S Iswaran
Singapore
“The Maritime and Port Authority of Singapore (MPA) has incorporated the requirements of the International Maritime Organization (IMO) 2020 regulation in its Prevention of Pollution of the Sea (Air) Regulations 2022. The Regulations are applicable to Singapore-registered ships and all other ships while they are in Singapore waters.”
“The Maritime and Port Authority of Singapore (MPA) plans to progressively roll out the charging infrastructure for electric harbour craft operations in the Port of Singapore from 2025.”
“Since 2018, the Land Transport Authority (LTA) has imposed minimum bicycle parking provisions covering different types of developments. The requirements are determined by multiple factors, including the developments’ use, location and gross floor area (GFA).”
“I had addressed similar Parliamentary Questions by Mr Gerald Giam on 29 November 2022 and 10 January 2023, as well as in my Ministerial Statement on 8 May 2023. The Member can refer to these past answers and statement as there has been no material change in the allocation of Certificates of Entitlement.”
“To encourage the uptake of electric cars, the Government has rolled out the Electric Vehicle Early Adoption Incentive and enhanced Vehicular Emissions Scheme. When taken together, it provides up to $45,000 off the Additional Registration Fee of an electric car upon registration.”
“The Land Transport Authority studies all potential changes to the Certificate of Entitlement (COE) system carefully, including conducting sensitivity analysis where appropriate.”
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“Every smartphone, GoPro camera and in-vehicle recording systems, they can all be put to good use and they are potentially a very valuable source of information. Police will provide the platforms and portals to enable this. We are encouraged by the response to the Facebook pages set up by the various NPCs in the last two years. Together with the SPF Facebook page, more than 20 cases have been solved through Facebook appeals. So, it is not just a medium for social interaction but it can also help us in some very meaningful and important work in terms of preserving the safety and security of our neighbourhoods. Police have also set up the CrimeStopper and the Traffic Police's "E-Feedback on Road Users" online portal. This allows for almost real-time reporting of incidents, and is convenient for members of the public because they can make these reports without having to go to a Police station and do it from anywhere literally. Police are able to then use the videos and pictures sent by the public as objective evidence to facilitate investigations. We are seeing more members of the public providing information to the Police via CrimeStopper, with a 63% increase from 1,121 cases in 2013 to 1,832 cases in 2014. Since December last year, Traffic Police have also received almost 100 videos of traffic violations. Depending on your perspective, you would see that as a plus or a minus. But I think from an overall law enforcement perspective, this is an example of how we are trying to bring together various resources that reside within the community, in order to ensure we are able Page: 30 to undertake effective enforcement. I want to encourage more to come forward and use these avenues to help solve crime together.”
“Let me assure Mr Gerald Giam that we take the safeguarding of information obtained by Police very seriously. Police are empowered under the Criminal Procedure Code or CPC to collect the necessary information to support investigations into criminal activities. Such information may be shared with other Government agencies only if provided for under the law. And whether it is PolCam images or, as I have just shared with you, in the case of the body-worn cameras, specific steps are taken and built-in measures Page: 29 put in place, in order to make sure the data is well safeguarded. Internally, the Police have in place strict security protocols governing the use of and access to data. There are stringent guidelines, standard operating procedures and system security features to guard against data breaches and the misuse of data. The system is also subject to regular audits. We have zero tolerance for the misuse of Police data and will take firm action against anyone who does so. Madam, let me conclude by returning to the point on community engagement. To take community partnerships to the next level, we need to create new platforms and enabling technologies to make it easier for Singaporeans, especially a younger generation who are more tech-savvy, to come forward to work with and help the Home Team. So, we are extending our outreach in the online space. Apart from being an effective means to reach out to the community with crime alerts and public education messages, the value of social media lies in its ability to facilitate the crowdsourcing of information that can help Police in its day-to-day work and its investigation into crime.”
“The Police have taken active steps to educate the public on online crimes and raise awareness of common methods of online scammers. As part of the Anti-Scam Public Education Campaign, the National Crime Prevention Council and the Police have launched a website at www.scamalert.sg to raise awareness of the common scams in Singapore. They also do other outreach through roadshows, posters and so on. We are also building our capabilities to deal with cybercrime. Police will establish a new Cybercrime Command within the Criminal Investigation Department or CID. The Cybercrime Command will specalise in cyber-investigations, digital forensics and cybercrime policy. Investigation officers and digital forensic officers specialising in cybercrime investigations will also be deployed at each of the six Land Divisions by the end of this year. This will ensure that our frontline units are equipped with the necessary skills to investigate cybercrime cases. Beyond this, the Police will continue to work closely with international and regional law enforcement agencies and industry stakeholders. In the region, Singapore leads the ASEAN Cybercrime Working Group, which provides a platform for regional capacity building and information sharing. Police will also work with INTERPOL's new Digital Crime Centre, located in Singapore, to develop digital forensics and new solutions to tackle cybercrime. Mdm Chair, given the complex operating environment and rapidly evolving crime threats, it is imperative that Police have the necessary capabilities, resources and powers to fight crime through information gathering, investigation and, eventually, bringing the perpetrators of crime to justice.”
“Last year, we saw a sizeable increase in the number of crimes committed online, especially cases of cheating through e-commerce. Many of these involve scammers who impersonated sellers on online platforms to deceive victims into buying goods that would never be delivered. The crimes themselves may not be new but the medium has changed. Criminals and syndicates are adapting their modus operandi to exploit the opportunities arising from the ubiquity and the anonymity of the Internet. Individuals from all walks of life have fallen victim to these ruses, including well-educated and tech-savvy professionals. 12.30 pm Compared to the more conventional types of crime, online crimes also pose a different set of challenges to our law enforcement agencies. First, they are often transnational in nature, involving perpetrators based overseas. Second, these funds can be transferred almost instantly leaving the victims with little recourse. Third, given the nature of the Page: 28 Internet, there is no shortage of tools and applications to cover one's tracks. Police all over the world are grappling with the difficulties of tracing, apprehending and bringing the perpetrators of cybercrimes to justice, as well as to recover lost monies. That is why we need to emphasise education and prevention – the dictum of caveat emptor has never been more relevant. Just as we would exercise due care for our safety and property in the real world, we should have similar care and vigilance in the virtual world – be wary about buying items when prices are too good to be true, because they often are; refrain from financial transactions or the exchange of personal information with people whom we do not know; and be careful when befriending strangers on the Internet.”
“Therefore, the Police's approach is to support and empower individuals and groups to take ownership of the safety and security Page: 27 of their homes and neighbourhoods. The CPUs at our NPCs have reached out to residents, and many have stepped forward to form and participate in Neighbourhood Watch Groups and Citizens-on-Patrol groups. Some have also come forward to join our Volunteer Special Constabulary and partner our regular officers to perform frontline policing duties. Our fight against unlicensed moneylending or UML is one example of how we have adopted these strategies to address specific crime concerns with some success. In 2009, there were about 18,000 UML cases. To tackle this scourge, we strengthened legislation by amending the Moneylenders Act in 2010 and enhanced Police's capabilities to deal with UML. Specialised units at CID and at the Divisional level were established to lead the effort and guide enforcement and preventive efforts. Police Cameras deterred potential harassers and provided crucial evidence for follow-up investigations. Our community partners also played an important part through the work and vigilance of the Neighbourhood Watch Groups and members of public. Some have initiated other commendable efforts. For example, Sembawang NPC and the Nee Soon Town Council have worked together to train conservancy workers to look out for loan shark runners and other illicit activities in the community. It is this concerted and collective effort that has led to a substantial 67.8% decline in UML cases over the last five years to about 6,000 in 2014. The increase in cybercrime is another area of concern which Mr Edwin Tong and Mr Vikram Nair have highlighted.”
“But we believe it is better to facilitate the flow of such information which can aid our crime detection and deterrent efforts and find efficient and effective ways to make sense of this data. This is why we have continued to enhance our data and video analytics capabilities to process large volumes of information. For example, Police currently use a video review tool which incorporates compression technology and analytics capabilities. Objects and persons of interest can be identified quickly and an hour-long video footage, for example, can be compressed such that critical events can be viewed quickly in a matter of minutes. This is an example of how we can use technology to gather the information. We can significantly reduce the time needed to process the information and this will enhance efficacy and productivity. The third limb in our strategy is strengthening our community partnerships. It is a key aspect of COPS which has been given added impetus through the creation of Community Policing Units or CPU at the NPCs. CPU officers are chosen for their strong interpersonal skills, and their ability to communicate well. They are given training to enhance these skills. Ms Tin Pei Ling asked about the role of community partners. Madam, community partnerships are indispensable to MHA's efforts to keep Singapore safe and secure. Time and again, both in Singapore and elsewhere, the role played by the community has been the key differentiating factor in the deterrence of, or response to, a crime or terrorist incident. A vigilant, prepared and resilient community is an invaluable partner and a powerful ally in the fight against any threat to our safety and security.”
“Police can now obtain footage with sharper resolution, which thus enhances the effectiveness of Police investigations. Over the past two and a half years, PolCams have been installed in more than 4,400 HDB blocks and multi-storey car parks across Singapore; more than 430 cases have been solved through PolCam footage, which also provided investigative leads in more than 890 cases. We are on track to install the PolCams in all 10,000 HDB blocks and multi-storey car Page: 26 parks by the end of next year. Our frontline officers have also started to use body-worn cameras (BWCs) while frontline policing vehicles are equipped with In-Vehicle Video Recording System (IVVRS). My Police colleagues have kindly lent me this to show Members what the body-worn cameras look like. As Members can see, it is fairly light, compact, not very sinister looking. In fact, it is very friendly. The key elements in these are that it has recording capabilities in high definition; the recording can be encrypted; there will be an indicator light when the recording is on, so that members of the public know that a recording is taking place; and also, footage cannot be downloaded, edited or deleted by officers without the proper software and authorisation by the CEO of NPC. There are some very strong safeguard measures built into this. The body-worn cameras and in-vehicle video recording system complement the existing forensic methods that aid police investigations and the gathering of evidence. With "live" streaming capability, they will also strengthen Police's incident management capabilities. Of course, there is always the risk of information overload – Ms Sylvia Lim alluded to this.”
“Madam, community policing has been the cornerstone of our policing strategy for the past 30 years. Police has been able to keep our neighbourhoods safe and secure, and built a high level of trust with the community, through our network of Neighbourhood Police Centres or NPCs, Neighbourhood Police Posts or NPPs and ground officers. The new Community Policing System or COPS was introduced in 2012 to enhance frontline policing within the community. Under COPS, Community Policing Unit officers are selected, trained and deployed to build ties with residents, and strengthen police presence within the community. Crime Strike Force officers have built up good ground networks with stakeholders within the community, thereby improving Police's ability to fight localised crime. By April 2015, all 35 NPCs would have adopted this new COPS model. Our NPPs are also being revamped to provide round-the-clock automated police services, while our officers are more deeply engaged with the community. We have received good feedback from the three pilot NPPs at West Coast, Radin Mas and Marsiling. Six more NPPs will be revamped by the end of this year. As part of the broader policing effort, we continue to explore new ways to use technology – a point which Ms Sylvia Lim has raised. PolCams are a case in point. They are being deployed in our HDB blocks. They help to deter and detect crime and allow us to deploy our police officers in frontline functions to focus on interacting with the community or investigations where the human touch, experience, instinct and judgement are key. Since 2012, when Polcams were first installed, Police have progressively upgraded these cameras from standard to high definition, as the technology has improved, and the costs have moderated.”
“Madam, we share the Member's concern over the rising rate of such cybercrimes. The Police have been taking a series of measures. As I mentioned, one aspect of them pertains to the collaboration with other Government agencies as well as the transaction or service providers and also conducting broader education campaigns in order to raise awareness. Police are also constantly upgrading their cyber capabilities and work closely with international partners and experts in order to track down persons who use the Internet to commit crimes. The nature of this crime is such that it is somewhat elusive at times, given the nature of the medium and the transboundary nature of the transactions. But having said that, there is increasing collaboration and the Police have got specific resources allocated for this purpose. And I would add that the Police are also working with Interpol's new Global Complex for Innovation, which is located in Singapore. One aspect of this Complex is a digital crime centre that supports digital forensic and develops new solutions to tackle cybercrime. So, I want to assure the Member and, indeed, all Members of the House, that this is something that is taken seriously. The Police have allocated specific resources, maybe not a division, as suggested by the Member, but there have been allocated resources and specialties developed, and there is collaboration with international bodies as well as the Page: 19 Interpol centre in Singapore.”
“Page: 40 We look at the whole range and the idea is to allow companies to come in and to make it as easy as possible for our SMEs to come and adopt technology for precisely the reason that the Member mentioned, which is, that technology can be used at any stage of development of a company.”
“Madam, I thank the Member for the questions. First, on R&D spending: if Members recall, our R&D spend through the national initiatives is around $16 billion over a five-year period. That was in the last cycle, which is from 2011 to 2015. That would average out to about $3 billion or so a year, which, in very broad terms, is about 1% of GDP. This is public R&D funding. The target is to try and attract at least $1-$2 of matching private sector R&D to that. That gives you a sense of the broad scope and that would, more or less, be in line with what is achieved in different countries, but there are variations according to the nature of their economy and the capacity of their private sector. For the second point on R&D, I think the Member's point is that SMEs may be deterred because they think R&D means going for major breakthrough technologies as opposed to more incremental solutions which might be relevant to their operations. That is a very good point. That is, indeed, why, in the range of measures that we have talked about, it is not just about going for major R&D ventures to achieve the kind of breakthroughs the Member referred to, but also for companies to be able to adopt simple technologies to their operations. For example, A*STAR works on creating a bunch of turnkey solutions which are plug-and-play, for example, in the area of Radio Frequency Identification (RFID) tagging, where this can help in supply chain management, warehouse stock-taking and so on. For many companies, this is a simple plug-and-play solution. With the RFID tags coming down, this is something that the companies can adopt with a relatively small investment.”
“Madam, to answer the Member's question: that is why culpability is a key factor, whether it is a knowing commission or something that happened incidentally. In general, the casino operators have been fairly responsive in implementing safeguards and enforcing them. They are not necessarily fool-proof, as the case is apparent from some of the instances, but, by the same token, I think no matter how strong a system is, a determined individual would probably find a way to get around it. On balance, the penalties that have been Page: 32 imposed are proportionate to the seriousness of the offences that had been disclosed.”
“Madam, as I have said, the CRA has to take into account various factors in deciding what is the appropriate penalty to impose, assuming a breach has been disclosed. That includes the nature of the breach and also what measures the operators have put in place. The Member cites a number of 200. That, I think, is over a period of several years, and the Member has to compare that against a base load of how many visitors who go to the casinos, the number of repeat visitations they make. And when we take it as a proportion of that, it is probably in the third or fourth decimal place in terms of frequency or occurrence. We must ensure that the penalties we impose are proportionate. The CRA has, at its disposal, a range of levers available to it and this is the judgement that is being rendered by the CRA Management and Board.”
“Madam, I do not have specific data on incidents in East Coast Park. If the Member wishes, he can file a question and I would be quite happy to give the information. But I would make a more important and general point. I think the Member's consideration is whether we can leave places like East Coast Park untouched by the measures that we are proposing and specifically the restrictions on consumption in public areas. I urge the Member to consider the consequences and whether the residents would thank you, or those who go to East Coast Park, if some of the concerns we have actually materialise. Because inevitably what you are going to have is if there are restrictions in many areas and then you have this oasis for consumption, human behaviour will sort of find a new level. I would urge the Member, therefore, to give this careful thought before he advocates such a strategy. I do agree with the Member what it does mean is that in some of these recreational areas, such as East Coast Park, the enforcement has to be calibrated – some have used the term "light touch" – but also we need to make sure that we find the balance which allows people to have their fun in a legitimate way, which is unchannelled and, at the same time, we also ensure the concerns in terms of public order and safety are preserved. If the latter is not achieved, then you are not going to have a lot of fun in East Coast Park. [(proc text) Question put, and agreed to. (proc text)] [(proc text) Bill accordingly read a Second time and committed to a Committee of the whole House. (proc text)] [(proc text) The House immediately resolved itself into a Committee on the Bill. – [Mr S Iswaran]. (proc text)] [(proc text) Bill considered in Committee; reported without amendment; read a Third time and passed.”
“I would not say that this is a particularly sharp issue which we are seized with. In general, the Police have very clear strategies in engaging the community. It is not just in Geylang but it is across the island. Community policing is a key part of their policing strategy and that entails building relationships, bridges and bonds of trust in the community. You cannot just rely on enforcement, we need this. So, it is part and parcel of the Police's overall strategy to keep Singapore safe and secure. Page: 73”
“Madam, first on the issue of hawker centres, the licence does not apply to hawker centres as a whole but particular shops will receive the licence. If I remember correctly, they are given a beer licence or a beer house licence and the requirement is that the consumption takes place on the premises, meaning within the hawker centre. What that means in practice is if a shop in a hawker centre is to sell a can of beer, they are required to pop the can, so that there is a point made about consumption on premises. So, that is the basis on which the licensing is conducted. In that sense, it is similar to coffee shops and they have prescribed times and so on for their operations. On the Seventh Month dinner, I think what the Member is suggesting is that the 10.30 pm time limit is observed more and it is breached. Is that her point? Basically, the Seventh Month dinners are required, by permit and the licence they have, to end by 10.30 pm. I think the Member's point is that these inevitably spill over and we are aware of this situation on the ground. That is why I have made the point that for these kinds of activities, because our object is to minimise the impact on normal activities and the Seventh Month dinners would constitute that, we will see how best to facilitate that. Perhaps, in the application process – because they will need a permit if they are going to hold it in a public area – we can embed this requirement in there as well. But we will have to study this and see how to make it seamlessly. We have a few months before this is upon us. Finally, her point on Geylang and I think the point was why is there this antagonism.”
“In general, if you look around at the examples we have cited and others that you may have experienced personally, these cities have not lost their buzz and I do not think their residents or their citizens feel unduly put upon by some of the restrictions that have been put in place. Madam, the proposed measures are reasonable, balanced, focused and not excessive. We are not setting out to stop people who want to enjoy their liquor; rather, this Bill aims to set the norms for liquor consumption in public places and purchase of takeaway liquor to be conducted in a responsible way. Ultimately, we do need all parties to step forward – individual responsibility, cooperation of the community, industry has to play its part. We need effective enforcement and, of course, we need to educate all so that we can achieve the full intent of this Bill. Madam, I urge Members to give their full support for this Bill.”
“We need the industry and the community to take responsibility, exercise more self-control and be proactive in mitigating liquor-related risks. Mrs Lina Chiam has suggested that we commit this Bill to a Select Committee. I disagree with her and I will argue against it. There is no need because the policy behind this Bill has undergone a long period of deliberation and consultation with a wide range of stakeholders. The public has generally shown support and this is underscored by various polls and, indeed, I think the discussion in this House confirms it. The offences in the Bill are also not new; the powers are scoped tightly and are similar to those that we have in existing legislation and Police's enforcement approach will also be targeted, balanced and measured, as with the enforcement of any other law. Page: 71 Madam, to conclude, the intent of the Bill – proposed measures and enforcement are guided by and focused on averting disorder and disamenities, to deter and to deal with troublemakers and trouble-making. We have sought to take a calibrated and balanced approach to deal with a somewhat complex issue. This will guide both the geographical areas that we focus on for our enforcement and the enforcement touch and the approach that is adopted on the ground. We have heard a great diversity of views in this House and outside, but from all this diversity, I think one key clear point is that we are united in the desire for the same outcome – a safer and more secure living environment for all Singaporeans and other residents here. We are not transplanting policies of other cities indiscriminately but we are learning from their experience and adapting some useful examples for our purposes.”
“As with the current practice, APOs, who are trained and supervised by Police, will be deployed to patrol areas such as Little India where large congregations of people frequently gather and consume liquor. These APOs are also empowered under the Bill to assist and supplement Police in enforcing the law on public consumption of liquor, including effecting arrests. I agree with Ms Lim and, in fact, this is a point we have discussed in this House before. We do need to ensure that our APOs are well trained because of the interface they have with the larger community and that is, indeed, the basis on which the Police engage the APOs and ensure that there is a rigorous training regime for them and we will continue to do so. In areas that do not pose as many problems, the enforcement officers also have the levers and powers to take decisive and quick actions, when they come across such cases in the course of their work or if it is brought to their attention through a report or notification. We do not envisage a significant increase in resource requirement because of this prioritisation approach and the way the Police will respond. Madam, I want to say that we will commit ourselves to resourcing the Police as necessary to do not just the enforcement of this Bill and its provisions but, in general, we have larger law and order and security concerns. The resourcing of the Police has to take into account this larger context. It is not about this particular Bill per se. Having said that, I do want to make the point that in the context of this Bill, it takes the concerted effort of all stakeholders to ensure that the objectives of the Bill are met. Enforcement alone will never be sufficient.”
“I want to make the point that while restricting the number of licences is one of the tools available, the number of licences in an area per se may not truly reflect the situation on the ground because you may have one licensee who behaves irresponsibly, you may have many licensees who actually are very compliant and are responsible in the way they conduct their sales. So, the closure of any one shop will not necessarily reduce the overall problem on the ground. But what we will do – and the Police will do – is we will assess the situation in a locality and consider which levers are to be used, including whether there should be restrictions on the number of licences. Mr Thomas Chua made several suggestions relating to the liquor licensing regime to balance the need between achieving public security, being pro-business and maintaining Singapore's tourism appeal. We will take note of all his suggestions including the idea of a demerit points system and we will review them. As of now, we do not have any plan to have such a system but we will continue to engage the industry and refine our processes. Several Members have asked about the Police enforcement and resourcing for that purpose. I am very glad so many of you have raised this and I will urge you to hold that thought. The Committee of Supply is around the corner and you should make a strong pitch for MHA. Page: 70 In enforcing this law, the Police will focus resources on problematic areas, particularly in the two Liquor Control Zones. In other words, the way we will prioritise. These are areas with greater law and order concerns where we already dispatch more resources today, to patrol and respond to incidents.”
“This is not a new power for the Police. We had a debate over this in the past. The Police have well-established protocols to assess when certain inspection is necessary and how it is to be administered based on their Page: 69 operational experience applying such powers to special events such as National Day parades, for example. Assoc Prof Fatimah asked about the rationale of imposing a banning notice period of 30 days. Under the current Public Order (Preservation) Act, there is a provision for indefinite exclusion. We do not need such strict powers in this Bill. Thirty days is a reasonable period. The Commissioner of Police or an authorised officer will then have to make an assessment whether to issue another notice or whether the individual can then be allowed to re-enter the place. Mr Zainal asked about the penalty quantum for offences related to the consumption and sale of liquor. These take reference from the existing laws and what we already have. In enforcing the law, Police will be given the option to issue composition fines in lieu of prosecution and such composition fines will be of the lower quantum than the penalty prescribed in the law. Penalties related to the supply of liquor by businesses are aligned with those under the public entertainment regime. On liquor licensing, Ms Foo suggested that we consider restricting liquor licences in a community and seek stakeholders' feedback in considering licence applications.”
“It is certainly not the intent of this Bill to seek out every person who is consuming liquor peacefully in a remote place. I do not think the Police have the resources for this. Should the Police encounter such situations, they will assess each circumstance carefully and not resort to issuing penalties, whether it is fines or arrests in the first instance. Mr Alex Yam asked about the treatment of inebriated youth. In the event that the Police encounter an individual who is drunk and incapable, the Police will as per current practice, take him back to the station and issue him a warning when he comes around. If he repeats the offence, the Police may, depending on circumstances, take further actions. I want to come to the specific enforcement powers and penalties. Ms Tin Pei Ling and Mrs Lina Chiam sought clarification on the rationale and safeguards of various powers. In particular, clause 30 which is a standard provision for arrest power that is common in many pieces of legislation, such as the Public Order Act, the Protection from Harassment Act and the Miscellaneous Offences Act. And given the propensity for violence and public disorder of liquor-related offences, they should be made arrestable without warrant so that Police can take swift actions. As I have reiterated – and I want to do so again – Police will not make arrest in the first instance. Clause 22 relates to inspection powers that are adopted from the special event provisions in the Public Order Act. Where an individual is suspected of having committed an offence related to liquor consumption and drunkenness and has hidden the liquor among his personal belongings including his clothing, clause 22 allows enforcement officers to inspect his belongings for any incriminating evidence.”
“Mr Zainal and Mr Ang asked about easing the public into the new measures and plans to ensure that individuals are not unfairly caught by the law. Mrs Lina Chiam also raised concerns about enforcement. Police will work with licensees and all the relevant authorities to put in place appropriate information, signages to remind members of the public of the rules. In enforcing the law, enforcement officers will take a calibrated approach. Let me elaborate on how enforcement will be calibrated. When a person is found consuming liquor during the restricted period, that is, after 10.30 pm, the Police are empowered to take down his particulars and require him to dispose of his liquor. At any time of the day, before or after 10.30 pm, a person found consuming liquor and creating public annoyance may also be required to move on and leave the place, even if he is not drunk. No Page: 68 further action will be taken if he complies. If a person ignores Police's advice, or if he is a recalcitrant offender, the Police may consider stiffer actions, such as issuing him a composition fine or, in extremis, arresting him. As is the practice today under existing laws, persons who are disorderly or pose a threat to public order and safety may also be arrested and prosecuted. Mr Yee Jenn Jong has asked about the offence on consumption of liquor. To clarify, mere possession of liquor is not an offence. Madam, it is not our intent to restrict people from enjoying liquor per se, but to encourage personal responsibility and considerate behaviour. The Police will focus their enforcement on areas where there are public disorder and disamenities associated with the consumption of liquor and take even-handed actions.”
“You must be prepared for the unintended consequences of such a move. If all the other areas around you have restrictions and then you have this free zone, I think the consequences can be quite undesirable. I want to clarify a point which several Members have raised on foreign worker dormitories. The "public place" seen in clause 38 of this Bill relates to a consequential amendment to the Foreign Employee Dormitories Act, which was passed in this House two weeks ago. Under the Act, MOM had decided that dormitories should be deemed as "public places" solely for the purpose of the provision relating to drunkenness under section 18 of the Miscellaneous Offences Act. As this provision will be transferred to this Bill, we need a consequential amendment under this Bill. So, it is a technical matter but I want to basically assure Members that we have no intention to single out foreign workers and I fully agree with Mr Hri Kumar and many others who have expressed the sentiment. That is not the object of this Bill. The amendment does not turn dormitories into "public places", neither does it forbid workers from consuming liquor within the foreign worker dormitories. Workers can continue to drink in their private quarters according to whatever rules they have within their dorms. Some dorms have varying rules on this matter in terms of where their private quarters are. And they can also continue to drink in the beer gardens in their dormitories until such time as it is allowed under the licence. So, we will license the areas; there are these today and those areas will continue to be available to the workers. So, it will not unduly constrain foreign workers in the dorms.”
“This includes places like void decks, parks and pavements. Places where members of the public cannot freely enter are not public places and the provisions in the Bill will not apply. Therefore, the restrictions on the consumption of liquor do not apply in private condominiums where access is restricted to residents and guests only, or in the private quarters of the foreign workers' dormitories. There are some public places where the consumption of liquor will continue to be allowed. Individuals can continue to drink in restaurants, coffee shops and bars. This includes any outdoor refreshment area that has been approved by the relevant authorities. To answer Mr Pritam Singh's question, hawker centres are under the same licensing regime as coffee shops. Operating hours are based on the location and the environment in which the hawker centre or coffee shop is based, whether it is a residential or commercial area. Several Members have suggested giving flexibility for the consumption of liquor in certain places, such as during a barbecue gathering in coastal parks and a grassroots event in the heartland, or in designated "party zones". Some even talked about star gazing in the park over a glass of wine. I would like to assure Members that these are not activities that we seek to restrict, particularly if the adverse impact on the community is not significant. We are committed to make it simpler for event organisers to obtain relevant permits where they are needed, or in some cases to exempt activities in certain places. The details are being Page: 67 worked out and we will announce them when they are ready. We have to be careful about blanket exemptions or providing for certain areas which are drinking zones. I think this was an idea that Mr Yee Jenn Jong suggested.”
“Records of past incidents also show that the occurrence of liquor-induced violent incidents such as rioting and serious hurt have been more frequent in these two areas. So, that is where we are focusing and that is our criteria and basis for doing so. Ms Foo Mee Har has asked how the measures can address the problems in her ward, and specifically Teban Gardens. I have some familiarity with the area. Page: 66 Mdm Speaker, other than the restriction on public consumption of liquor, the Bill introduces other powers and levers that enforcement officers can use to deal with drunkenness and disamenities that occur at any time of the day. In cases where drinkers are creating public annoyance, officers have the power to remove their liquor and require them to move on and leave the place. These are actions that enforcement officers can take and they serve as a strong deterrent to anti-social behaviour. Madam, as we can see from the diverse and varied interests reflected in the debate today on just these two issues, the Ministry has had to find a position that is reasonable, and balances the needs of various stakeholders. Taking all the above-mentioned factors into account, we have formulated and proposed a set of measures as embodied in this Bill that we assess to be the most appropriate and practical today. The Bill provides us with a framework for these measures to be implemented. There is also sufficient flexibility for the measures to be re-calibrated as the ground situation evolves. I want to turn to some implementation details which several Members have asked. One pertains to the definition of "public place" and the places that the law will cover. A public place under the Bill is a place where members of the public can have access as of right, or with permission.”
“Some businesses that depend solely on the sale of liquor retail sale will be affected. We can see that from our experience in Little India. But it is also clear that over time, the business community will adapt and diversify and they will create new business opportunities and a different mix of trades. So, I think the fact that major retailers like 7-Eleven and Cheers, have committed that they will align themselves to support the overall objectives is a welcomed development and they will find a way of work closely with the industry to make sure the transition is an effective one with minimal disruption to business. Mr Alex Yam asked a question on the conditions that the licensing authority will impose in granting extensions on retail sale hours. In considering those extensions, the authority will take into account various factors including the impact on the community and whether licensees take sufficient measures to mitigate any negative impact. And we will impose conditions accordingly. Several Members have asked about the criteria for designating Liquor Control Zones. Madam, the intention of having these few specific Liquor Control Zones is to better control law and order problems in areas where the risks of public disorder related to liquor consumption are more significant. Stricter restrictions on the supply and consumption of liquor will be imposed, along with enhanced powers to remove persons from the area if they pose risks to public peace and order. Based on Police's operational assessment, Geylang and Little India are two areas where greater control over consumption of liquor in public is needed.”
“Mr Zainal and Ms Sylvia Lim asked about the rationale of restricting the retail sale hours for takeaway liquor. The first point I want to make is you cannot decouple consumption from the sale of retail with public consumption. Imagine in extremis the scenario where you have total ban on public consumption but total freedom for retail sales, do you think that is tenable solution? So, you need to start somewhere because those who buy retail sales do not all go home and drink, or at least, there will be a temptation to do other things. So, we do need to have some reference points. Madam, unlike in coffee shops, restaurants and bars where the licensees are responsible to ensure that liquor is not served to patrons who already appear intoxicated, the consumption of take-away liquor is often unchecked. As many Members have highlighted, the problem is exacerbated by easy access to takeaway liquor sold in nearby shops. So, a curb on the supply will reduce the propensity of drinkers obtaining liquor and consuming it in public late at night. This has been an effective measure in other cities. Does it mean that there would be no gaming around the end times? Probably not. But that does Page: 65 not mean that we should not take a position on this, which we think it is sensible and consistent with the large objectives that we have set out to achieve. Several Members have raised concerns about the impact of restricting retail sale hours on residents and businesses. Currently, most shops and supermarkets generally close by 10.30 pm. The proposed restriction is not an absolute one, in the sense, that requests for extension of sale hours beyond 10.30 pm will be considered on a case-by-case basis and we have made that apparent.”
“And I think Ms Denise Phua attested to this in her speech. Having a series of Liquor Control Zones (LCZs) would simply exacerbate the problem for neighbouring areas. We should not wait until we receive complaints from residents that the restrictions in nearby neighbourhoods have caused the problems now to shift, before we take further action. In that scenario, we would then be accused of being slow to react, "Why are you not more proactive?" So, is this over-reaching or is this being proactive? The greater the gradient between the measures in different locations, the greater the propensity for displacement. I think we should all acknowledge that. On timing: to address Members' questions on what is the rationale for this restriction at 10.30 pm. The Police's record of past incidents shows that the bulk of liquor-induced violence and disamenities happen at night, after 10.30 pm. We can fine-tine this and get down to the last half hour and so on, but that is a general marker. It also aligns with the end-time for many activities we have in the community, as we have all discussed, whether it is "getai", whether it is Hungry Ghost Festival or the Seventh Month dinners and so on. The restriction will not stop people from congregating and consuming liquor in public before 10.30 pm, but it does reduce the window period when people typically consume liquor, because after 10.30 pm, we have the restriction. It greatly reduces the propensity of them becoming drunk and creating noise disturbances when residents are resting later in the night. The correlation is real and I would say that wherever you draw the line, whether it is 10.00 pm, 10.30 pm, 12 midnight, there will always be a debate about why not before, why not later.”
“And secondly, and perhaps even more importantly, we did not base the proposed Bill and its specific measures on the basis of polls. It was on the basis of specific assessment of operational needs on the ground plus feedback we have gotten in order to achieve our objectives – reducing disamenities in preserving public order. Ms Foo and Mr Baey were part of the Members who have raised this issue on whether we can keep restrictions to specific problematic areas and widen the coverage when problems are flagged out elsewhere. This is part of the larger discourse we have been having on various issues. Geographic coverage – should it be focused, should it be general? In terms of timing, should we put a restriction, should we have a total ban, should we delay the timing to 12 midnight and so on? Madam, with respect to geographic restrictions, as I have explained earlier, liquor-related law and order issues and disamenities do occur island-wide. We cannot predict exactly where it might occur next. There were also strong calls based on consultation to restrict liquor consumption at void decks, parks, and other common places in residential areas. If we were to draw zones around these areas, the boundaries and rules will be confusing and to say, the least, ambiguous. I think, in extremis, you will probably need a GPS enabled app to guide you as you move around, in which zone and what rules apply. This is not the kind of situation that we want, smart nation notwithstanding. And as Mr Hri Kumar quite aptly pointed out, "the law should not be an ass". Page: 64 Furthermore, drawing experiences from similar measures in other cities and in Little India in the past year, the displacement effect is real and it can be difficult to manage, especially depending on the terrain.”
“Mr Baey Yam Keng and Mrs Lina Chiam suggested that we should put more men on the ground and that might be the solution; in other words, more enforcement. But while enforcement may be an important factor, it is by no means the solution in total and it is only one part of the equation. We must address the issues of consumption and sale of liquor in order to set expectations and foster a culture of shared responsibility introspect to this matter. It is equally important – which Mr Alex Yam has in fact emphasised – it is equally important that individuals and the community take responsibility and exercise restraint. In Page: 63 this respect, the restriction of public consumption of liquor serves as the marker for members of public to abide by. Several Members talked about the mode and representation of various polls and also how we have undertaken consultation. Madam, I just want to emphasise that MHA engage in a concerted, inclusive and deliberate process of consultation with a wide range of stakeholders, including residents, various businesses and dormitories operators. We also put up consultation papers, two of them for the public to provide comments. Each phase of this public consultation was widely publicised in the mainstream papers. Ultimately, it is the responses of citizens, active citizens to step forward and give their views so that those views can be counted and take into account when we formulate the policy. I do not want to get into a detailed discussion on the various polls that had been conducted on this matter. Several Members have entered opinions. It would suffice to state two points. The statisticians assure me that the sample size of 1,145 in the MCI poll is sufficient for statistically significant conclusions to be drawn.”
“Mr Pritam Singh asked for more resolution on liquor-related disamenities across the rest of Singapore and in particular, in areas like Geylang and Little India. As I have said earlier, 40% to 50% of serious incidents in Geylang and Little India are linked to liquor consumption. That is twice the national average. And nationwide, 30% of serious incidents are liquor-related. Nine in 10 of all serious incidents occurred after 10.30 pm. And this is consistent across the island, including Geylang and Little India. But after all these granularities and all this data-sharing and fine-tuning, I think we need to come to a consensus. Is there a need to take action with regard to this matter? And I think the spirit of the debate in this House has been to confirm that there is a need to do so. The question then arises, how do we go about it and, in particular, when does a Bill stop being blunt and over-reached? And when does it start being comprehensive and effective? We can have a lot of rhetorical flourishes and pose interesting questions, but at the end of the day, we need to make a decision. That decision applies not just to general principles, but also to specific steps that need to be taken on the ground. In doing so, our guiding principle has been two-fold. The first is to make sure that we minimise the disamenities and threats to public order that would arise from public consumption of liquor. And second, in terms of our approach, we have endeavoured to be balanced, trying to reconcile quite diverse views and interests in order to achieve a pathway forward that we can all commit to and achieve some level of unanimity and take steps according to that.”
“Mdm Speaker, as I sat here listening to the few hours of debate, it reminded me of TS Eliot's words, "We shall not cease from exploration and the end of all our exploration will be to arrive where we started and know the place for the first time." I want to thank all the Members who have spoken on this Bill and for participating in, dare I say, spirited debate and bringing different perspectives to bear on the issue. In general, they have expressed support for the intent of the liquor control measures that the Ministry intends to implement. However, there have also been a diversity of views on a range of issues – the need for the Bill, geographic coverage, time restrictions and so on – and I will endeavour to address them in turn. Madam, several Members have highlighted that this Bill is timely, even long overdue, and that it will bring relief to residents in various localities who have been enduring disorder and disturbances arising from irresponsible liquor consumption in their neighbourhoods. Page: 62 And it is for the same reason that we commenced this review of our liquor control measures more than two years ago. Mr Alex Yam and Mrs Lina Chiam had asked about statistics of liquor-induced crimes. I had shared them. I will reiterate one or two key points and, in particular, the fact that we have had rioting incidents, at least once a week which had been attributed to liquor-related practice. We have also had other forms of serious hurt cases, twice a week, which have also been attributed to liquor-induced practice. And we have had a variety of other crimes that have been contributing to this general concern. The problems are also compounded by voluminous incidents of affray, disorderly behaviour and public nuisance.”
“Madam, I thank the Member for his supplementary quetstion. In general, the licensing conditions can be modified to take into account the points that the Member has made. For example, in licensing for particular events, this has already been the practice where they impose certain conditions – whether to use plastic containers or others. The Page: 20 Police have also, for example, as reported in the media, worked on some ideas of using tin cans and so on, in the Tekka Market area. So, I think this is part of the process. We have to just remember that the countervailing consideration is that it does have a bearing on the experience of the patrons and also the business considerations. We have to find a balance. But where the local conditions and situations demand a review, in order to impose certain conditions like these, we will certainly look into that. And I think the new legislation that is being proposed will enhance the range of levers that are available to the licensing authority in order to take more measured and calibrated steps to address some of these disamenities that the Member refers to.”
“Since the Singapore Tourism Board (Amendment) Act 2014 came into effect in October 2014, STB has actively engaged industry partners, including the Society of Tourist Guides Singapore, the NTUC Tourist Guide Chapter, travel agents and key attractions operators, through regular sessions. The feedback shows that the legislative amendments have been understood and well-received by Tourist Guides. Industry players have also shared that the situation on the ground has improved and tour groups were observed to be guided by licensed Tourist Guides. STB has also increased its enforcement against unlicensed guides. In the three months since October 2014, when the legislative amendments came into force, STB has almost tripled the frequency of its enforcement checks from 36 to 100 a month. STB will continue to closely monitor the situation and take firm action against companies and individuals who do not comply with the regulatory requirements.”
“Mdm Speaker, I am not sure what the Member means by "red-flagging". If by that he means making it generally well-known and raising public awareness that there are cases such as these, then that is where the overall public education effort comes in, which the Police undertake together with the CASE and others. I think this is a very important component. Where an offence is disclosed and if it pertains to the elderly or otherwise, I think those sorts of cases will also have to be publicised as part of the larger education effort. But we have to bear in mind that we have to be fair to the other side of the equation, which is the companies as well. Because until an offence is, in fact, disclosed and proven, we also have to be careful in the way we go about the enforcement activities. That is the balance Page: 27 that should be struck. But I take the point of the Member on the whole issue of raising awareness and making sure that, for vulnerable consumers in particular, we do our best to alert them to the possible risks of undertaking such transactions.”
“Madam, I thank the good Member for his question. I want to stress that, essentially, the process is such that when a complaint is received, the Police have to conduct inquiries to first ascertain whether there is sufficient basis to infer that an offence is potentially disclosed, before they then proceed into detailed investigations. So, for the kind of circumstances that the Member has described, it really turns on the specifics of individual cases, the Police's inquiries, and the assessment arising from those inquiries. As I have mentioned earlier, some of the challenges here also lie in the fact that the nature of these activities is such that it is not easy to obtain all the information. So, whilst an individual may feel that he has been misled, proving that, as the Member would well appreciate, can be challenging. Having said that, if the Member has particular points to raise regarding specific cases, I think he can surface them and we can ask the Police to look at them again. But, in general, that is the process, and then we have also strengthened the legislation under the consumer protection component. We have provided for recourse for specific bodies to take up injunctions where there is evidence as well.”
“Sir, I beg to move, that, "In page 53, line 30, before 'partnership', to insert 'liability'." Page: 111 This amendment corrects a drafting error in the definition of business address in paragraph (b) of clause 38(7) of the Bill. The word "liability" should be inserted for proper correlation to clause 38(3). [(proc text) Amendment agreed to. (proc text)] [(proc text) Clause 38, as amended, ordered to stand part of the Bill. (proc text)] [(proc text) Clauses 39 to 43 inclusive ordered to stand part of the Bill. (proc text)] [(proc text) Bill reported with an amendment, read a Third time and passed. (proc text)] Page: 112”
“(proc text)] [(proc text) Bill accordingly read a Second time and committed to a Committee of the whole House. (proc text)] [(proc text) The House immediately resolved itself into a Committee on the Bill. – [Mr S Iswaran]. (proc text)] [(proc text) Bill considered in Committee. (proc text)] [Deputy Speaker (Mr Charles Chong) in the Chair] [(proc text) Clauses 1 to 37 inclusive ordered to stand part of the Bill. (proc text)] [(proc text) Clause 38 – (proc text)]”
“From a governance point of view, the Tote Board is under MOF and I will convey the Member's sentiments to the Minister. Mr Vikram Nair has also suggested that an amendment be made to anti-money laundering provisions to include offences under the Remote Gambling Act in the Second Schedule of the Corruption, Drug Trafficking and Other Serious Crimes (Confiscation of Benefits) Act. It is the intention of the Ministry to do this after the Act is passed. Sir, let me conclude. This Bill is consistent with our current prohibitive approach to gambling, which is also reflected in existing gambling legislation. We must recognise, however, that remote gambling is materially different from conventional terrestrial and casino gambling. The law-and-order issues and social concerns it raises are more challenging, given the rapidly evolving and transnational nature of this industry. That is why we are Page: 110 adopting a multi-pronged approach. We are introducing comprehensive legislation, stepping up enforcement, implementing a range of blocking measures and broadening public education and engagement. This is a significant change from the status quo where remote gambling is unregulated and unfettered. These measures will help us in no small way to deter illegal remote gambling operators with criminal associations from targeting Singapore. With the support of the community, we also want to raise awareness of the dangers of remote gambling and emphasise the need for personal responsibility for each individual to know his limits, act responsibly and seek help, if necessary. Sir, I beg to move, and I urge Members of the House to give their support to the Remote Gambling Bill. [(proc text) Question put, and agreed to.”
“For example, this could be online lotteries or lucky draws organised by charities or businesses and they want to use an online platform because of the way they have conducted their business or that particular activity and for the purposes of promoting the sales of their products. This is, in some ways, no different to when we allowed lucky draws or donation draws in the terrestrial world with our current legislation as well. That is the focus of this clause. Mr Yee Jenn Jong has also asked about the operations of existing of terrestrial operators. Singapore Pools' account holders can only place bets over the telephone, while Singapore Turf Club's account holders may do so through a mobile app as well. These services are available only to registered account holders. In other words, you must go through a registration process, give certain information, before you can be considered. One cannot simply pick up the phone, download the app and start gambling. That is not how it works. The turnover from these services account for less than 10% of Singapore Turf Club and Singapore Pools' total turnover. So, it is relatively modest in size and it is not something that has proliferated based on the experience of these two entities. Dr Benedict Tan asked how Singapore Pools can be compelled to level up its competitiveness and whether IRs, Singapore Turf Club and Singapore Pools will channel more funds for social causes. Sir, the Bill's objective is to tackle law and order and social concerns that are associated with gambling. With or without this Bill, the IRs, Singapore Turf Club and Singapore Pools should be encouraged to contribute to social causes on an on-going basis.”
“This is not about trying to create a new and large channel for gaming online. Mr Yee Jenn Jong used the term "floodgates". Hardly, I would think, given the kind of constraints and conditions we are imposing. So, fundamentally, it is a regime that is prohibitive with a comprehensive set of measures. The exempt operator, if any, will be subject to very stringent criteria. We expect few to qualify and their operations will be constrained. It will be for a restricted set of games. I do not see the need, given our consultation, the position that I have outlined and the provisions in the law, for any referral to a Select Committee as some Members have asked for. Before concluding, let me address some specific questions that Members have raised. There is a question from Mr Ang Wei Neng and Mr Png Eng Huat on clause 40 which allows the Minister to make specific exemptions. This provision is not intended to exempt persons from clause 8(1) where it is an offence to gamble remotely in Singapore. So, it is not about giving you a carte blanche to go ahead Page: 109 and offer a remote gambling service. Nor is it intended to allow existing Integrated Resort (IR) operators to offer online gambling. As a matter of fact, the IR operators will not meet the criteria set out in clause 26 to qualify for a Certificate of Exemption. The last I checked, they are firmly committed to the profit motive still. Instead, clause 40 is meant to provide ad hoc exemptions for various specific products that may be available for a short period of time. What do I mean by this?”
“These would minimally include responsible gambling measures such as self-exclusion, employee training and patron education that already exist for terrestrial gambling. Page: 108 In addition, drawing from the best practices in other jurisdictions and our own experience, other control measures could be introduced. We will seriously examine these, for example, some of the suggestions have come from Members like Mr Ang Wei Neng, but also in terms of the kind of products that can be offered and specific social safeguards for potential customers. We will certainly restrict the number and type of products that will be permitted. Casino-type games or Poker will not be allowed. I want to emphasise that and we will curtail the range of options available significantly. Additional social safeguards could include allowing only pre-registered account holders to access the service, imposing a minimum age requirement for registration and not granting betting on credit. Exemptions will be valid also for a stipulated period of time and the exempt operators will be assessed on an on-going basis for compliance to the stringent conditions that will be imposed. The Bill provides for a comprehensive list of sanctions ranging from a Letter of Censure, variation of the condition of the Certificate of Exemption, financial penalties, restriction of business and, ultimately, to revocation or suspension of the Certificate of Exemption. I would add that the option for a renewal of Certificate of Exemption, even if one is granted, is not assured either. So, Sir, I have elaborated at length on our approach to the exempt operators and why we have embarked on it. I have clarified this because I think it is of material and important concern for all Members and, indeed, the wider Singapore society.”
“Interested entities will first have to apply and then be assessed to have met a strict set of criteria, which is clearly legislated in the Bill, before we will even consider whether a Certificate of Exemption is to be considered. It is a very tight sieve and only not-for-profit entities that return surpluses to the community can apply or potentially qualify. That limits the universe tremendously. Neither is it a forgone conclusion that Singapore Turf Club or Singapore Pools will meet the criteria. They will have to apply for the exemption like anyone else, be assessed on individual merits according to the criteria and be subject to strict conditions that will be applied. Mr Chan Chun Sing elaborated on some of them in terms of social safeguards. There is a suggestion that perhaps there is a large revenue collection possibility here. Let me be very clear about this. If revenue collection was the motivation, the approach would be very different. There are other regimes in the world like France and the UK which have many licensed remote gambling service providers offering a wide range of gambling products. France issued 31 licences to 20 remote gambling service providers offering a wide variety of products. This was last year. The contrast is day and night. Even if exemptions are to be granted under the proposed legislation, we will – and we are clear about this – impose strict conditions on the operator and operations. The exempt operators will be required to put in place robust social safeguards and responsible gambling measures, as well as measures to maintain gaming integrity and address law and order concerns.”
“We are criminalising the spectrum of remote gambling activities. We are introducing stiff penalties for those who are engaged, not just the operators, not just the bookies and agents, even the individuals are engaged. It is quite clear that we see this activity as something that resides in the penumbra of society. So, how does this in any way ennoble the activity? What it does do is send a very clear signal on where we stand on the issue and then gives us the wherewithal to deal with the problems. That is the approach. This Bill neither condones nor encourages gambling. Indeed, that would be entirely inconsistent with the prohibitive stance, not just in this Bill but, in general, with other existing Page: 107 gambling-related legislation that we have. The exemption provision that we have in this Bill must be seen for what it is – a tightly controlled exception within a regime that prohibits remote gambling, impedes access and payments, undertakes strict enforcement and promotes awareness and personal responsibility through public education and engagement. That is the context. In formulating policy and legislation, the Government has to take into account the diversity of views that are deeply held by our citizens, various segments of our society, while addressing the larger public interest that pertains to law and order and concerns over social harm. That is what we have sought to achieve in this Bill. Several Members have asked about the criteria for exemption and I want to spend some time going through the methodology, because I think this is legitimately a matter of interest for Members and I think we need to explain this with some clarity. So, what are the criteria?”
“So, if you believe a complete ban can produce a superior outcome, then please produce the evidence. We are not unique in terms of having a tightly regulated exempt operator, in terms of this kind of legislation. Jurisdictions like Hong Kong and Norway, which have some of the most restrictive gambling regimes, have allowed tightly controlled regime with comprehensive safeguards. This has been administered without exacerbating law and order concerns or social concerns. Sir, we have held several rounds of consultation with stakeholders such as community groups, religious groups and social workers on remote gambling and the issues of exemption. The views were varied, not unlike what we have heard in this Chamber today. Some advocated a complete ban, others thought that it would be better to have a tightly controlled regime offering very limited gambling products and subject to stringent conditions. Some even opined that a tightly controlled regime would provide a safer gambling environment. I want to say upfront that I acknowledge and respect the strong views expressed by several Members of the House and others in the wider Singapore society on gambling and, specifically, in this context, the issue of exemption. These stem from deeply held personal beliefs and I respect that. Equally though, there are others who hold quite the contrarian view and argue that these matters should be left to individuals to decide. Yet others advocate a pragmatic approach that curtails but does not eliminate the avenues of gambling, while minimising the risk of social harm. So, there is a spectrum. Ms Denise Phua made a passionate case and she says that by having an exempt operator, we are dignifying, ennobling or condoning remote gambling. I fail to see this.”
“So, the regime is consistent and we have taken this approach. And why do we do that? We granted exemptions in the 1960s to Singapore Pools and the Singapore Turf Club even as we were dealing with triads, illegal gambling syndicates and underground gambling. These fundamental law and order concerns have not changed. One cannot easily dismiss the risk of underground criminal activities as some kind of inevitable consequence of any law that renders an activity unlawful. The greater the extent of the underground illegal activities, the greater the risk to law and order and I would say, most importantly, the greater the danger to individuals who might for one reason or another be involved in that. If you have a complete ban, it would simply enlarge the prize and probably create larger incentives for criminal syndicates to target Singapore, but that in and of itself is one argument. The key point is this. When you look at our experience, what we have done in the terrestrial gambling environment, we seek to maintain law and order. We have criminalised the range of activities, but we have allowed a very tightly controlled valve, not because we wish to promote it, not because we condone it but because it is there as part of an ecosystem that seeks to minimise the law and order concerns and the social consequences that we are Page: 106 concerned about. That is the objective of the exercise. Those who argue, like Mr Pritam Singh, that they need evidence and they argue for the counter-factual, that if we have a complete ban, then the problem will be no worse, I would ask you to produce the evidence. Because our evidence is our experience, what we have done over the last five decades and this is the outcome.”
“It is the nature of the terrain. It is a game of cat and mouse, but the collective adoption of these blocking Page: 105 measures will be ample signal to the vast majority and it will significantly disrupt and impede the remote gambling activities of the few who may be recalcitrant. I think that is the approach we want to emphasise. It is also important that we consider the proposed measures in their entirety. So, it is not just about enforcement or blocking measures, but it is also about public education and engagement initiatives to raise awareness and emphasise personal responsibility, which is a point which Er Dr Lee Bee Wah has made passionately and I think it is something that we all believe in. Let me now address the exemption regime on which several Members have spoken. Mr Edwin Tong has pointed out that no amount of legislation or enforcement can completely eradicate gambling and there is a need for a controlled outlet as a consequence. On the other hand, Ms Denise Phua and Mr Png Eng Huat opined that the exemption regime puts in the wrong signal and have asked why we are not imposing a complete ban on remote gambling. Sir, we have always adopted a prohibitive stance towards gambling and this has not changed and certainly, this Bill has not changed it. All gambling, regardless of the channel or medium, is not permitted unless authorised, licensed or exempted. Such exemption is not new or unchartered territory for us. I am puzzled when Mr Christopher de Souza says there is a contradiction. Because today in our terrestrial gambling regime, the laws are very clear that this range of activities is illegal but there are exempt service providers in the terrestrial gambling regime under the Common Gaming Houses Act and the Betting Act.”
“The orders can cover virtual currencies though the virtual currency economy is still at a relatively nascent state of development in Singapore. The House may recall that MAS announced in March 2014 its intention to regulate virtual currency intermediaries to address the potential money laundering and terrorist financing risks. So, we will work with MAS and monitor developments closely but the way the legislation is framed, it will cover virtual currencies. I think Mr Tong will also appreciate that payment blocking is quite a serious form of intervention. And that is why we have a higher threshold for the imposition of such orders. But I want to assure Mr Tong that MHA will be quick to act to issue payment transaction blocking orders once it is clear that a website is targeting Singapore. The clause is phrased broadly to allow the authorities to decide which factors are material. So, there is a list of factors. But if you read the clause carefully, it also makes it quite clear that the enforcement officer has the flexibility to decide on which factors are material in evaluating a particular case and assign the weights accordingly. Factors, such as the presence of advertisements and promotions, directed at those in Singapore and the use of Singapore domain names or even the Singapore flag to attract patrons will certainly be taken into account. We will be introducing a comprehensive and restrictive set of measures as part of this proposed remote gambling regulatory regime, perhaps, one of the most restrictive in the world. However, these measures cannot be fool-proof and there is really no silver bullet, as many Members have observed. We cannot have a silver bullet against a particular individual or a remote gambling operator who is determined to circumvent the system.”
“This unit will be working closely with the Police. Mr Png Eng Huat has asked for clarification on the defence of the publication of in-app remote gambling service advertisements by mobile application developers. I was intrigued by Mr Png's argument because on the one hand, he is greatly concerned over the problem of remote gambling; yet, he did not want to douse the entrepreneurial flame of social game developers who may have access or may be facilitating access to remote gambling. So, I think we need to be clear about this. You cannot expect that the developers who derive revenue Page: 104 from such advertisements should be provided with the defence, because it requires the conscious act of clicking on the pop-up or whatever it is in your app, that will then lead to you getting your revenue from that particular remote gambling service. So, if you are getting the revenue, then you must be aware that this is happening. So, I think we have got to be clear about it. The intent here in offering the defence is to ensure that where it is incidental and accidental, such advertisements, such promotions; and that is where the defence applies. For example, if you are broadcasting a soccer match and some of the players are wearing something on their jerseys which promotes a remote gambling service; that is something that is incidental or accidental and that is an appropriate defence. But where you get a clear economic benefit from this activity, then I think surely it is quite self-evident that the individual or the entity must be held accountable. Mr Edwin Tong has sought clarifications on the proposed payment transaction blocking orders and whether they would cover virtual currencies.”