for Singaporeans to care for water, they had to get closer to it. “Make them feel this is their resource and they have to look after it,” he says. He suggested that PUB open up the reservoirs. From this idea, PUB developed an ambitious programme launched in 2006 called the Active, Beautiful and Clean (ABC) Waters masterplan. The $23 million blueprint, which would enhance Singapore’s water bodies with the aim of bringing the people closer to them, was a sea change from the decades-old policy to keep people away from Singapore’s reservoirs in order to keep the water clean.
As PM Lee noted at the ABC Waters exhibition in 2007, having developed a solid water infrastructure base, Singapore should take the next step forward. “Our waterways should do more than meet our water needs. They should also enhance our living environment and lifestyle. This calls for a bold change of mindset. In the past, we protected our water resources by keeping people away from them; now, we will bring people closer to water so that they will enjoy and cherish it more… We will integrate our water bodies with our parks and green spaces and turn Singapore into a city of gardens and waters.”
Mr Khoo, who oversaw the birth of this masterplan, explains how PUB had to rethink its role after being rebranded as the national water agency. In the 1980s, it had a pilot project in Bukit Panjang where it enhanced a boring-looking canal into a beautiful waterway, which received good feedback, but the initiative was not continued, as engineers were concerned about keeping the public away to keep the waters clean. With strong encouragement from
PM Lee Hsien Loong at the official opening of Sengkang Floating Wetland in Punggol Reservoir (2010)
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So the ABC Waters programme was born – but only after engineers ensured that the masterplan adhered to its top priorities of keeping the water clean and making sure the risk of flooding was minimal. Dr Yaacob adds: “It was a wonderful exercise of engaging the people.” He cites the Kallang River-Bishan Park ABC Waters Project as a “fantastic example”. The revamped park integrated Bishan Park with Kallang River and featured the restoration of the concrete canal into a naturalised river with bio-engineered river edges using a variety of plants and bedding materials. The gently sloped riverbanks now form part of the park and residents are able to walk along the water’s edge. When there is a storm, the water level in the river will rise and the area adjacent to the river will be used as a flood plain to contain the rainwater. A water playground has also been built to encourage children to interact with the water. Dr Yaacob notes how residents in the area now enjoy the park and “most importantly, treasure it and keep it clean”.
PUB’s efforts in Singapore’s water management gained more international recognition when Global Water Intelligence named it Water Agency of the Year in 2006. A year later, PUB won the water industry’s equivalent of the Nobel Prize – the Stockholm Industry Water Award – for its success in
overcoming Singapore’s water woes with a “rain to drain” approach. It was PUB’s unique integrated approach to water management that
made it stand out, said Anders Berntell, executive director of the Stockholm International Water Institute. He praised Singapore’s ability to manage its limited water resource and for closing the water loop by recycling wastewater into drinking water – a move that has also given “new hope” to other thirsty nations, he said.
Khoo Teng Chye says the award was recognition of what PUB had done over the decades. “You don’t win awards if you don’t have substance,” he says. NEWater had propelled PUB to the world stage and when the story got told, it was a matter of time before people started paying attention, he adds. “The award was a great morale booster – not just for the staff but former employees, the veteran engineers… it felt good that they were recognised.
“I was stunned. PUB had a fantastic resource… you look at the four reservoirs
there; they’re so pristine and
beautiful.”
Dr Yaacob Ibrahim, MEWR Minister 2004–2011
PUb water Network
I n 2004, PUB launched a Water Network, a panel of individuals made up
of leaders of recreational organisations, environmental groups, the media,
private and public sector organisations, who would work with the agency to
reflect the 3P sectors’ views and suggestions on its policies and programmes.
The panel provides feedback and views to PUB, on water conservation and
keeping our waterways clean, among others.
MEWR Minister Dr Yaacob Ibrahim (fifth from left) leads European and Singaporean delegates, including Tan Yong Soon (extreme left), Khoo Teng Chye (third from right) and Tan Gee Paw (extreme right), PUB chairman, in a NEWater toast to PUB at the Stockholm Industry Water Award ceremony in 2007
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It was a poignant moment that paid tribute to decades of hard work by Singapore’s engineers since the 1960s and the day that then PM Lee Kuan Yew asked Lee Ek Tieng, if Singapore captured every drop of rain, “could we become self-sufficient?”
The award cemented Singapore’s position on the global water map, and helped to attract international firms to Singapore where the water industry began to flourish. Former Perm Sec Tan Yong Soon recalls that in early 2006, then chairman of the National Research Foundation, Dr Tony Tan, had asked MEWR to study how Singapore could make the water industry a new growth pillar for the Republic.
Eventually, $330 million was committed to water technologies R&D and the sector was forecast to contribute some $1.7 billion to the gross domestic product and provide 11,000 jobs by 2015. A new Environment Water Industry (EWI) Development Council was set up under MEWR to draw on the expertise across Singapore’s multiple agencies. Mr Tan explains how the EWI coordinated efforts to grow the industry: EDB helped bring top companies and R&D centres to Singapore, IE Singapore helped Singapore-based companies to market overseas, Singapore Tourism Board provided advice on event management and PUB played a critical role in every aspect of water development.
Investments in water R&D are starting to bear fruit, Mr Tan says. Some research projects funded through EWI’s first grant call in 2006 have been patented and are in the process of being commercialised. Singapore also seized the opportunity to launch large-scale conferences – it hosted the inaugural Singapore International Water Week (SIWW) in 2008 that brought together policymakers, industry leaders and experts to address challenges and share best practices in the water industry. The event, which attracted 8,500 in the first year, has become an established summit. It drew 13,500 participants from 99 countries in 2011. PUB also launched the Lee Kuan Yew Water Prize in 2008, which honours outstanding contributions by individuals or organisations in solving the world’s water problems by applying innovative technologies or implementing policies and programmes
that benefit humanity. Mr Tan adds: “Today, there are a number of excellent public and private R&D centres anchored here in Singapore, our water industry has sustained a competitive edge in the global market, and Singapore is recognised as a global hydro hub which plays an important role in helping to solve the global water problem.”
Even while PUB developed the “softer” side of its capabilities – from engaging the public to making forays into the international arena – it continued to pursue several engineering feats for Singapore.
The Marina BarrageIn 2008, Phase 1 of the Deep Tunnel Sewerage System (DTSS, see page 70) was completed, and later that year, PUB unveiled Singapore’s first “reservoir in the city” – the Marina Barrage. It was the realisation of a vision set out by then PM Lee Kuan Yew some 25 years ago, made possible by the ingenuity and creativity of Singapore’s engineers.
The Marina Barrage was built with the triple aim of boosting Singapore’s water supply, alleviating flooding in the low-lying city areas and providing a location for water-based recreational activities. Built across the mouth of
Minister Mentor Lee Kuan Yew (centre) listening to Yap Kheng Guan (second from right), then PUB director for 3P Network, explaining the construction of the $226 million Marina Barrage (2005)
With an area of 10,000 hectares, the Marina catchment is the nation’s largest
and most urbanised.
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15th reservoir – in the heart of the city. With an area of 10,000 hectares, the Marina catchment is the nation’s largest and most urbanised. With two other new reservoirs – Punggol and Serangoon – the Marina Reservoir would increase Singapore’s water catchment from half to two-thirds of the country’s land area.
Former project engineer for Marina Barrage Su Pei Lin recalls the day the crest gates were installed at the Barrage. Each gate was 30 metres wide, five metres high, and weighed 70 tonnes, roughly the weight of 1,000 men. It had to be lifted from a barge outside the working area and lowered on to a concrete bedding with nine pivots. “The whole operation had to be carried out with only 2 mm tolerance for mistakes,” she says. She also remembers standing in the cofferdam area of the Barrage, which was a temporary enclosure built to allow water to be pumped out so dry work could proceed.
“It felt amazing because I knew that what I was standing on was once part of the open sea… we were also one of the privileged few to set foot on the rooftop first. Standing on the rooftop, admiring the view of the city-skyline and fireworks of the National Day Parade preview at the same time was an unforgettable experience.” The Barrage made its presence felt not just in Singapore but also internationally. In 2009, the project clinched
(left) Installation of one of the nine crest gates at the Marina Barrage. Each gate weighs 70 tonnes (2007)
(bottom) Minister Mentor Lee Kuan Yew and guests at the opening of the Marina Reservoir (2010)
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Engineers’ Excellence in Environmental Engineering Competition – only the second project outside of the US in 10 years to do so. It also won the highest platinum rating for green buildings. It soon welcomed its 1 millionth visitor in May 2010. It is now one of Singapore’s iconic lifestyle destinations, and hosts hundreds of local and international events, including Singapore’s National Day celebrations and New Year’s Eve Countdown Party. It also became the venue for the canoeing, kayaking and rowing competitions at the 2010 Youth Olympic Games.
But most importantly, it is a key store of precious water for Singapore and a way to control flooding. The Barrage helps to keep water levels constant even during high tides, and its in-built canal system can hold extra water. As former senior consultant of PUB Yap Kheng Guan puts it: “The Barrage has helped tremendously with flood problems. The high waters that we used to see in Boat Quay has become a thing of the past.”
Climate change and the Kyoto ProtocolDr Yaacob remembers attending a global meeting on the Kyoto Protocol in Montreal in 2005, just after he became Minister for the Environment and Water Resources. The Singapore delegation sat down at the United Nations conference, where placards with the names of the countries were on the table. “Most countries were seated on one side, and we were seated on the opposite side, next to countries we did not want to be associated with,” he laughs. It was because Singapore was among the last few that had not acceded to the Kyoto Protocol.
The Kyoto Protocol, adopted in 1997 by the United Nations Framework Convention on Climate Change, is a global treaty that binds developed countries to cutting its greenhouse gas emissions. Dr Yaacob says the Ministry of Trade and Industry was concerned that joining the Kyoto Protocol meant imposing huge costs on businesses and the economy.
In 2006, Singapore finally joined the Kyoto Protocol, marking what MEWR deputy secretary Rosa Daniel calls “an inflexion point” where the ministry’s achievements and plans for the environment came under close international scrutiny. Prior to that point, she notes, the ministry’s focus had been largely domestic, ranging from addressing Singapore’s water supply needs to ensuring that high environmental standards were met. There was no advantage for Singapore to sign the Protocol earlier as the Government had to keep in mind its energy-intensive industries, which would be affected if Singapore were to join prematurely, she adds. “So we watched the negotiations closely.”
From 2006, MEWR began working with MFA and MTI to put up a plan on Singapore’s accession to the Kyoto Protocol and domestic measures to reduce carbon emissions. The ministry felt it had reached a certain standard at home “where we would want to play a responsible part towards global efforts to tackle climate change”. Says Mrs Daniel: “We also decided we had to leverage our strengths to build an international reputation. Singapore’s environment story was a good one to tell on the international stage.”
“It would put us on the international platform and signal that we are a responsible nation taking care of the environment,” adds Dr Yaacob. “It made sense for us to do this also because it would help improve our energy
Marina Reservoir in Singapore was the venue for the 2010 Youth Olympic Games’ canoeing, kayaking and rowing events
Singapore “was a bit slow” at the start with responding to
climate change. “But once we decided, we
made up for lost time.”
MEWR Deputy Secretary Rosa Daniel
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efficiency and use of resources.” Mrs Daniel says that Singapore was “a bit slow” at the start with responding to climate change. “But once we decided, we made up for lost time.”
Indeed, the growing climate change awareness in Singapore was reflecting a larger global trend where climate issues were starting to emerge at the top of the global agenda. The climate debate gained profile with a new report released in 2007 by the Intergovernmental Panel on Climate Change (IPCC), a United Nations scientific body that provides information about the risk of climate change caused by human activity. Mrs Daniel notes that for the first time at the 2007 APEC meeting in Sydney, there was a separate track on climate change. Around the world, many leaders and prime ministers were getting involved in climate change talks, she adds.
“There was heightened consciousness about climate change then… and for us to take part in shaping events, we have to participate actively,” says Mrs Daniel. That realisation galvanised the Government and the “engines
started moving” as the ministry, working with others, started organising itself to address climate-related issues, she adds.
Dr Yaacob makes it clear that Singapore’s climate journey “is a long marathon and not a sprint”. In 2006, when the Singapore delegation went to Nairobi for a UN climate change meeting, they were seated at a better location, he recounts with a laugh.
The Republic’s commitment to the global climate movement gave rise to a comprehensive climate change blueprint, says Dr Yaacob. MEWR worked closely with the Ministry of National Development (MND) and other agencies on this. The Government conducted group discussions, met industry partners and the media to get the “buy-in” for this journey, he recalls. The central focus was how to equip Singapore for a resource-constrained world in the future. “If we can do things which are sensible now, changing lifestyles and providing greener options for people, we have a good chance of improving the country’s energy consumption,” he says. Some of the ministry’s efforts to get the public on board included the launch of a voluntary agreement on energy-efficient appliances by the NEA, the Housing and Development Board (HDB), the Energy Market Authority (EMA) and retailers and suppliers of air-conditioners, refrigerators and clothes dryers in 2009. Participants pledged to increase the number of energy-efficient models available in the market.
In addition, the Government provided funding for local environmental groups, which in turn created outreach programmes that raised the awareness of greener living. So when the ministry moved to remove less energy-efficient air-conditioners and fridges, “there was no hue and cry”, notes Dr Yaacob. “People knew this was something that needed to be done. So I think we got the model right. We were able to make more people more environment-friendly.”
Formally, an Inter-Ministerial Committee on Sustainable Development was set up and policymakers spanning various ministries started work on a blueprint that took almost two years to draft. In 2009, the Government launched the first-ever Sustainable Singapore Blueprint. More than 700 people including members of the public, leaders of non-governmental
“People knew this was something that needed to be done. So I think we got the model right. We were able to
make more people more environment-
friendly.”
Dr Yaacob Ibrahim, MEWR Minister 2004–2011, on the Government’s programmes to raise awareness of
greener living
Senior Minister Professor S Jayakumar (right) and MEWR Minister Dr Yaacob Ibrahim attending the United Nations Framework Convention on Climate Change in Cancun, Mexico, in December 2010
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media figures offered views through various focus group discussions which were incorporated into the document.
The blueprint would commit $1 billion over the next five years into making Singapore a greener, more resource-efficient and sustainable nation. It outlined targets, including a 35 per cent improvement in energy intensity from 2005 levels, as well as a recycling rate of 70 per cent by 2030, and to green at least 80 per cent of Singapore’s buildings by 2030. It also declared an ambition to be a clean technology and urban environmental solutions hub, which would groom a sector that would add an estimated $3.4 billion to economic output and create 18,000 “green collar” jobs by 2015.
Dr Amy Khor recalls that one of her first tasks was to chair the National Climate Change Committee, which provided inputs for the Sustainable Singapore Blueprint. She says the committee worked hard to identify specific ways to promote energy conservation in households, industry, transport and the building sectors.
“We had to adopt different approaches to get buy-in,” she says. For instance, the committee looked at how to reduce energy consumption in specific industries such as petrochemicals and pharmaceuticals. The committee also sought innovative ways to get households to reduce their energy or electricity consumption such as the 10% Energy Challenge; this challenged every household to reduce their energy consumption by 10 per cent or more and get prizes for doing so.
She notes that the Sustainable Singapore Blueprint was an example of how the ministry sought to adopt policies that “struck a balance in both economic growth and environmental sustainability”.
“Singapore has developed rapidly from a third world country to a first world country within a short time. The pace of development can create tensions between economic growth and environmental sustainability. No growth can be sustainable if we neglect the environment; neither can there be environmental sustainability without economic growth,” she says.
The HDB’s solar test-bedding site in Serangoon is
one of the initiatives under the Sustainable Singapore Blueprint
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view at the launch of the blueprint: “The temptation is to slow down our efforts in the area of sustainable development while we tackle the immediate economic challenges. However, the two are not mutually exclusive… If we want to face the challenges of the future, we really have to start now, today. It’s going to take us a long time... but we’re financially committed to it.”
Singapore would walk the talk and cement this commitment later when it announced in December 2009 that it would take on voluntary action to cut its carbon emissions – and make it legally binding if there was a global agreement on climate change – throwing its weight behind the United Nations climate change meeting in Copenhagen in December. The meeting was billed to be a historic summit involving world leaders across the globe for the first time coming together to discuss the urgent issue of climate change.
Former Senior Minister Professor S Jayakumar said then that even though Singapore was not obliged to make cuts, the Republic would undertake voluntary and domestically-funded action to reduce its emissions growth to 16 per cent below “business as usual” levels by 2020 if there was an agreement. Even without one, it will go ahead to implement the Sustainable Singapore Blueprint, which would result in a 7 to 11 per cent reduction in emission levels. As a low-lying country vulnerable to any rise in sea levels, Singapore had an interest in acting with others to tackle climate change, he noted. But “without a global agreement by all to address climate change, our efforts alone will be meaningless”.
Singapore’s move to commit to a target was well-received by the international and local environment community, although some in the latter group felt Singapore could have pledged tougher targets. But Mr Mah noted then that Singapore was already starting from a “high base” – having previously made efforts to green its economy by switching from fuel oil to natural gas to power the country, and imposing limits on vehicle growth. The blueprint targets were “stretch targets”, he said, and additional cuts would “require tremendous efforts”.
Former Senior Minister Professor S Jayakumar, who retired from politics in 2011
When addressing the climate summit in Copenhagen, Prime Minister Lee Hsien Loong emphasised: “Whether or not there’s an agreement, we’ll start to make cuts because we have a sustainable development blueprint that contains certain measures which we need to do anyway, because we need to emphasise energy conservation and planning for the long term and contingencies.”
Months after the Copenhagen summit, in July 2010, the National Climate Change Secretariat (NCCS) was set up as a dedicated agency under the Prime Minister’s Office (PMO) to coordinate Singapore’s domestic and international policies, plans and actions on climate change.
Professor Jayakumar said then that putting NCCS under the purview of PMO “is to reflect the important scope of policy matters to be coordinated including domestic, economic, regulatory and fiscal measures as well as the ongoing international negotiations”.
Prime Minister Lee Hsien Loong in Copenhagen on 17 December 2009 to attend the United Nations climate talks
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change issue had gone beyond being just MEWR’s responsibility, but one that required a whole-of-government approach and a heightened level of inter-ministry coordination. Former MEWR Perm Sec Tan, who took on the Perm Sec role at NCCS, notes that the secretariat now works not just with MEWR, but with the Ministries of National Development, Transport, Health, Trade and Industry, and Finance on reducing Singapore’s carbon emissions. Deputy Prime Minister Teo Chee Hean, who oversees NCCS, says the secretariat has three responsibilities:
• to frame and shape Singapore’s position on a future global climate change agreement;• to coordinate the mitigation measures that Singapore has to take to meet its commitments, and• to implement adaptation measures so that Singapore is prepared for climate change which could manifest itself in rising sea levels, or changes in weather patterns.
He observes that Singapore is already “seeing evidence of more extreme weather events – both periods of intense rainfall and periods of drought, and the extremes appear to be more frequent. These climate change patterns need to be studied for a long period of time before we can see conclusive results but we need to prepare for these changes early. It may seem trite to say we are a small country without resources, but that is actually the truth. With today’s technology, we are alternative energy disadvantaged. We do not have alternatives that can significantly replace fossil fuels, whether solar, wind, wave or others. We are already using the cleanest fossil fuel available – natural gas. Current generation nuclear plants are not at the level of safety that we are comfortable with, to seriously consider building such plants in Singapore,” he adds. Nonetheless, Singapore will have to adapt to a new era where people have to be “much more energy-efficient and carbon-conscious”. This involves making adjustments to lifestyles and making sensible choices such as choosing energy-efficient appliances.
Executive director Jose Raymond at the Singapore Environment Council (SEC), one of the longest-standing environmental NGOs, agrees, noting that the civic sector must be the bridge between policymakers and the public. “NGOs like the SEC will play a huge part in the way our policies are shaped in future,” he says.
Perm Sec Tan adds that climate change is about challenges and opportunities. He notes that the clean technology, or cleantech, industry is creating new jobs in the field of sustainable energy. To tap such “green growth” opportunities, Singapore will continue to strengthen its R&D capabilities and human capital, and to provide a conducive business environment to attract cleantech firms to Singapore, he says. Such plans will evolve as Singapore’s ministries work towards “Singapore as a climate-resilient global city well-positioned for green growth”.
DPM and Defence Minister Teo Chee Hean enjoying the winning comic book created by a group of students from Yishun Secondary School for the National Climate Change Competition in 2011
“Current generation nuclear plants are not at the level of safety that we are
comfortable with, to seriously consider
building such plants in Singapore.”
DPM Teo Chee Hean
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ensuring Singapore remains sustainable
L and-scarce, water-short and energy-poor, Singapore has thus far provided a
quality living environment for the five million people currently on the island.
How does it continue to do so without borrowing from the future? The question is
the development planner’s supreme challenge, and there is no simple answer. By
many yardsticks, the island of 714 sq km should not be what it is today – a thriving,
prosperous economic hub with a magnetic attraction for many people from around
the world.
This indeed was the thrust of a finding published in Newsweek magazine in
late 2000. The finding was based on a preliminary study commissioned by the World
Economic Forum (WEF), which rated Singapore among the 10 worst in a ranking of
the environmental sustainability of 122 countries. The WEF had developed an index
based on 67 factors of environmental sustainability of a nation’s economic activities.
The study highlighted a fact which Singapore had long known and struggled
with – its physical fragility. At the same time, however, MEWR felt that the researchers
might not have fully appreciated Singapore’s resource limitations or the extent of
the efforts that the island republic had made in striving towards sustainability. It felt
that it was a mistake to compare an island nation with countries which were bigger
and better-endowed. MEWR officials argued – and passionately believed – that it
was possible for us to protect our environment while striving for economic progress.
The two were not necessarily incompatible if we worked at it. This, after all, was
a country that had placed environmental laws high on its order of priorities after
independence in 1965, and that indeed had located its Anti-Pollution Unit within the
Prime Minister’s Office – how could it be on the threshold of environmental disaster
so soon after?
After considering Singapore’s unique features, the Environmental Sustainability
Index (ESI) team did a re-rating. When the study team issued its inaugural report
two months later, the Republic emerged 65th out of 122. In 2002, the team
decided, for better comparison, to leave out all countries smaller than 5,000 sq
km in size, which included Singapore.
But still, the ESI study was a sober reminder of the limits to economic growth
that Nature had put in the way of Man. It spurred us to take a closer look at our
environment. The reason was simple: We want a Singapore that is beautiful – and
prosperous – not only for ourselves, but for our children and grandchildren. We
have to think long-term.
The plans we have outlined for the next 10 years highlight our long-term
commitment. In it, we have striven to strike the right balance between Man and
Nature, and between present and future.
Our pursuit of environmental sustainability will bring us into areas yet untried
in Singapore, such as the utilisation of new energy sources and the development
of alternative water supplies. Experimentation and innovation will go hand in
hand with resource conservation and nature protection; the sooner we tie up with
new technology, applications and services, the faster we can learn their strengths
and weaknesses, and adapt them to suit our requirements.
All the best technologies in the world, however, will mean nothing if there
is no human drive to extract the most benefit from them. The Government will
therefore be placing strong emphasis on educating Singaporeans, inculcating
in them the commitment to and responsibility for the environment that can
be transmitted to future generations, and be translated into a life-long spirit of
innovativeness in sustaining Singapore.
The business and civic communities have been at the forefront of many
environmental initiatives in recent years, and are crucial co-players with the
Government in the country’s drive for environmental sustainability. This tripartite
collaboration will continue to be strengthened.
Singapore, the Garden City, has beaten the odds to come this far. In the
coming years, we will continue to exercise wise and judicious stewardship
of our resources, and optimise the balance between Man and Nature. With
intelligent innovation and strategic partnerships, we will prevail over our
limitations. We believe Singapore will continue not only to provide us with good
living standards and a quality living environment; it will also endure for many
more decades to come. — AdApted from “the SingApore green plAn 2012”
(bottom left) Public housing integrated with greenery
(bottom right) One of the bridges built over existing canals to form a path for pedestrians and cyclists along the nature trail at Punggol Promenade
As an update to the Singapore Green Plan 2012, which was last reviewed in 2005, the Sustainable Singapore Blueprint was launched by the Inter-Ministerial Committee on Sustainable Development in April 2009, to ensure that Singapore continues to develop sustainably beyond 2012
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5 What Lies Ahead?
“You may be limited in your geographical borders, but you are showing there is no limit to creativity, possibility and imagination... You are constantly searching for solutions. In so many ways, you are the face of the new.”
UN Secretary-General Ban Ki Moon, on his first visit to Singapore in March 2012, after visiting a NEWater plant
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at Amber Road in the ’70s and into the ’80s, near a kampong where there were dogs and chickens to chase, heady smells from the bubbling pots in surrounding homes emanating across the compound, and an abundant supply of friends who played catch, hide and seek and rounders with a tennis ball and a rolled-up newspaper.
The living environment was drastically different then – not as built up as today. There were far fewer vehicles and no one took taxis. She would hop into a bechak (or trishaw) to get to school. But one of her clearest memories of those days was of how she would come home from school and her mother would have filled up every bucket, sink and other available containers in the home with water because the taps were being “switched off” in a symbolic water rationing exercise that PUB used to conduct. Singapore had not needed to impose water rationing since 1964 but water was still a scarce resource and the PUB sought to remind the public regularly with such exercises and posters from its Save Water Campaign in the ’70s, and well into the ’80s and ’90s. In some of these nationwide exercises, Singaporeans were told the taps would run dry but not exactly when or where and households had to stock up on water using all sorts of receptacles. Ms Mulchand, who is a writer and editorial consultant, says the “Save Water” posters are ingrained in her memory. One of them featured a big tap with a big drop of water and another had a forlorn-looking child in a pail with the words: “Would you use water more carefully if your kids had to bathe this way?”
She remembers that even when there weren’t any exercises scheduled, water wasn’t cheap either, and her family had to have quick and cold baths. “Those were not the days of luxuriating in a bubble bath… if you hadn’t had a shower when the taps were turned off… God help the person who came home last,” says the youngest of four daughters with a laugh.
Today, Ms Mulchand appreciates the fact that abundant, clean water flows freely from the taps in her home in Braddell. When she travels overseas to other cities, signs warning hotel guests not to drink from the tap remind her how much Singapore has achieved in terms of water quality and security.
As a former Straits Times journalist who reported on the environment, she also remembers visiting a NEWater plant where she saw first-hand how Singapore went about reclaiming water for drinking purposes. “When I saw it, I couldn’t help but marvel at how we managed to develop this capability. This is something that people take for granted,” she says.
These days, when she and her husband take their dog out for walks at nearby parks, she is also aware of the transformation of her surroundings. The one near her home, Bishan Park, has undergone a makeover under PUB’s ABC Waters programme and is now a bigger space with new facilities, where families can get closer to the water. She cycles there frequently using the park connector and is thankful for the cleanliness and greenery that surrounds the area where she lives. “It’s a simple kind of beauty,” she says. “Despite being a rapidly industrialising nation with increasing space constraints, it is admirable that Singapore has managed to retain this greenness.”
That she – and other residents in Singapore – can today enjoy a high quality of life is something that MEWR, and Singapore, can be proud of. In the four short decades since ENV was set up, the city-state’s environmental standards had been raised from that of a rural backwater to one befitting a First World city. The achievements in sanitation, water security, air quality, public health, and various environmental infrastructure is testament to the political will and determination of the nation’s leaders to provide a quality living environment for its citizens even while it pursued economic growth. That their vision could be successfully executed was thanks to the tenacity and ingenuity of Singapore’s rank and file engineers, labourers and planners. It was on the foundation of sound environmental policy and infrastructure projects that Singapore’s mass public housing building exercise was possible, that international firms were attracted to set up on this tiny island, that industry and jobs flourished, and that the meticulous urban planning to accommodate a population of five million and growing was made possible. Singapore’s environment journey from Third World country to Clean and Green city is inextricable from its core success story – and this has caught the attention of leaders around the world.
Speaking during his first visit to the Republic in March 2012, United
Save Water Campaign booklets were handed out by PUB in 1983 to educate people on saving water at commercial premises
(previous page, left) The Marina Bay and Promenade area, with the Customs House (left) and Marina Bay Sands integrated resort (centre) (2012)
Arti Mulchand, former SPH journalist
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policies, hard work and its ability to overcome crises. He said of Singapore: “You may be limited in your geographical borders, but you are showing there is no limit to creativity, possibility and imagination.” He was particularly blown away with Singapore’s achievement in NEWater. After visiting the NEWater complex in Changi, Mr Ban told reporters: “I was very much impressed by the idea – of recycling waste water to help people have access to safe drinking water.” Such Singaporean experience and know-how should be shared with many countries that have water scarcity problems, he said. He was so enamoured with NEWater that he raised a toast to PM Lee at the Istana with a bottle of NEWater – calling it the “elixir of life” and “something far more valuable” than a glass of wine.
Mr Ban also highlighted climate change and a growing population with new scarcities of food and water as looming big global challenges and “once-in-a-generation moments”. He said: “All require a modern, can-do UN. A UN that works to make itself not simply relevant, but essential to resolving the problems of our time. In all of this, Singapore sets an example. You are
How is NEWater made?
N EWater is high-quality,
safe drinking water
produced from treated used
water using advanced membrane
technologies. It has passed
more than 65,000 scientific
tests and surpasses World
Health Organisation (WHO)
requirements.
The first stage of the NEWater production process is known as microfiltration,
which filters out contaminants such as suspended solids, colloidal particles,
disease-causing bacteria, some viruses and protozoan cysts. The filtered water that
goes through the membrane contains only dissolved salts and organic molecules.
The second is reverse osmosis, where a semi-permeable membrane with very
small pores is used. This allows only very small water molecules to pass through,
barring other pollutants such as bacteria, viruses, heavy metals, nitrate, chloride,
sulphate, disinfection by-products, aromatic hydrocarbons, pesticides, etc.
The third part of the process is a “safety back-up” that further purifies the
water. Here, ultraviolet or UV disinfection is used to ensure that all organisms are
inactivated and that the water generated is in its purest state.
Finally, some alkaline chemicals are added to the water to restore the acid-
alkali or pH balance, and the final product – NEWater – is now ready to be piped
off to its wide range of applications.
Reverse osmosis is a widely-recognised and established technology which
is used extensively in other areas, such as in the production of bottled drinking
water, the production of ultra-clean water for the wafer fabrication and electronics
industry, and it is even used to recycle used water into drinking water on space
shuttles and on International Space Stations.
(above) These mice are being given NEWater to drink to see if there are any long-term health effects; so far, the mice tests have shown no illeffects
(top) NEWater, a term coined by former PUB chairman Lee Ek Tieng, exceeds drinking water standards set by the World Health Organisation and the United States Environmental Protection Agency
United Nations Secretary-General Ban Ki Moon toasting Prime Minister Lee Hsien Loong with a bottle of NEWater at the Istana on 23 March 2012
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for solutions. In so many ways, you are the face of the new.”Singapore’s success of the past decades in searching for solutions,
however, does not mean that the same is guaranteed in the future, nor does it mean it got everything right the first time round. As National Environment Agency chief executive officer Andrew Tan puts it, “We don’t profess to have all the solutions – what Singapore has done is just one approach. We are still overcoming some of our own challenges.”
Ms Mulchand points to Singapore’s high per capita carbon emissions as one area of concern for those such as herself who want the country to be more responsible and environment-conscious. There is much more that can be done, she says, such as the Government providing incentives or subsidies to make energy-efficient cars and appliances more affordable and accessible to the masses. She would like the Government to be more pro-active in providing cycling lanes and she notes with a tinge of regret that “things were never this dense or as crowded” in Singapore as it is today.
National Environment Agency (NEA) CEO Andrew Tan at the launch of the Zero Litter Month campaign at a fruit stall in an Aljunied market
She feels that as the country strives to stay ahead of the competition and continues on its economic growth path, it is losing some of its precious greenery, such as Bukit Brown – a lush piece of cemetery land rich in biodiversity and resting ground of many of Singapore’s pioneers – to what the Government has deemed necessary development. The decision to exhume the graves and redevelop part of the cemetery into a road to ease traffic congestion has met with resistance from some members of the public and vocal environmental groups. The entire area will eventually be redeveloped into public housing. She understands that there are trade-offs to be made in a land-scarce country, especially as it accommodates a growing population, but she says: “I wish the Government would consult the public more, ahead of big decisions. Is this really the last option?”
She does acknowledge, however, that communication between citizens and the Government on national and environmental issues has improved since technology and social media revolutionised the way public
About five per cent of the more than 100,000 graves in the Bukit Brown cemetery off Mount Pleasant Road will be affected by the new highway which will be built in 2013–2016; (below) detail of one of the gravestones
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expectations have changed since her childhood days. She cites the spate of flash floods that Singapore has experienced in the past two years due to increased extreme weather patterns as an example. Incidents, including one that saw Singapore’s premier shopping belt at Orchard Road flooded and leading to damages worth millions of dollars, have prompted a national outcry. In the earlier days, when there were occasional flash floods, no one thought to complain, she recalls. “It happens. That is just the way it was. Neighbours would roll up sleeves, bring out the brooms and mops and pails, and put their lives back together. You wouldn’t complain to a newspaper, and no one thought to connect a case of ‘bad luck’ with ‘systemic failure of flood protection mechanisms’, as it has been called recently.”
The “new normal”Both the Bukit Brown and flooding incidents underline the challenges confronting Singapore as it contemplates the next phase of development. As Deputy Prime Minister Teo Chee Hean put it: “The reality is, Singapore has a population of several million and we have to manage it a different way.” While ENV’s central preoccupation since it was established 40 years ago was to raise environmental standards and build infrastructure, the next 40 years would be a different task of maintaining or improving current standards against the backdrop of a burgeoning and more demanding population, constrained resources and the effects of climate change.
MEWR’s former permanent secretary Desmond Kuek noted that now, more than ever, the ministry needs to “find the right balance between economic growth and environmental sustainability”. This has always been a balancing act, he says. “We need to make progress economically, but not in a way that undermines the sustainability of our environment. But at the same time, we have to be mindful that what we want to do on the environmental side also has a strong economic basis.”
MEWR’s current minister Vivian Balakrishnan frames the coming challenges from another perspective. In the coming years, he says bluntly, the ministry must “continue to improve on what we’ve already achieved”.
DPM Teo Chee Hean at Lorong Halus Wetland to mark World Water Day 2012; with him were Pasir Ris-Punggol GRC MPs Zainal Sapari and Penny Low
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hard work and this quality of life is not an optional “luxury item”, he says. Singapore’s competitive position on the global stage, its ability to attract talent, enterprises and to keep its population happy depends on clean air, clean water, and clean and beautiful surroundings. “It’s not just a ‘nice to have’, but a critical element in our global competitiveness,” he adds.
He cites how Singapore had turned water from a constraint into an opportunity. “This would not have occurred if we hadn’t confronted such an existentialist threat to our survival. The challenge now is to convert other potential threats into opportunities and solutions which can be re-applied elsewhere,” he says. To some extent, he notes this is already happening as Singapore’s expertise in sustainable development has been sought in projects such as the Sino-Singapore Tianjin eco-city project – a joint project between the governments of China and Singapore to develop an environmentally-friendly model sustainable city south of Beijing.
Dr Balakrishnan sets out four themes that will guide MEWR’s course in the coming years:• greening Singapore’s economy, • preparing for the future challenges, • improving the quality of life for Singaporeans, and • building an inclusive society.
The latter is a wider objective set out by Singapore’s fourth generation of Cabinet leaders to ensure that no one gets left behind as the nation continues to develop. This involves MEWR and its agencies carrying out their regulatory roles in ensuring that air is clean, there is water security, the surroundings are green, and energy is priced right, even while the Government invests in the necessary infrastructure and R&D in cleantech and other environmental engineering solutions to build a green industry, he says. The country’s move to green its economy is also in line with a wider global trend. The United Nations has urged governments to embrace the green economy, one it defines as being low carbon, resource efficient and socially inclusive. One of the most direct ways for governments to achieve this, says the UN, is through public finance and fiscal measures, and by setting an example through the
New hawker centres
A fter a hiatus of 26 years, the ubiquitous hawker centre – which has become
part of daily life in Singapore and one of its unique attractions – is making a
comeback. MEWR Minister Vivian Balakrishnan announced this in October 2011, when
he said that the National Environment Agency (NEA) would resume the building of hawker
centres, with 10 more to be built over the next decade. The last hawker centre was built
in 1985. The eateries have over the years become an integral part of Singapore, providing
social spaces and a main source of food at affordable prices that complement other food
and beverage outlets across the island. Since 1985, the Government has focused on
upgrading existing centres, spending over $420 million to improve the environment of the
centres under the Hawker Centres Upgrading Programme.
Dr Balakrishnan says that the overarching goal of social inclusion was one of the key
reasons why the ministry decided to reverse the policy on hawker centres. These centres
started as a public health programme in the ’70s – from the need to move street vendors
into locations with higher standards. “But it took on a life of its own and has become
part of our culture,” he notes. “To me, it is now a venue where Singaporeans of all social
economic classes can enjoy and share good and affordable food… this was too good a
legacy to let it get eroded over time.”
The ministry’s move was also in response to calls for more hawker centres over the
years. The Government will build the first in Bukit Panjang, and in new towns such as
Pasir Ris, Punggol and Jurong.
Dr Balakrishnan hopes the centres will be run on a non-profit management model,
which is “a new experiment”. “Whether it succeeds will be seen over time, but we should
give it a try,” he says. NEA will be seeking creative designs and architecture to make these
centres more pleasant and encourage social interaction. Hawker centres are a part of daily life in Singapore
Singapore had turned water from a constraint into an opportunity. “This
would not have occurred if we hadn’t confronted such an
existentialist threat to our survival.”
Dr Vivian Balakrishnan (below), MEWR Minister (since 2011)
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with is human lives and human safety. That is paramount.”His experience prompted a review of how the ministry would approach
certain issues. “Those weeks taught me a few things – get your feet wet, see for yourself what is happening, and ask the right questions. Is the weather changing? Are our assumptions still valid? What else needs to be done?” Dr Balakrishnan notes that as climate patterns become increasingly unpredictable, there is a greater need for domain knowledge from experts to discuss the problems and solutions. That is why the ministry convened a panel of experts – local and from overseas – to study Singapore’s flood defence systems.
Besides engineering solutions, the ministry has also embarked on improving its flood-prediction and warning systems, such as posting closed-circuit television (CCTV) images of flood-prone areas on its website while embracing technology and social media to up the level of engagement with citizens. Such an approach, says Dr Balakrishnan, is not about gaining popularity but to improve openness and transparency so that the ministry can “get the job done better”.
The advent of social media has changed the way the Government converses with citizens and this was evident in the 2011 General Election when social media was observed to have played a significant role in shaping political conversations and the way people voted. Former Perm Sec Kuek noted that citizens had become more vocal – with more channels to express themselves – just as new environmental challenges had emerged with Singapore’s increasing population and urban density. He noted that there was now a more active citizenry and a strong desire in the community for people to be consulted and engaged. “It’s a positive development,” he says. “In the earlier strategies of education and enforcement, we’d typically taken the approach of educating the community on what’s right and wrong and had a fairly robust penalty system on enforcement that helped to shape the right behaviour. But going forward, there is a clear recognition that we need to invest a lot more effort in the depth and breadth of engagement in the community.”
use of sustainable resources to stimulate demand for green products and services – both of which Singapore is already doing.
Dr Balakrishnan notes that climate change will also bring about more frequent floods and drought and the ministry will have to spend time and resources contemplating these problems that “nature will throw at us over the next 50 to 100 years”. Just a month into taking over the MEWR portfolio following the May 2011 General Election, he had a personal encounter with such an incident, which he calls a “most painful experience”. In June 2011, a 15-year-old Indonesian student drowned after he walked into an overflowing drain in Balestier during a heavy thunderstorm and was swept away. Media reports of the tragedy reported the boy’s parents wailing and hugging each other when the authorities pulled his body out of the water and declared him dead. He had arrived with four other friends a week earlier for a holiday in Singapore. This was a defining moment for Dr Balakrishnan, who went down to the site, surveyed the drain and watched the rescue efforts. “When we finally found the body, it was all very real and personal,” he says. It brought home that the ministry’s work was “not just
PUB’s visible safety device, made of a non-absorbent material and wrapped in PVC canvas, is designed to bob on the water and provide something for a person in distress to hold on to (2012)
A trial CCTV at Swiss Club Road along Bukit Timah Canal; PUB is progressively rolling out more CCTV cameras in flood-prone areas, which will monitor real-time conditions of drains, canals and low-lying spots islandwide
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the Government to solve their problems, even as the problems are getting increasingly more complex and difficult as people live closer to one another. We’re expected to deliver high standards, and we’ve never had voices on so many issues. Now we’re being asked to look into everything from public health and water quality, to people quarrelling at the coffeeshops next door,” she adds. As a result, the ministry has made preparations for what former Perm Sec Kuek calls “the new normal” that is defining Singapore’s current political landscape. In the near future, the ministry will be strengthening its engagement with partners and the public “so we can achieve a greater sense of shared ownership and responsibility over our environment”, he says. This can be applied in areas such as anti-littering, raising the standards of public hygiene, reducing sources of air pollution and in resource conservation in energy, water and waste. “The complex nature of the work as well as the emergence of a more vocal and demanding public… have had a significant impact on the way we approach policy formulation and stakeholder engagement over a range of environmental issues,” he adds.
National water agency PUB, for example, now uses social media channels such as Facebook and Twitter as a central way of distributing real-time information on water levels. Dr Balakrishnan points out that such timely and accurate data made available to the public also helps to correct misinformation posted online. While dramatic pictures of flooded areas go viral on the Internet, it is equally important that the public knows how long it took for such floods to clear, and that PUB is on top of the situation, he says. This approach “shows that we have nothing to hide” and opens up government data to the public to “analyse and gain a deeper appreciation” of the issues.
He hopes that this will spawn a “community of problem solvers” where the public works together with the Government to solve problems. He relates how at a Meet-the-People session in his constituency, a taxi driver had waited hours to see him so that he could present a proposal for how to create added capacity for Singapore’s canals – drawn on cardboard models. “This made me realise how Singaporeans have ideas and want to be part of
Department of Public Cleanliness
I n a move to improve standards of cleanliness across Singapore, the National
Environment Agency set up a new Department of Public Cleanliness (DPC) in
April 2012. Prior to that, NEA and other agencies such as PUB and NParks had
separately handled the cleaning of areas under their purview.
This major restructuring was done in response to feedback that the current
system could be made more efficient, said NEA. The DPC will be tasked with
improving service standards, for example, by using web-based remote camera
systems to monitor litter-prone places. The DPC will also set up a one-stop call
centre to provide a single point of contact for the public, who will also need to
play a part in keeping Singapore clean, adds NEA.
The new DPC is a reflection of the wider whole-of-government approach
that policymakers are adopting to tackle new environmental challenges. By
2016, the cleaning of all public areas will be subsumed under the charge of
DPC, although town councils will continue to maintain the cleanliness of
public housing estates.
In the works is a mobile “app” called “Clean Lah” that will allow users to
snap pictures of environmental lapses such as dirty areas, for example, and send
them to NEA. The ministry is also considering a Bill to license cleaning firms in
the next two years, which would set minimum standards that companies must
meet before they can operate.
PUB’s flood alert sent via SMS to supervisors of buildings in the Orchard Road area, on the water level in Stamford Canal
Since April 2012, the public can call 1800-600-3333 to provide information to the Department of Public Cleanliness, which is now tasked to clean all public areas; town councils will however continue to maintain the cleanliness of public housing estates
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she says. This is also where the NGO sector can play a more active role, says Dr
Balakrishnan. Looking ahead, the ministry is contemplating how to further “energise and activate” the local civic society, which has seen tremendous growth since Singapore’s early post-independence days.
Singapore Environment Council (SEC) executive director Jose Raymond notes that over the past decade, a combination of factors – local and global – have “helped bring environmental issues to the forefront of public consciousness”. This has enabled local NGOs to have a more audible voice in the environmental conversation in Singapore, he says.
In the past, the work of environmental NGOs was skewed more towards raising awareness than on consolidating knowledge and driving action. Going forward, “it will be up to environmental NGOs to work with individuals and communities to promote the environmental and health benefits of choosing to walk or cycle instead of driving, for example, or convincing more individuals to purchase recycled and refurbished items. These are just some areas that NGOs will have to continue to engage with individuals on,” Mr Raymond adds.
Says Dr Balakrishnan: “If we provide information and work with them to come up with solutions, we can together create a national movement that can make a difference to the environment.”
Challenges at ground levelWhether Singapore will rise to the environmental challenge posed in the coming decades will depend largely on the response of MEWR and its agencies – NEA and PUB. Its leaders acknowledge that the years ahead will be no easy ride. NEA’s Andrew Tan puts it bluntly: “The level of knowledge that was required in Singapore’s early years of development is no longer sufficient on its own because public expectations have changed. It’s now higher and you have a more well-informed public who understands the issues and wants answers.”
the solution – no matter what their background is. They have something to share, and we ought to listen,” he says. In the case of Singapore’s flooding situation, Dr Balakrishnan adds that he feels the national dialogue on this issue has improved ever since the amount of information provided and level of engagement has been raised. “When someone posts something false, it is quickly evident that it’s not the truth,” he notes. And even when the ministry receives an angry complaint, he views this as a “data point” which the ministry and its agencies can collect and respond to. “I sense a far more constructive, engaged tone in the national conversation on environmental issues than we’ve ever had,” he adds.
One other key aspect of keeping Singapore clean and green in the future is raising the country’s level of civic consciousness. MEWR Second Minister Grace Fu notes that the fundamental question here is: how to get residents to become more socially gracious, and more responsible for the environment? “Singaporeans still think ‘there’s a cleaner who cleans up after me’. We’d
MEWR Second Minister Grace Fu
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getting more frequent – whether it is flooding, dengue outbreaks, food poisoning episodes, or a nuclear fallout in a neighbouring country raising safety concerns about radiation – and NEA has to be prepared for this unpredictable and volatile world. To that end, the agency is repositioning itself to be more responsive and leveraging on better systems, people and technology such as “business analytics” that will enable it to anticipate problems by simulating, modelling and forecasting scenarios of what could happen in the future. In times of crises, such a system will enable NEA to pre-empt and respond swiftly to an incident and deal with it effectively. Mr Tan explains that NEA officers now need to raise their level of competency to use a range of tools to tackle Singapore’s environmental problems – and all this requires a lot of “re-tooling and re-skilling of the organisation” and attracting people with higher qualifications. Given that NEA is competing
with other agencies and the private sector for good talent, he notes that the agency has had to do some navel-gazing and ask the hard question: “Are people attracted to NEA?”
NEA has had a tough job branding itself even in its early days due to the nature of its work as “the enforcer” in society. Former MEWR minister Dr Yaacob says there was always a challenge in “marketing NEA” because it covered so many aspects of daily Singapore life. For PUB, it was straightforward because they dealt with one product – water. But for NEA, Dr Yaacob says the challenge was: “How do you convince them that they’re on a mission comparable to what PUB was doing?”
Andrew Tan agrees, noting that the agency’s work is onerous and at times disheartening, especially since members of the public do not always appreciate the work of the agency and frequently complain and criticise. At first glance, the role that NEA plays in many areas may not seem apparent and may be taken for granted. “It is a very important job. Every morning, when you wake up and step out of your door, you’re in a safe and clean environment because your rubbish is collected on time, and NEA keeps the country humming,” he notes. The test ahead for NEA is how it can reframe its mission to make it more appealing so that future generations of Singaporeans want to join the organisation, he says. “Part of my job is to ensure people are motivated and morale is high, and they see a greater purpose to their mission than simply checking drains or dealing with difficult members of the public.”
One of NEA’s central challenges – already highlighted by the ministry’s leadership – is how to instil this sense of greater responsibility on the part of the individual to take greater ownership of the environment. “It’s not that NEA likes to go around giving fines,” Mr Tan says. “MOF (Ministry of Finance) keeps the money. Nobody likes to do it, but we have to. If everyone were to exercise responsibility for the environment, we wouldn’t need to,” he adds. NEA cannot keep increasing its manpower to monitor the community. The solution is working towards a society where people take on greater responsibility and become more civic-minded. Social media has also enabled citizens to report environmental lapses to NEA and such peer pressure will empower citizens and increase the degree of self-regulation, he says.
“It is a very important job. Every morning, when you wake up and step out of your door,
you’re in a safe and clean environment
because your rubbish is collected on time, and NEA keeps the country humming.”
NEA CEO Andrew Tan (since 2009)
NEA officers patrol Orchard Road to nab litterbugs; $200 fines can also be issued
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competency with which they carried out their jobs have led to a sense of complacency among the public who have gotten used to a certain standard of living – and things being cleaned up for them. PUB’s new chief executive Chew Men Leong says that ironically, PUB has been a victim of its own success to a certain extent, having built a robust and sound drainage infrastructure that reduced the occurrences of flash floods over the past 40 years. He admits that the 2010 floods that Singapore experienced came as a surprise to him, as it did for many Singaporeans. The agency has learnt many lessons from the episodes of the past two years, he says. “There is a clear recognition that despite the good efforts put in to build a robust drainage infrastructure, we are challenged by changing weather patterns and increasing urbanisation. We have to do more to keep the public informed, recognise the problems, and demonstrate a determination to improve our infrastructure and approach in managing flash floods.”
The obstacles ahead for PUB are two-fold, he adds. One is the likelihood of more extreme weather patterns. While this cannot be robustly attributed to climate change as yet, Singapore cannot afford to wait for further scientific evidence, he says. “The approach is to recognise the higher probability for both more intense rainfall and dry periods leading to drought, and then determine what this means in terms of water infrastructure and water security.”
Secondly, as Singapore expands its sources of water as well as catchments, PUB has to challenge itself to come up with more innovative and cutting-edge solutions that push the boundary of efficiency outwards and reduces the resources needed to produce one unit of water. He notes that PUB’s basic function has not changed over the years: Water security and ensuring an efficient, adequate and sustainable water supply will remain an evergreen objective. But what has changed is the structure of the organisation, which essentially manages Singapore’s entire water cycle. Singapore remains the only island nation that has a coordinated approach to the closed water loop (see page 115) and PUB is at the heart of this, he says.
In recent years, PUB has also transformed from a “quiet, competent engineering outfit” to a higher-profile, more public agency, he observes. PUB
has made big strides in connecting with the public and creating solutions that improve Singapore’s living environment such as beautifying local waterways through the ABC Waters programme.
In the years ahead, he says his vision for PUB is a very simple one: To ensure that PUB is well-positioned to ensure continued water security for Singapore despite challenges ahead, and to build a better living environment for Singaporeans.
The model sustainable cityLooking back on Singapore’s environmental journey, Dr Balakrishnan pays tribute to former Minister Mentor Lee Kuan Yew and the country’s founding leaders for what Singapore has achieved. Mr Lee “somehow appreciated instinctively that the environment had to be protected, had the political capital to do so and was prepared to make trade-offs”, says Dr Balakrishnan. The decision to power the country on oil and gas rather than coal, to start a tree-planting campaign, and to be strict on litter five decades ago reflected the values of Singapore’s founding generation who understood the need
“We have to do more to keep the public
informed, recognise the problems,
and demonstrate a determination to improve our infrastructure
and approach in managing flash
floods.”
PUB’s new CE Chew Men Leong
Then Minister Mentor Lee Kuan Yew visiting the Kolam Ayer Waterfront, part of the Kallang Park Connector (2010)
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OW to protect the environment. These values pre-date the ministry and today,
the ministry and its agencies continue to deliver on these same values and vision, he adds.
What transformed that vision into reality, however, were the decades of hard work by the ministry’s people. Former Perm Sec Tan Yong Soon aptly sums up what made Singapore’s First World environmental standards possible – “this strong passion, strong commitment and conviction that the work that MEWR officers carry out have a direct impact on the lives of Singaporeans and the future of Singapore”. DPM Teo has similar praise: “I really enjoyed working with the people because they are genuinely passionate about their work. This is a ministry where the public doesn’t bother about what you are doing – or think you’re interesting – until something goes wrong, and then there’s a huge ruckus.” Perm Sec Tan adds: “There are many professionals here, a strong engineering base, who have spent their entire working life in the ministry and they all feel very deeply and passionately about the work they are doing. They are justifiably proud of the achievements of Singapore so far, of being able to contribute to this environmental journey of excellence.”
Singapore is now at a turning point. While the past 40 years have been about transforming Singapore into a clean and green city as envisioned by the nation’s founding fathers, the next 40 years will be about becoming a model sustainable city, says DPM Teo. He hopes that the younger generation of Singaporeans will continue to find it interesting and worthwhile to work in the environmental agencies, and ultimately help Singapore achieve its vision of being a “model, urban centre for the future” – the new aspiration set out for Singapore by its current generation of leaders.
“We need people to work in both areas of environment-related work – in environmental science and engineering where cutting-edge technologies are being developed and deployed and also on the social side, so that people can get enthused and tuned in to this new carbon-conscious environment that we need to embrace,” he says. “This requires a collective effort by society, as well as the commitment of individuals.”
Indeed, as UN chief Ban Ki Moon had put it, it has become imperative for governments across the world to embrace sustainable development to address the global issues of the 21st century – and this requires governments
to re-think their approach to governing. This transition will need a holistic, equitable, and far-sighted approach to decision-making at all levels, and will rely on an integrated and balanced consideration of social, economic and environmental goals and objectives in both public and private decision-making.
As Singapore embarks on the next phase of its journey, the work of MEWR will become increasingly intertwined with other ministries as the whole Government works to keep the country’s growth sustainable. Perm Sec Tan Yong Soon of NCCS recognises this when he notes that MEWR, NCCS and other ministries will have to work closely to “grow the understanding and support for climate change action among Singaporeans”. This is important if Singapore is to be prepared for a new carbon-constrained future, he says. Such a move would require the Government to employ all its tools – from regulatory and economic instruments to public-private partnerships and voluntary initiatives. “We need to understand our long-term carbon emissions trajectory, and make the investments early as such resilience requires time to develop,” he adds.
While the path to forge a greener Singapore in the years ahead may appear daunting, former Perm Sec Kuek says: “The environment is something that all of us can relate to – it’s unifying.” Current Perm Sec Choi Shing Kwok, who took over from Mr Kuek in July 2012, notes that while the challenges are daunting, he is confident that the passion and dedication of the MEWR family “that has been demonstrated over the past four decades will see us through and deliver the next generation of Singaporeans a greener and brighter future”.
If the last 40 years is anything to go by, Singapore has proven that it can do it. As Mr Ban noted recently, “In the end, the global effort to achieve sustainable peace requires sustainable development.” Addressing the country in a speech at a forum held by the International Institute for Strategic Studies, he said: “You know this well. This is your history. It is the core of your success. Singapore was once a poor fishing village. You are now a prosperous global city-state. As a densely populated small island, you have shown leadership on issues of climate change and sustainable development… You are an example for us all.”
Whether Singapore continues to be a relevant model for the world over the next 40 years will depend on the response of the ministry and the wider Singapore Government. The journey ahead is one that Singapore – and its people – will certainly relish.
“This is a ministry where the public doesn’t bother
about what you are doing – or think you’re interesting – until something goes wrong, and
then there’s a huge ruckus.”
DPM Teo Chee Hean
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The man-made marvel: Marina Barrage
O n a breezy weekend afternoon, children can be seen running freely on the
green roof at the Marina Barrage. Some of them are flying kites, others are
splashing around in the water features and fountains. In the calm waters of Marina
Reservoir, where the Barrage is located, groups of students are kayaking alongside
river boats carrying people taking in the sights of the Marina Bay area. The Barrage
is not just a lifestyle attraction, however. Its main purpose lies in creating Singapore’s
first and only city reservoir by turning Marina Bay and the Kallang Basin into a
downtown freshwater catchment. It was a vision set out by then-Prime Minister Lee
Kuan Yew in 1987, after the great clean-up of the Singapore and Kallang Rivers.
Not only will the freshwater reservoir boost Singapore’s water supply, it is also built
to alleviate flooding in low-lying areas of the city. The Marina Barrage will keep
seawater out during periods of high tide and relieve flooding in areas of the city such
as Chinatown, Jalan Besar and Geylang. When it rains heavily during low tide, the
Barrage’s crest gates will be lowered to release excess water from the reservoir into
the sea. If heavy rain falls during high tide, the crest gates remain closed and giant
drainage pumps are activated to pump excess water out to sea.
The Marina Barrage, which cost $226 million, is located between the reclaimed
lands of Marina East and Marina South, and was officially opened on 1 November
2008. It is fed by five rivers that run through the heart of Singapore and has been
PUB’s most challenging reservoir project to date. Its city catchment makes the
reservoir much more susceptible to pollution. Due to its central location close to
many of the island nation’s attractions, any pollution would also be highly visible.
With these considerations in mind, PUB implemented many pollution-control
measures. The project has since become a showcase of how – with foresight and
long-term vision – an infrastructural water project can be integrated not just within a
country’s water cycle, but also double-up as an architectural icon and a community
project.
Former project manager for the Marina Barrage Su Pei Lin says that the success
of the Marina Barrage project was due to “clear vision from senior management”:
“Having the end in mind is very important… senior management envisioned that
this was not just going to be an engineering project, but a public space for all to
enjoy… this helped to guide the design. Teamwork was also very important as it was
a complicated project in terms of design and construction.
“It says a lot about the creativity of Singapore – as the country is land-scarce,
we try to integrate different uses into one development to optimise land use.”
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Even after the Barrage was completed and opened, the work did not stop
there. Chan Chow Teing, currently senior deputy director of PUB’s catchment and
waterways department, notes that the top priority is still to maintain a healthy
stock and good raw water quality in the reservoir. His work involves not just the
maintenance of the water body but also supervision of all the water activities
including recreational and water taxi operations. To ensure that the quality of water
in the reservoir is not compromised, PUB has regulations for all the vessels and water
activities including pollution control and navigation safety requirements.
Today, the Barrage boasts several features that draw visitors daily. It has a
green roof that functions as a recreational space for the public while lowering the
temperature of the building. It boasts a solar park that covers 1,200 sq m. The 405
solar panels generate electricity used for indoor lighting and power points in the
Marina Barrage.
The “man-made marvel”, as it was called in a Discovery Channel series, has won
accolades, including the prestigious Superior Achievement Award by the American
Academy of Environmental Engineers in 2009. In the same year, it also received the
Green Mark Platinum Infrastructure Award, the top award by Singapore’s Building
and Construction Authority. In 2007, it clinched the Institution of Engineers Singapore
Prestigious Engineering Achievement Award and the ASEAN Outstanding Engineering
Achievement Award.
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Floods: Singapore prepares for the unpredictable
A fter being relatively flood-free for almost four decades, the high-profile
floods that hit Singapore’s premier shopping belt Orchard Road three times
in 2010 and 2011 caught the island nation offguard. Acknowledging the trends of
increasing urbanisation and higher, more unpredictable rainfall intensity, MEWR
convened a panel of local and foreign experts. They looked at Singapore’s flood
defence systems and strategy to see how we could prepare for a future where
current assumptions on rainfall and infrastructure were no longer relevant. After
months of deliberation, the expert panel recommended a series of short and long-
term measures, including increasing Stamford Canal’s flow capacity by 10 per
cent within a year to reduce floods in the Orchard Road area. PUB will, over the
next five years, also embark on drainage projects and deepen and widen six other
major canals, in places such as Bukit Timah, Geylang and Bedok, to increase their
capacity by 30 to 45 per cent. PUB also announced that it would create digital land
height maps of the major catchment areas to be used in a new flood-prediction
model by 2014. PUB has improved its flood-prediction and warning systems, such
as posting closed-circuit television images of flood-prone areas on its website.
Some of the other measures included drainage-system planning guidelines
and mandating green roofs on buildings to help slow and retain rainwater. The
panel had also noted that Singapore’s drainage design standards and systems were
designed according to the size of the area they served and the type of installations
on the land. In Britain and Hong Kong, drainage standards were based on land
use and were more stringent. It recommended a “risk-based approach” which
balanced the probability of a flood happening in an area against the damage it
would cause – an approach that many cities have adopted as an effective way
to identify areas that require flood prevention investment. PUB has since said it
would review its drainage masterplan once every three years instead of once every
five years.
Most importantly, communicating these challenges to the wider public is
key for the ministry. MEWR deputy secretary Rosa Daniel notes that in the case
of floods, the engineers always strive to “do it right” by balancing the various
policy considerations. “There is a need to assess the level of risk to mitigate, not
unlike buying insurance, which comes with certain price tags. In the case of flood
mitigation, we may not have bought enough insurance for changing weather
patterns. When we make planning decisions, there are trade-offs for land use and
financial cost – if we are proven wrong, then we shift the envelope a bit. It’s a
judgement call based on professional experience. We need to communicate this
to Singaporeans. They need to understand what the challenges and trade-offs are,”
she says.
Singapore also needs new expertise which it does not have, such as on
climate data and modelling. “We should not be afraid of saying this. Even the
UN’s Intergovernmental Panel on Climate Change keeps changing its projections
based on new understanding. We should build up capabilities we are still lacking.
Much as we want to learn from others quickly, there aren’t many other climate
centres to help us because they don’t specialise in the tropics, so we’re pioneers
on climate change and response in the tropics,” she adds.
Heavy rain caused flash floods in many parts of Singapore, including Orchard Road (below and opposite)
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eopleOur People Grace Fu, 48, Second Minister, MEWR
“On the political level, people would like to have better engagement, for the Government to take a more consultative approach. Some of these issues have very long-term implications and every Singaporean should have the opportunity to take part and the responsibility to see it through. The more we can get them involved, the better. There’ll be greater interest if they have been involved. Many can be candidates for public discourse and engagement.
“On the service level, the ministry needs to think about how responsive we can be. Our agencies should think about how we can be operationally more ready, look at issues from a different perspective and to make customer-centric decisions.
“I attended the Singapore International Water Week. It’s not just the technical competence that we have, but the whole system that we have pooled together that has made Singapore a possible model for others. We’re here today because of decisions taken many, many years ago. We have to chart the same vision, and determine the kind of environment we’d like to live in given our constraints on land and labour… how do we get there, what technologies do we need… we need to paint that vision for Singapore.”
choi ShinG KwoK, 53, Permanent Secretary, MEWR
“The world is facing increasingly complex environmental challenges and Singapore is no exception. We will have to make our limited resources support a growing population while maintaining a high quality living environment. So we’ll have to come up with innovative solutions to continue providing Singaporeans with clean water and air, an efficient waste management system, high standards of public hygiene, and essential amenities like hawker centres. If we judiciously safeguard and sustainably manage our scarce resources, we will also contribute to the global effort to mitigate greenhouse gas emissions and reduce energy wastage. As a low-lying island nation, we must urgently build up our resilience to the impact of climate change and develop our long-term responses.”
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DeSmonD KueK, 48, former Permanent Secretary, mewr, 2010–2012
“Beyond the trend of urbanisation, we also have to think of the effects of climate change – understanding Singapore’s vulnerabilities and managing and mitigating the effects and contingencies. How do we continue to adapt and advance into the future? We have a strong foundation built over the past 40 years but the future is not yet charted. Can the next 40 years be built on the same linear trajectory as the past? One clear example is weather effects – how we’ve managed our resilience and the solutions that we’ve discovered for water and environmental issues, may not necessarily be good enough for what we need to do to prepare for the next 40 years.
“The issues that we face have become increasingly complex, a number of them are even trans-national – dengue, haze and pollution – and many of them require inter-agency, whole-of-government responses in terms of integrated planning right from the start and effective implementation subsequently. The multi-dimensional nature of the issues has required the ministry and statutory boards to take a much more holistic view through more networked structures and processes. We’ve also had to build connections and networks across geographical boundaries with neighbouring countries, strengthen collaboration across ministries and agencies so we can work towards an integrated outcome. With our 3P network of partners, we try to work with them to co-create and co-own the issues and share the solutions leading to the desired shared outcomes.
“In recognition of the voices and feedback that we’ve received, we’ve also made an attempt to strengthen not just the quality of frontline customer service, but to pair that up with a ‘policy sensing’ mechanism which takes all the feedback coming from multiple sources to identify which policies need further shaping.
“The ministry is also preparing to be ‘future-ready’ by building up its capabilities – from structures and processes to people competency. It set up a new division that looks at horizon scanning, futures and readiness – to analyse and prompt policymakers about emerging trends, risks and challenges. Another new division has been set up to look specifically at emerging challenges in energy and climate change. These efforts require an organisational culture and attitude that the job can be done better, not by simply dividing out responsibilities to different departments but by building bridges across divisions, agencies, functions and boundaries.”
Lam Joon Khoi, 53, Deputy Secretary, MEWR; he was also NEA’s first CEO when it was set up in 2002
“NEA has grown in size and has more budget for its scope of responsibilities. For example, more resources have been added to regulate food safety and to combat the threat of dengue as Singapore is constantly at risk. NEA’s role has evolved and expanded to include radiation protection, climate science and environmental industry development. MEWR is a small ministry with about 120 staff, and its annual budget for FY12 is about $1.3 billion. There is now much stronger coordination and collaboration between MEWR and its statutory boards. We second young and promising officers from NEA and PUB to spend two to three years as staff officers in MEWR, and vice versa. The arrangement helps with policy development and execution. We have also established seven network clusters whereby relevant officers from MEWR, PUB and NEA come together regularly to informally exchange ideas on emerging issues.
“From a mainly local dimension, MEWR now has substantial regional and international involvement. Over the years, the ministry has placed greater emphasis on consultation, facilitation and partnership functions into our approach to achieving environmental objectives for Singapore. From a public service provider of sanitation service, refuse collection and cleaning of common areas, the ministry has evolved into a major buyer of those services. With such outsourcing, the environment industry and water industry in Singapore have been given the opportunity to grow and develop competitively. Some of the companies have achieved significant international success.“
roSa DanieL, 48, Deputy Secretary, mewr
“Many key environmental challenges such as climate change, resource scarcity and trans-boundary pollution require international attention but Singaporeans are generally still more concerned with bread-and-butter issues. However, the awareness of environmental sustainability has grown, especially among those who are young and more educated. They want us to to do more in protecting our environment and contributing towards global actions. In undertaking domestic measures which uphold high environmental standards and reduce our carbon footprint, Singapore will also pursue a more sustainable growth path which is less resource-intensive, and competitive in the long term.”
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chew men LeonG, 44, PUB CE
“PUB is a committed organisation, focused on the continuation of Singapore’s successful water story. There are many individuals, each capable and competent in their specific areas of expertise, who have committed almost all of their lives to the higher calling of ensuring water security and bringing about a better living environment for Singaporeans. It is also being creative, pushing boundaries and turning constraints into opportunities by developing cutting-edge solutions such as the Marina Barrage.“
anDrew Tan, 44, NEA CEO; joined NEA in 2009
“NEA deals with very down-to-earth issues that affect the lives of average Singaporeans, from dengue prevention, public cleanliness, food hygiene to waste collection. Part of my role as CEO is to make sure that our officers are motivated and morale is kept high, and they see a greater purpose in their job than simply checking drains, issuing fines and dealing with demanding members of the public. The best part about being NEA chief is working with my colleagues to make a difference. Every day, there’s some issue that involves NEA. We do our best working with the relevant agencies to resolve these issues, even if they are outside our purview.”
Khoo Seow Poh, 56, deputy CEO (policy and planning) NEA; joined ENV in 1981 as an engineer helping with sewerage infrastructure
“At the bilateral level, Singapore has been able to provide substantive help for many developing countries in capacity building and we have also become a very popular training ground for foreign government officials. This helped raise the profile of our own environmental companies, many of which are already successful players in the regional and global environmental market today.
“Our approach towards safeguarding public health has been ‘top down’ for many years since independence. This cannot go on forever. Sustaining good public health standards requires the participation of individuals and continued community support. There is a limit to how much we can achieve through the various traditional public educational campaigns. We need to find innovative ways to engage the people to co-create solutions to deal with future public health challenges. We have adopted the 3P approach in public engagement, but we need to take advantage of the many new social platforms to make engagement more effective. On the industry front, we have to move more towards self-regulation. Looking ahead, we would need to listen more and consult more before we roll out any new policies.”
chan Yoon Kum, 60, PUB deputy CE; joined PUB in 1977
“I was fresh out of university and I’ve never looked back. In the early days when I was involved in water supply operations in Singapore, which covered the reservoirs and catchments as well as local waterworks, I remember the challenges we faced included things like controlling the massive hyacinth blooms in Kranji Reservoir. At one point, there was also a widespread occurrence of discoloured water due to the corrosion of the unlined galvanised iron and cast iron pipes with the introduction of estuarine water.
“Some other challenges we faced included the 1997 El Niño which caused a drought and water had to be rationed in Malaysia, Thailand and the Philippines. But our sound water management tided us over this period. There was a water supply shortage on Pulau Ubin, however, due to the wells running dry. Looking ahead, the key challenge for PUB is to ensure the sustainability of Singapore’s water supply in the light of impending climate change, and being prepared should floods and drought occur in the future.”
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JoSePh hui, 59, deputy CEO (technology & corporate development) NEA; joined APU in 1977 as an engineer
“In those days, everything was pretty basic, even pollution monitoring. We had to manually titrate solutions through which ambient air samples had been passed to find out what the concentration of the pollutants was, unlike present-day instruments which can give you the measurements instantaneously. There was a lot of manual work – collection, calibration, measurement, testing and so on. But we were really close to the ground then – it gave us a sense of satisfaction for being able to protect the environment, especially when we were able to trace and bring an offender to court for violating the Clean Air Act.
“We learnt a lot from other countries in those early days and had a close working relationship with countries such as New Zealand and Australia. We would share with each other frankly what pollution problems we had and discussed how to solve them. Through this interaction, and cross-fertilisation of ideas, we discovered effective solutions to common pollution problems and new pollution control technologies.
“It was bad in Singapore in those early days. We had a lot of sawmills which would burn their wood waste and emit huge amounts of black smoke from its chimneys. We also had to deal with acidic fallout from power station chimneys. Fortunately, we had the Clean Air Act, and by regular review of emission standards under the Act, we were able to ensure that all the industries kept pace with pollution control technology and kept their emissions to a minimum.
“We had to do the balancing act – between wanting the best for the environment but at the same time, not setting excessively stringent standards that would scare away investors. An important factor which helped us control pollution effectively was the planning process which we had developed with other government agencies. We had a system that before any new factory came in, JTC or EDB would introduce them to us and we would find out what technology they would be using, what raw materials they would use or waste products they would generate, etc. If they were approved, we would specify right at the start what standards they had to meet and conduct tests to confirm that they met the standards after the factory was constructed. Only then would we give them the permit to go into full-scale operation. If it was a pollutive industry which generated a lot of waste and used a lot of energy and water (such as smelting of tin or iron ore), then the answer would be no. Clearly Singapore could not afford to have that kind of industry.”
Lee Yuen hee, 52, former NEA CEO, 2005–2008
“Due to the foresight of our leaders, Singapore has done well in achieving and maintaining a clean and green environment and was consistently ranked top by the Political and Economic Risk Consultancy in terms of environmental quality. The challenge is in sustaining the effort and getting the population to care for the environment. Our success in keeping our environment clean and green is due largely to the effort by the Government in putting in place a rigorous cleaning regime, robust regulatory framework and strict enforcement of environmental regulations. However, in terms of an environmental mindset, we are still lagging behind developed countries. Littering is still a problem today and our recycling rate pales in comparison with many developed countries. There is still much to be done in inculcating in our people an understanding that the environment extends beyond their homes. This remains the biggest challenge that we face today.
“For NEA to succeed, the support of the public is critical. The 3P (Public, Private, People) unit was beefed up and officers deployed in every single constituency and division of GRCs to work closely with grassroots leaders to spread the environmental sustainability message. Another important component was the outreach to the young in kindergartens, schools, polytechnics and tertiary institutions. It is only through instilling our people with the right environmental values from young that we can hope to build and sustain the pro-environment mindset.”
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Lee Tzu YanG, 57, chairman, Shell Companies in Singapore; chairman of PUB’s Water Network from 2004 to 2010
“As chairman of the network, I aimed to build a coalition of People, Public and Private (3P) stakeholders to support and promote the cause of clean, available and affordable water for different users, including consumers, industry and recreational users. Among the initiatives were conservation and education efforts, and the public debut in 2005 of Water Wally the mascot. We worked together to introduce NEWater to the public, and also on the Active, Beautiful, Clean (ABC) Waters programme. PUB’s work depends on how it is positioned, accepted and supported by others. Outreach is thus not an option but essential to ensure that PUB serves the needs of the community. I think Singaporeans today are much more aware of water matters, but this does not mean that outreach is easier, as expectations are higher and better results are demanded.
“We have other challenges in the local and global environment, and dealing with the challenges of the food-water-energy nexus will be important for all of us. In Singapore we expect that urbanisation will continue to put challenges our way. We should not take water for granted. Although we now have a strong supply side with four different ‘national taps’, we still need to ensure we are responsible in how we use water. Waste and pollution of water will cost us more and work against our future well-being. This is an area requiring both continuing education and continuing enforcement.”
LiaK TenG LiT, 59, group chief executive of Khoo Teck Puat Hospital; a member of PUB’s Water Network since 2004 and took over as chairman in 2010; also chairman of the Public Hygiene Council
“Over the years, there have been a lot more public activities along, around and in our waterways and reservoirs. The many initiatives to engage schoolchildren, nature lovers, people who enjoy water sports, and the public have brought many close to the water. There is more appreciation and ownership of our water. The National Day celebrations held at Marina Bay clearly demonstrated how far we have progressed. The Bay is a reservoir but it is also a location that is enjoyed by many Singaporeans.
“URA has a tag line that says ‘make Singapore a great place to live, work and play’. I would love to add ‘for man and flora and fauna of the rainforest’. Singapore should move beyond ‘a city in a garden’ to ‘a city in a rainforest’. We should have a lot more tall trees to reduce the heat load. Our waters and surroundings should be full of indigenous flora and fauna.
“PUB used to focus only on availability and supply of clean water. The impression was that PUB preferred the public to stay away from the waterways and reservoirs. With the ABC Waters programme, PUB is actively engaging the public to get close to, use, enjoy and appreciate the water bodies. I hope to see Singaporeans becoming more conscious of their impact on the environment.”
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Tan YoK Gin, 54, PUB assistant CE (operations); joined ENV‘s sewerage department as an engineer in 1983
“I was fortunate to receive a bursary award from the Government to study civil engineering in NUS. The bursary had an eight-year-bond. I joined ENV’s sewerage department following my graduation. Back then, civil engineering graduates looked forward to joining the Public Works Department to work in the more glamorous fields of structural, geotechnical or transport engineering. Not dealing with wastewater in the sewerage department.
“The department was undertaking major sewage treatment plant projects to expand the capacity to treat the increasing amount of used water as Singapore developed rapidly. I had the opportunity to work on engineering planning, design and construction supervision for five of these projects and went on to manage the operations and maintenance of these projects. I worked with various heads of departments and directors including TK Pillai, Tan Teng Huat, Yeo Seow Eng and Peter Tan, most of whom have since retired. As dedicated engineering professionals, their greatest contribution was in shaping the development and management of the sewerage infrastructure, which is key to ensuring public health and a pollution-free environment for collection of clean rain water. This also ensures that every drop of used water is collected and treated as a valuable resource for NEWater. I am very fortunate and proud to have been part of our nation’s journey to achieve self-sufficiency in water.”
wiLLie Tan, 65, general manager of NEA’s North West Regional Office; joined 46 years ago as a cleaning inspector under the Ministry of Health
“During my years of service, I have dealt with solid waste management, licensing of food shops, sanitation and vector control services. One challenging aspect of it was the unpleasantness of having to take action against those who broke the law – irrespective of their status in society. Sometimes I felt for the low-income offenders, such as lorry drivers who litter along roads who told me the fines were a big blow to them. Some of them even wept, or became arrogant when ‘booked’.
“Most memorable was the 10-year clean-up of the Singapore River. Many things had to be done – phasing out farming activities, controlling pollutive industries and resettling squatters from the riverfront. Educating the public about a good environment is an uphill task but the best thing about the job is to teach and educate the young about environmental awareness.”
Koh Kim hocK, 53, currently NEA’s director-general of the Environmental Protection Division; was director for the Centre for Radiation Protection and Nuclear Science; joined ENV in 1985 after completing studies in France on a PSC scholarship
“When I started my career, the Pollution Control Department was only in charge of controlling water pollution. Now, its purview includes air and noise pollution, as well as control of hazardous substances and toxic wastes. Besides a wider scope of responsibilities, there are now more sources of pollution – more industries, more cars. It is more congested in compact Singapore. The public is also less tolerant and can complain to all levels of the Government via e-mail and social media channels.
“Due to rising energy costs and concerns about energy security, many countries including our neighbours are considering nuclear energy. Although modern nuclear power plants are much safer in design, they have yet to prove that they would not pose a safety risk under all circumstances. Nevertheless, technology is evolving and inherently safe nuclear power plant designs are being developed, and may be commercialised in the future.“
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SaTiSh aPPoo, 53, NEA director (strategic development and transformation); joined ENV in 1986 to be an electrical engineer at the Tuas Incineration Plant
“In the past, the challenges to ENV were visible and the approaches relatively straightforward – such as building things, cleaning things up. It was more about addressing the ‘hardware’ with the public. These days, while there is the challenge to uphold the high standards that have been set, there is the burden of meeting the rising expectations of an increasingly vocal public who still look to the Government for implementation. The challenge now is to educate the public to take ownership of their environment (addressing the ‘software’) rather than depending on the Government to do so. This is the only way the progress made thus far can be sustained and improved for the future.”
Khoo chin hean, 60, former PUB CE, who was also at one time responsible for ENV’s fleet of refuse collection vehicles and plants
“The ministry’s vehicle workshop was at that time in Mackenzie Road. The building is still there though used for other purposes today. In managing the ministry’s vehicle workshop and the upkeep of its sanitation fleet, for example, refuse vehicles, heavy plants, mechanical sweepers, etc, my concern then was costs and how best to manage this. So we reduced our inventory by moving to a ’just in time‘ arrangement with our spare parts suppliers. At that time, we kept vehicles till they were about 15 years old before they were replaced. We increased our cost efficiency by changing our policy to keep our fleet young. We had the benefit of an open-minded ministry that supported such ideas.
“It was an interesting environment then as the job was not only technical but was also about managing an extremely mixed group of people who worked together speaking about seven different languages! I don’t recall how we got along except that we managed.”
YonG wei hin, 45, PUB assistant director Changi Water Reclamation plant, the largest NEWater facility in Singapore; he remembers the day when his former boss asked him to join the new DTSS department in 1991
“I was definitely excited and felt privileged. The project was the largest used water infrastructure project to be undertaken by ENV then. The team size was only about 20 at the beginning and had a good mix of experienced senior engineers and the exuberance of young engineers. Our objective was to deliver the project on time by 2008 and within budget. We succeeded.
“Back then, the senior management had lots of questions on the sustainability of the existing used water system. Could
Singapore afford to continue to operate six large plants that occupied almost 300 ha of land? Some were situated in prime land. The DTSS presents a long-term solution that enables us to channel future used water into deep tunnels and to the two ends of Singapore.
“The DTSS project was an engineering feat. The sewerage department at that time was just completing compact and covered treatment expansions at three plants. In comparison, these projects were only an eighth of the size of the Changi Water Reclamation Plant (WRP). The Changi WRP was designed to handle more than half of Singapore’s used water flows and featured very compact design which took up about a third of land required for a conventional plant. The largest sewer ever laid at that time was about 3 m in diameter but the size of the DTSS tunnels sewers was 6 m. You could almost drive a car through it. We had to lay about 48 km of these tunnels across the island from Kranji to Changi at depths ranging from 20 m to 55 m.
“We had to manage over 20 contracts of different disciplines, make the various contractors work together, coordinate and deliver this project on time. Any delay by a contractor could have a major impact on another contractor’s work. To manage this mammoth task, we engaged consultants who were familiar with the design to supervise the plant’s construction. Our team was very involved with the work of the consultants and contractors. One of the mantras by the former project director, Moh Wung Hee, was ‘discover, uncover, recover’. His philosophy was not to find fault (when things went wrong) but to understand the issues faced, and pave a way forward.
“The most memorable experience was when we started to test and commission the plant. We finally decided to divert the used water flows on 10 February 2007. After eight years, Changi WRP received its first used water flow diverted from our existing plant, to be treated. It successfully went through the treatment process and the treated used water was discharged into the sea.
“We learnt a few lessons from the DTSS project. There are design features and operational considerations such as energy efficiency that we could improve and we intend to incorporate this into the design of the future plant in Tuas (the site for the next phase of DTSS).”
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YounG Joo chYe, 51, director of policy and planning, PUB; leads team of policy officers in reviewing and formulating policies and legislation, including the team that develops the integrated Water Masterplan, the blueprint for ensuring that Singapore has an efficient, adequate and sustainable supply of water to support future population and economic growths
“The $3.65 billion DTSS Project (Phase 1) was a large-scale project with a long implementation duration of almost 10 years. To steer such a complex project ahead, there was a need for strong leadership within the project management team to effectively manage project risk and actively foster close partnership with all partners through shared interests and common project goals. This has been a key success factor.”
wah Yuen LonG, 59, advisor, water reclamation (plants), PUB
“When Singapore gained independence, there were sanitary and hygiene problems as a result of inadequate sanitation. There was still indiscriminate discharge of used water into our water from households, hawkers and trade premises. The Government spent a great deal of resources to provide basic sanitation and to clean up the affected places. When I joined ENV in 1977, many of these efforts were already being planned or being implemented. I was involved in some. Today we are enjoying the results of those efforts.
“Towards the end of the 20th century, we embarked on an effort to reduce the land use of and the stink from the used water treatment plants. The open treatment tanks were covered and the smell treated. New design features were adopted to reduce the footprint of the plants. This culminated in the adoption of the DTSS. Singapore is one of the first few large cities in the tropics with comprehensive sanitation. Our early efforts in used water treatment mirrored those in the West. However, the application of knowledge and technology of used water treatment has to allow for local conditions. We are now happy to say that we have acquired sufficient experience and knowledge to be able to contribute towards used water treatment in the tropics.”
TinG ah chai, 63, principal technical officer at Choa Chu Kang Waterworks, PUB; oversees a team of technical staff who ensure the efficient operation of the plant, including close monitoring and control of water quality
“I was posted to Pulau Tekong in 1978 where the reservoir and the waterworks were constructed. There was no electric power supply on the island at that time. The waterworks also had its own generator to produce electricity for plant operation and pumping of water to the service reservoir and to the customers. Potable water was first supplied to the residents on the island before they were resettled on the mainland a few years later. In 1984, I was posted to Chestnut Avenue Waterworks before joining Choa Chu Kang in 2001.”
onG enG Kian, 52, director of the Singapore Environment Institute
The Singapore Environment Institute (SEI) is NEA’s training division and knowledge centre, helping to promote Singapore as an environment hub by providing ideas on environmental sustainability and management for high-density, compact cities. SEI also aims to develop innovative environment solutions by connecting the public sector and private industries. SEI has been developing and managing a range of programmes to improve the skills of professionals in the environment sector since 2003.
“SEI’s mission is to help NEA and MEWR be effective and to achieve a sustainable quality environment in Singapore. The beginning was tough. There were established tertiary institutions offering environment-related programmes in Singapore. However, there were certain aspects of environment training and education that were lacking, such as pollution control management, urban environmental management and environmental public health management from a regulator’s perspective. SEI stepped in and worked with NEA departments to provide curricula with a regulatory perspective.
“Our role has been expanded: we promote Singapore as an environmental hub that offers innovative solutions and provides ideas on the management of the environment for high density, compact cities like Singapore. The other area is to manage and distil expert knowledge within NEA and MEWR. Within a decade, SEI has met its key challenges: we have identified new and emerging areas, pushed for capacity development in the industry, built international goodwill, grown the environment training cluster, and deepened collaborations with many partners. We are ready for more.”
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onG SenG enG, 59, director of Waste & Resource Management Department, NEA; joined ENV as an engineer in 1978 and NEA when it was formed in 2002
He led a team of officers to develop and implement Singapore’s first energy labelling scheme for air-conditioners and refrigerators – first as a voluntary programme, then mandatory with legislation. The Mandatory Energy Labelling Scheme paved the way for the introduction of MEPS or Minimum Energy Performance Standards.
“It is encouraging to see more people now who recycle and some are asking for bins to be provided nearer their homes. Singaporeans have high standards and expectations and demand efficient and convenient services. Many also don’t want to walk too far to find a bin. So we arranged for recycling bags to be given to residents and the bags are collected fortnightly. In addition, we arranged for a recycling bin to be provided for every five blocks of HDB flats. For the new public waste contracts in Pasir Ris-Tampines and Bedok sectors awarded in 2011, we provided one bin for each block. Providing bins and clearing the bins cost money, and we have to be careful not to over-provide bins so as to avoid increasing costs unnecessarily.
“Today, we continue to give priority to protecting public health and ensure that waste is collected and disposed of safely. We will not compromise or slacken in this area. One major change from earlier days is the integration of recycling in solid waste management, greater public awareness on waste recycling and much greater participation of the corporate and community in waste recycling. Cost of recycling can be managed if each person does his part to segregate recyclables.“
BranDon Low, 36, assistant executive director, Public Hygiene Council Secretariat; former 3P senior manager, Central Regional Office; joined NEA in 2004
“What started out as a ‘recharging’ session has sparked me to re-think what I really want to do with my life and how I can contribute to Singapore. I soon realised that those things I love had something to do with our environment and I felt NEA would be a good start. I started as an environmental health executive supervising cleaning contracts and my work involved working closely with contractors to ensure quality of work. I eventually became a 3P officer and implemented environmental outreach programmes and events for the community such as exhibitions, road shows, talks and house visits. This allowed me to interact with people from all walks of life and to do something for the community. The challenge was in changing mindsets and behaviour to ‘do the right thing’. It is not easy convincing people to stop littering or to regularly pour away any stagnant water found in the home so mosquitoes don’t breed. People do not change overnight. The key here is to be understanding, persistent, sincere and communicate constantly. We need to constantly engage them to create this influence amongst the community.
“The public today is more aware of environmental issues and is providing more feedback. I think this shows that people are more conscious of the environment.”
evon wonG, 33, senior assistant director; joined NEA in 2002 as an environmental health officer; posted to MEWR Environmental Policy Division in 2011
“The Singapore’s OK programme was launched to ensure high public health standards at many public places. I was a junior officer then, involved in the planning and execution of the programme. Veteran environmental health officers told me when I first joined NEA that upkeeping public health in Singapore was a thankless job – nobody will ever comment if we do a great job, but all the complaints will come in when things go wrong. However, in NEA, there are many very committed and passionate officers who are dedicating their careers and lives to this cause. We hope that Singaporeans can appreciate the hard work by all these unsung heroes who toil every day to ensure that we have a pleasant living environment.”
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harrY Seah, 51, chief technology officer, PUB; joined ENV in 1983, in charge of developing sanitary landfill sites for three years before moving to PUB’s sewerage and drainage department; he helped plan, design, build and maintain sewers to support new housing and commercial developments; he also led the NEWater study project and its implementation
“We have come a long way in developing our water resources through technology. The key challenge is to continue developing new water resources efficiently and to keep our energy, water and waste footprint low within our 714 sq km of land. Other than our strong, competent and dedicated technical team, I think it is our shared and strong belief for our country’s freedom and existence that enabled us to succeed in creating NEWater. Singapore is our only home. We are one of the few countries in the world that has a single agency that manages the whole water loop. This came about in 2001 when the sewerage and drainage departments of then ENV and PUB’s water department merged as one. By doing so, it changed our whole mindset on water. It also opened up opportunities to manage water in an integrated, efficient and sustainable way. Other countries like US and Australia have many agencies managing each segment of the water loop and they do not share the same outcome.”
nG Bor KiaT, 54, director of corporate development, MEWR
“MEWR prides itself as a forward-looking organisation, people-centric with its sights set constantly on delivering results with its ‘5Cs’ culture of critical thinking, continual learning, open communications, customer-centricity and collaboration.”
enG TianG SinG, 58, director of international policy, mewr
“The perception of Singapore in the early post-independence days was that we were just chasing economic growth. There was some criticism from other countries that we cared only about money but not the environment, but this was not true. In the ’90s, we set up a new international environment and policy department as a response. We started to participate in international dialogues and to share stories on our high environmental standards and policies. Professor Tommy Koh’s involvement in the first Earth Summit also helped to change the perception of Singapore and gave us an international profile.
“Now, Singapore is well-known for being a clean and green city. Many other cities envy us – they have the same ambition and genuinely want to raise environmental standards in their home countries. But sometimes they do not have the political backing or the resources to do so. Singapore is fortunate in that political backing for such efforts is there. Once we decided on something, we would do it. MEWR prides itself on being like a family. Many colleagues have left and retired but we still keep in touch. The camaraderie here is very good.
“Looking forward, the question is how will we cope with future challenges. In the past, people trusted us to build what was necessary and that we were the right people to do it. Today, many people question whether we’re the best people to do it, or if it is the best way. It will be a lot more challenging for public servants than ever before.”
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TanG choon SianG, 41, head of operations, sanitation and vector control at NEA; leads the team that keeps the environment clean and free of public health hazards
“One of the biggest challenges of the job is educating the public about dengue prevention. Besides regular inspections, intensive source reduction exercises are also carried out ahead of the anticipated peak dengue periods. At the same time, we acknowledge the need for sustained community participation for long-term control of dengue and are engaging the community actively through national level publicity as well as outreach programmes that target specific groups. These efforts are complemented by strict penalties to deter the community from lapsing in their mosquito breeding prevention efforts.
“Vector control is a very labour-intensive operation but is the surest way to prevent diseases. The result is not easily measured and the benefit is also not easy to quantify.
“In one ‘carpet-combing’ exercise, we had to deploy some 6,000 volunteers to cover 10,000 HDB blocks and its surroundings. Some 1,000 mosquito-breeding habitats were found and destroyed, another 8,400 potential breeding sites were removed. A campaign of such massive scale required very careful and detailed planning. We spent late nights and weekends working but our efforts paid off with a sharp decrease in dengue transmission marking the end of the huge dengue outbreak.”
PhiLiP onG, 38, former director, MEWR Environmental Policy Division
“It is often easy to dismiss the environment as a luxury, just nice to think about and enjoy. But something as basic as public cleanliness is fundamental to Singapore’s international reputation. Clean water, fresh air, green spaces are our competitive advantage. In managing competing trade-offs and interests, what matters is clarity of vision and values to guide us. We want to build a city where people, businesses and the environment thrive, a place where safe water is affordable to all, resources are managed with care, good food is affordable, public spaces are easy on our eyes and ears and citizens lead healthy lives... To realise this vision, we cannot do it alone.
“One of the reasons why it is so rewarding to work in the environment family, apart from the people and the open culture, is how the work we do touches the lives of all Singaporeans in real and tangible ways.
“I think the biggest challenge for us is finding a smarter, cleaner way to grow. A resource-intensive approach to growth is not sustainable. The world cannot carry on like this indefinitely. If we can grow globally competitive industries while maintaining overall sustainability, through low-impact urban design and planning, transportation and decoupling the use of energy and materials from growth, we can offer answers and sustainable solutions the rest of the world needs. Becoming a beacon for sustainability can be the way Singapore continues to be exceptional and relevant to the world, and able to punch above its weight.”
DaLSon chunG, 54, director (industry development and promotion), NEA; joined ENV in 1984
“As a director of industry development and promotion in NEA, my top priority is to develop the waste management industry as this is the most promising sub-sector in the environment industry. This is due to two reasons: the forecast of ample business opportunities globally, and the marketability and exportability of our waste management companies in terms of their capabilities and technology.
“To develop the local waste management industry, groom local companies to become world-class ‘champions’ and promote the overseas growth of Singapore-based clean environment companies, I had proposed the setting up of an inter-agency committee comprising EDB, IE Singapore, SPRING Singapore and JTC to drive this effort. The inter-agency committee looks at strategies and initiatives for technology development, cluster development and internationalisation.”
meLvin Koh, 36, 3P Network acting director, and quality service manager MEWR
“There are ups and downs being the QSM. There are some who thank you and then there are those that are just difficult. And the nature of public feedback has changed quite drastically since the 2011 General Election.
“I don’t mind difficult or demanding customers. Some questions that come in are good questions. They make us wonder: why didn’t we think of it? It allows us to tweak our policies. That’s why we set up this quality service and policy sensing unit to take in feedback and see how we can make more informed policy decisions. But I do mind those who are rude and make baseless accusations, some even scold our officers. We also need to take steps to protect our officers.
“The best thing about the job is the people – the thousands of officers from the ministry and its agencies, who work hard to keep Singapore’s environment clean.”
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1 Yau Sim Ken, 48, senior technical officer, water supply (plants), looks after operations at the Linggiu Reservoir; he joined PUB in 1988 and started at the Johor Waterworks before helping in the construction of Linggiu Reservoir dam
“In those days when we were building, we would see so much wildlife in the area, including elephants that sometimes sat in the middle of the road. We would have to wait until they decided to go, or try to shoo them along. The wild elephant herd had a permanent route they took through Malaysia which passed close to our reservoir. For the first few years that we operated, the elephants would try and enter the area through the fences. After a few years, they stopped trying. In late 2006 and early 2007, when we experienced extremely heavy rainfall on two occasions, the reservoir recorded its highest level at 52.56 m and several areas downstream were flooded. Workers were unable to reach the Linggiu dam because roads were closed due to the floods. So we were completely isolated for a while.”
2 Gan chiaT KwanG, 36, plant manager, water supply (plants), Singapore PR; joined PUB in 1998 as a plant manager overseeing the Scudai Waterworks before joining the Johor Waterworks team recently
“It was a challenge to be thrown into a manager’s post at 22, when all my colleagues were much older, in their ’50s and ’60s. It took some time before I was accepted and established a good working relationship with everyone. I learnt a lot from the older engineers. The most important phase of the plant’s history was the last three to four years, when we prepared for the handover of the waterworks to Malaysia. We had to make sure everything was working and in order, including training the Johor staff to take over. And then we had to prepare for the handover ceremony. When it came, we felt a sharp pain and sadness that marked the end of a memorable era. But we were proud of what we had accomplished and that we handed over the plants in top condition.
“I’ve stayed at PUB for 14 years now; it is very much a ‘people’s organisation’. I was recruited by PUB while studying civil engineering in the United Kingdom, and I was very thankful they offered me a job when I graduated around the time of the Asian financial crisis. The work fitted me nicely.”
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3 Sia chin SenG, 43, senior manager, water supply (plants), commutes from Singapore to Johor every day; he joined the sewerage department in ENV in 1993; he was involved in the DTSS project until 2007, when he was posted to Johor Waterworks to oversee the upgrading of Plants A and B
“I like doing project work, being able to apply what you learn is very satisfying. From the design stages, to implementing a project and commissioning it, it’s like watching a baby grow.”
4 Fam Sui LinG, 54, general manager, water supply (plants), Singapore PR, who looks after Johor Waterworks and Linggiu Reservoir
“What makes this job great is my colleagues. I have a good team. Maintaining this plant is a tall order, and as time passes, standards get higher and we have to keep up with both quantity and quality of water provided. One of the key challenges we face is upgrading the technology at the plants. We have to review the processes and how to improve them, and then provide relevant training for all the officers so the entire operations remain smooth. It keeps me on my toes.”
5 GeoFFreY wonG nGie SenG, 45, senior manager, water supply (plants); joined PUB in 2003 to oversee maintenance of Johor River Waterworks and Linggiu Reservoir equipment and of the 1961 Water Agreement waterworks before they were returned to Malaysia in 2011
“Asset maintenance was a major challenge to me as I have to ensure equipment availability, cost efficiency and also staff productivity. We implemented Computerised Asset Maintenance, eliminating paperwork and tedious manual tracking of maintenance, thus improving staff efficiency while creating a greener environment. We also made use of lower off-peak electricity tariff, regulating our pumping operation and we have saved over $250,000 in electricity charges. I am proud to be a part of the Johor team to maintain safe, reliable, efficient water treatment plants.”
6 KonG chen, 27, plant manager, water supply (plants); who joined PUB in 2007; he obtained citizenship in 2012 and travels from Singapore to Johor daily to the Linggiu Reservoir or Johor Waterworks
“My job is to look at areas that we can improve, to introduce new technologies. For example, we recently introduced a rain gauge operated by irradiance satellite so we can receive rainfall data daily, instead of once a month, when we used to have to manually collect the rain gauges in far-flung areas of the reservoirs which we had to get to by boat. Communication is also challenging because we are in such a remote location, with weak signal strength. So we’ve had to use walkie-talkies to communicate with one another. Eventually, we had a radio telecommunications system installed.”
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JaGanaThan KuPPuSamY, 61, corporate support officer; joined the Waterworks in 1974 – his first and only job; he chairs the Johor Union committee of the NTUC union, which has 156 members
“It was all rubber trees on these grounds when I first started. There were very few concrete structures. There were about 300 of us back then, all working on Plant A. I stayed on for four decades because I felt I had good bosses and PUB was a good organisation that took care of its staff. I stayed at the Waterworks with my family, my three children – now aged 29, 26 and 23 – were born and grew up here. Even today, they still tell me they miss the days they spent here. Transport was provided to take the children to school; when they came home, they spent their time playing with other children on the spacious grounds, kicking a football. The atmosphere was very friendly, we are all like a big family. These days I help out with a lot of office work, being in charge of the staff’s payroll, mark attendance, sending records to the PUB headquarters.”
Tee chian JinG, 25, engineer, water supply (plants), Malaysian, graduated from NUS in chemical engineering and joined PUB straight after; based in Singapore for three months before being posted to the Johor Waterworks; one of fewer than 10 female staff working there, out of a staff of 161
“My job is quite challenging as I’m in charge of the labs, ensuring that the water quality is up to standard before sending it to Singapore. There is one lab at each plant, and every day we conduct water tests such as for pH and chlorine levels to make sure it is in the safe range. The job is meaningful as we are responsible for supplying the bulk of Singapore’s water supply across the Causeway. The job might be routine but that doesn’t mean it’s the same every day. We also encounter hiccups along the way, for example if the plants have been operating for some time and the equipment breaks down and needs maintenance. We have to react quickly so it doesn’t cause a big disruption to water supply. I live at the Waterworks in a bungalow as my home is 85 km away, and at first the staff told me ghost stories and said the bungalow was haunted. But I like the peace and quiet, it gives me time to think. The industry might be male-dominated but I’m quite happy as my bosses and managers are patient and teach me along the way. I go to Singapore for weekly or fortnightly meetings at PUB’s headquarters.”
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interview withwonG chin LinG, 51, Director-General, Meteorological Service Singapore (MSS)
MSS provides weather information and forecasts under the National Environment Agency. It collects, processes and exchanges weather observations, compiles and archives climatological records for Singapore, and also conducts weather and climate research.
What made you stay at MSS for more than two decades, and what are some of the challenges you face?
Meteorology is a highly specialised field; the science has improved considerably over the years and continues to evolve. There is still so much to learn and discover in this field. The scientific challenges and great learning opportunities for meteorologists in MSS, and job satisfaction are important.
What aspect of your job do you enjoy the most?
As weather systems and changing climate conditions transcend national boundaries, international cooperation with other meteorological institutions and international organisations (e.g. World Meteorological Organisation, International Civil Aviation Organisation) is central to our work. I enjoy exchanging ideas and experiences at meetings and conferences, and developing partnerships with international and local research institutions. These partnerships and interactions help us to keep abreast with international developments in meteorology, and to widen our network of collaborators.
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How does MSS work with NEA, and to a wider extent, with MEWR to tackle Singapore’s environmental challenges?
Weather information plays an important role in supporting the operations in environmental protection and public health in NEA. Weather and wind conditions affect the way that air pollutants are transported and dispersed. MSS runs atmospheric transport models to predict the transport and concentration of pollutants such as smoke haze particles from land/forest fires, ash fallout from volcanic eruptions, and radioactive fallout arising from nuclear accidents.
On the public health front, MSS provides information on air temperature and rainfall trends to assist the Environmental Health Department in its assessment of the dengue situation. These weather elements are related to the breeding activity of the Aedes mosquitoes.
With climate change becoming an issue of increasing concern to the Government and public, climate science expertise is needed to help augment national preparedness for climate change. In this aspect, MSS provides scientific advice and expertise to MEWR on climate change projections of Singapore and related issues. There is also a higher user awareness of the value of weather information for day-to-day planning and decision-making. These developments have made it possible to increase our capacity for delivering time-sensitive weather forecasts, early warnings and alerts rapidly and effectively to users, and to expand the user base of our weather information.
Climate change has increasingly become a key issue both locally and internationally. How does MSS respond to the challenge?
Over the last few years, a dense island-wide network of 64 automatic weather stations was installed to replace the traditional autographic rain gauges. The comprehensive data from such a dense network will enable us to conduct robust studies of Singapore’s long-term climatic trends.
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ProFeSSor TommY Koh, 74, Ambassador-at-Large
You were elected to chair the preparatory committee for the 1992 UN Conference on Environment and Development, and also the Earth Summit in Rio. What were the environmental concerns then? How does it differ now when the world is preparing for Rio+20?
In 1992, the three biggest concerns were climate change, the loss of biological diversity and the depletion of the world’s green lungs or rainforest. We have made no progress in any of the three areas. On the contrary, our worst fears have come true. The only positive developments I can think of are the rise of Asia, the death of the doctrine of development-at-any-cost and the REDD+ (Reducing Emissions from Deforestation and Forest Degradation) programme. (REDD is a UN scheme that aims to create a financial value for the carbon stored in forests, offering incentives for developing countries to reduce deforestation. REDD+ goes beyond deforestation to include the role of conservation and sustainable management of forests.)
You are also an influential figure on environmental issues within Singapore and on the international landscape – what do you think enabled Singapore to achieve high environmental standards in those years post-independence?
In the 1960s, Singapore needed foreign investment, economic growth and jobs. Some in the Government favoured growth even if at the expense of the environment. Fortunately for us, our founding fathers, especially Lee Kuan Yew, rejected that view and insisted that we grow in harmony with the environment. They were swimming against the tide, but history has vindicated them.
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What was it like in Singapore in the early post-independence days?
In the 1950s and ’60s, Singapore was a typical Third World city, filthy, smelly and chaotic. When the Government took monumental steps to clean and green the city, citizens enthusiastically joined in the campaign. They developed new habits and discipline. There was growing civic pride.
Climate change has become a mainstream issue in recent years – what do you foresee as climate change challenges for Singapore?
Climate change poses challenges and opportunities for Singapore. Physically, we are threatened by the rise of sea levels. Economically, we are short of alternative sources of energy. At the same time, I see many new opportunities. Solar energy could be commercially competitive within the next five years. Singapore should drive the evolution of an ASEAN and Asian energy grid. Singapore is well-placed to harness the opportunities of the green economy as a small and compact city. We are ideally located to test new and innovative technologies, especially those relating to transport, for example.
What do you think are the perceptions of the “outside world” of Singapore on environmental issues?
When foreigners visit Singapore, they are amazed at the cleanliness, greenness and livability of our city. Some of our visitors, however, wonder why we do not use electric or hybrid buses and taxis. They wonder why we are not doing more in the recycling of waste. They wish that we would do even more in the conservation of our historic places and buildings.
Our P
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interview with
EnvironmentAWARDS
President’s AwArd for the environment (PAE)
The President’s Award for the Environment is the highest environmental accolade for
individuals, organisations and companies that have made significant contributions towards
environmental and water resource sustainability in Singapore. It recognises and honours
the sustained environment and water-related contributions by environmental
champions from the People, Public and Private (3P) sectors.
ecofriend AwArds
The EcoFriend Awards by the NEA recognises the efforts of individuals who have made
contributions to the environment, and have sacrificed their personal time and effort to
protect, promote and enhance Singapore’s Clean and Green environment.
wAtermArk AwArd
The Watermark Award by PUB, the national water agency, recognises individuals and
organisations for their outstanding contributions and commitment to protect and raise
awareness of Singapore’s precious water resources.
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Dr Tan wee KiaT, 69, Winner of the 2011 PAE
Former chief executive of National Parks Board (NParks) and currently its advisor, and CEo of Gardens by the Bay
You have been involved in the greening of Singapore since the early days. What challenges did you face, and what enabled this effort to be successful?
My involvement began in 1983 when I joined the Parks and Recreation Department of the Ministry of National Development (MND), and I have been part of an evolutionary process that is still ongoing. Green advocacy at the time was led by members of the Singapore community that included a significant expatriate presence. The government sector was at best neutral, if not negative because of perceived opposition to the development programme set for the country.
Today, advocacy for the protection of our environment is shared by the Singapore community at large, and government agencies particularly those in MEWR and MND. This sea change can be attributed to passionate individuals within these agencies who worked tirelessly hand-in-glove with like-minded members in the private sector to change mindsets. Key influential members in the Singapore Government, and generous support from private individuals and corporations have helped to fuel the impetus.
Singapore has also raised its environmental standards in a few decades – what factors do you think enabled us to achieve this?
The remarkable economic progress achieved by the nation is expressed in its image and global presence as a responsible and attractive global citizen. The Garden City image has been carefully nurtured by a conscientious adherence to the directives put in place under the leadership of Mr Lee Kuan Yew.
interview with
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ards What do you think would be the country’s greatest environmental challenges in the years to come?
Global climate change will have a severe impact upon the physical and economic well-being of Singapore. How the leadership of the country and its citizenry respond to these challenges will be the measure of the maturity of Singapore as a nation.
What was NPark’s working relationship like with MEWR?
The development of the Blue and Green Plan under the aegis of URA and PUB laid the foundation for heightened collaboration between the two ministries. Coupled with the conjoined efforts of NEA and NParks in the two ministries in recent times in shared initiatives such as the Clean and Green Singapore activities, the level of efficacy of the two key ministries charged with the physical well-being of the community in meeting challenges and achieving desired outcomes for the nation has been significantly enhanced.
In the ’90s, you were credited for playing a key role in uniting local NGOs and involving them in developing green spaces in Singapore. What were some challenges you encountered?
The hostility that I encountered in the early years of conservation and green advocacy emanated from both within and outside government. “Greenie” was an epithet applied to me in the derogative. In an effort to document the wildlife in the Central Catchment Nature Reserve, I applied for government funds to hire university students to identify and study species population sizes. The turndown was resounding. A member of the community, Lady Yuen Peng McNeice came forth with a substantial donation to fund the project. This laid the foundation for a thorough documentation of the biodiversity of Singapore, and later led to a reversal of a trend, namely the de-gazetting of nature reserves.
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ards • Interview
You were also one of the founding members of Singapore Environment Council – do you think the role of civic organisations has evolved since those days? What would you like to see more of?
In another heartening reversal, Singapore today welcomes NGOs that advocate environmental protection, where previously such organisations were anathema. I would like to see our people develop a keener sense of civic responsibility towards our natural heritage.
You won the PAE last year – can you share how you felt about being recognised for your efforts in greening Singapore?
I was honoured, but it felt strange that I should receive special recognition for doing what comes naturally! We can easily provide for all our needs, but nature will never be able to satisfy all our wants. As individuals, we all need to be conscious of our impact on Mother Earth as we go about our daily lives.
interview with Dr Tan wee KiaT
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Yao-Lee Seow Foong, 54, principal of East View Primary, which won the Watermark Award in 2010, speaks of the school’s green journey that began in 2005, when it worked on a green audit plan to make its operations more eco-friendly and won some green awards; the school established a “Water is life” Committee which appointed “water advocates” (staff) and “blue ambassadors” (students) to expand its water conservation efforts
“Our pupils learn to work in teams to widen their circle of influence and spread the message creating a positive impact on others. In so doing, they will become caring citizens and active contributors to the well-being of not only our nation but also our global home,” she says. Teachers get the message across by exposing pupils to water conservation messages through assembly shows, curriculum integration and poster design competitions. A “Water is Life” teaching package was even created to be taught as part of the Social Studies and Science curriculum. It was based on a three-step concept of “engaging hearts, stimulating minds and experiencing with hands”, she adds. This includes interactive and hands-on activities such as games, quizzes, art competitions and learning journeys to places such as Marina Barrage and the NEWater plant to learn more about Singapore’s water journey and water conservation efforts.
The challenge is getting the whole school involved. “It requires ongoing conversations to engage the staff and students… and constant reminders of water-saving habits.” The school also made changes such as installation of biocubes in urinals and thimbles in all taps.
The Watermark award, Ms Yao-Lee says, serves as “great recognition to our staff and pupils for the hard work and effort put in towards water conservation, endorsing good water-saving habits and caring for our environment. Most importantly, this award is a strong booster in motivating our pupils to continue to be water ambassadors as they advocate the importance of those water messages in school as well as at home. Our pupils know that they have been doing the right thing for a good cause and this award affirms their actions. They are even more committed to be good role models and spread this good cause to others in school, homes and the community.”
JameS Soh, 62, executive director, National Youth Achievement Award (NYAA) Council which won the President’s Award for the Environment in 2009; many NYAA alumni have also won EcoFriend Awards in various categories
“The NYAA was established in 1992 to provide our young people with the opportunity and platform to develop their potential to the fullest. Young people of today are exposed to numerous images and messages that promote models of unbridled consumption as the key to happiness and a fulfilling life. In reality, however, the impact of this unsustainable consumption is extremely harmful, contributing to climate change and other environmental challenges, such as rising sea levels, water shortage and food insecurity.
“Youth will have a significant role to play if we are to bring about the widespread behavioural change needed to move to more sustainable lifestyles and consumption habits. That is the reason why we feel strongly that young people can indeed make a difference if they understand the situation and are ready to do something about it. They have the power to be the change.
“From one of our surveys, we discovered that youth are knowledgeable about
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marK chenG, 25, winner of NEA EcoFriend Award, who started local NGO Avelife
“I fervently believe in a 3P partnership to develop Singapore’s environmental civic sector. I was surprised that as Avelife grew, government agencies came in to support our work and help us in capacity building. Numerous civic organisations’ leaders were astonished at Avelife’s close partnership with the Government. Some had even asked if we were part of government. I think it is important for civic organisations to know that our Government is aware that they can’t do everything, and in fact, would be supportive to their cause if we are positively impacting the community.”
environmental issues, but this knowledge was not being translated into action. Changing the mindset and attitude was quite a challenge not just for the NYAA, but for the government agencies and green groups as well. So our concern is, how do we get the youth to be interested in becoming environment champions?
“NYAA provides young people with many opportunities to be involved in environmental activities and projects. For those who are passionate enough or have a keen interest, we further develop them through environmental leadership programmes such as the Earthwatch Scientific Research Project and UNEP’s (United Nations Environment Programme). We hope that they will return to be catalysts and youth ambassadors to help raise environmental awareness among young people.
“Many civic organisations tend to work in isolation and there is not much collaboration to champion the environmental cause as one unifying force. As resources are limited, these collaborative efforts, if done properly, can create a huge impact. Coming together in unity and offering each other skills and expertise would be more effective than doing it alone. The 3P divisions of MEWR, NEA, PUB, NParks and NCCS could play an effective role in bringing these like-minded organisations together to brainstorm ideas and strategies in promoting more sustainable ways of living that are in harmony with our communities and nature.”
Visitors who do not know Singapore always remark to me that they are struck by how clean and green the city is. To them, a country so small it could be covered by a breadcrumb on a map and is home to 5 million people conjures images of a concrete metropolis rather than a cityscape at least half covered by lush greenery.
I was one of those who had to leave the country and return to appreciate it. Writing this book has been a further eye-opener on Singapore’s journey from an Asian backwater slum to a coming of age eco-city. Key to that journey has been the vision of our leaders in the early post-independence days, and the sheer hard work and determination of the countless Singaporeans who translated that vision into reality.
Throughout my career, environmental reporting has always endeared itself to me and provided much professional inspiration. I am grateful for this opportunity to document and write the untold story of the people at the heart of this transformation, which began formally when the Environment Ministry – now the Ministry of Environment and Water Resources – was set up 40 years ago. I have sought to make it as accessible as possible, so that today’s youth can appreciate how we got here, and feel inspired to steer Singapore to an even greener future.
I would like to thank my editor-in-chief Patrick Daniel for encouraging me to take on this book, and the management at MEWR for entrusting me with it.
All the MEWR staff, past and present, especially the MEWR book project team – Melvin Koh, Daniel Low, Shallyn Leow and Ang Jian Zhong – for their support in facilitating interviews and field trips.
The Straits Times Press team – Mary Lee, Lock Hong Liang, Shova Loh, Jane Huang – for seeing this book through with their guidance and creativity, and to the SPH Information Resource Centre team that entertained my endless requests for books, reports and information from the archives.
The ministers, permanent secretaries, deputy secretaries, senior management and officers from the ministry and statutory boards – past and present – whom I interviewed and who kindly took the time to recount the experiences and lessons learnt while at the helm and front lines of the ministry and its agencies.
The captains of industry, leading environmental and civic society leaders, friends and family who contributed to the book by sharing the stories that shaped this country’s green journey.
I would also like to acknowledge my husband, James, for his encouragement and support through the entire project and for providing the inspiration for the title of this book.
And my first-born son, Tristan, whom I carried from the time I started writing this book to when he was born, just as the finishing touches were made. He represents the future – Singapore’s next generation – that will reap the rewards of efforts made today in forging a greener tomorrow.
Jessica cheam
August 2012
Acknowledgements