Intentional Public Engagement: Making Public Policy Relevant for The Next Phase of Bicultural Families in Singapore Government- Citizen Relations Paulin Tay Straughan & ISSUE Yeoh Chee Yan Kharina Zainal
Narratives and the The Nature of Public Trust 15 J Institutional Imagination in Government U 6 NE 201 Catherine Fieschi A Conversation with Paul Light 2 / ETHOS is a biannual publication of the Civil Service College, Singapore. It aims to provide thought leadership, insight and context on a wide range of public policy issues of interest to Singapore.
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ISSN: 1793-3773
ETHOS / 1 Contents Issue 15, June 2016
4 Editorial 38 Public Communication and Engagement in China: 7 Intentional Public Engagement: Lessons for Singapore The Next Phase of Tan Li San & Lim Chee Kia Government-Citizen Relations Yeoh Chee Yan 44 The Challenge of Public Communications 13 Engaging Citizens in the Review of James Button’s Speechless: Digital Age A Year in My Father’s Business Cindy Tan By Vernie Oliveiro
22 When the Government 48 Narratives and the Goes Online Institutional Imagination Bertha Henson Catherine Fieschi
29 Communicating to Our 53 Race ... or Erase? Pioneer Generation Ngiam Siew Ying Lai Szu Hao 58 Making Public Policy Relevant for Bicultural Families in Singapore Paulin Tay Straughan & Kharina Zainal
2 / 63 The Nature of Public Trust 82 Uniquely Singapore, Uniquely CPF in Government Heidi Chan, Eng Soon Khai & Laura Lim An Interview with Paul Light 91 Risk-Ready Leadership 69 Survey of Fairness Perceptions in The ETHOS Roundtable with Mr Nikhil Seth, Singapore Public Policy Ms Stephanie Foster and Mr Said Faisal Khanh Do & Sharon Tham
ETHOS / 3 EDITORIAL
f the key constituents of society, the commercial environment, for example, O public sector is the most directly that we can become accustomed to accountable, through the various the latest advancements in global institutions of state and the political communication — including Gmail, process, to the people and the national YouTube, Facebook, Twitter — and now good. Yet by popular reckoning it has find our own time-honoured domestic also been slowest to adapt to the shifting systems perhaps sluggish in comparison. pulse of a modern, diverse polity as Public impatience is not necessarily well as to the emerging technologies bad: it can, for example, spur greater that have enabled sweeping changes in effort and hence higher standards of the marketplace and other spheres. In service, or point to areas that warrant Singapore, this criticism may be less greater attention. At the same time, than fair — bound since the earliest it is the public sector’s accountability years of independence by the necessities that often stays its hand: it must be of nation-building and survival, our more circumspect about due process, people and their government have privacy, security and equity than profit- co-evolved an intimate and intricate, oriented corporations, for instance. Is it mutually reinforcing relationship often reasonable to expect a more educated, described as familial. empowered public, less dependent on On its part, Singapore’s public government direction than in past sector has been at the forefront of decades, to appreciate the constraints laying the groundwork — in terms of under which the public sector must infrastructure, education and other long- operate, and to parley accordingly? As term investments — that has enabled our a young nation, Singapore has yet to citizens to thrive and better determine fully cultivate the social apparatus for their own lives. It has gone about this civil public discourse that many other with characteristic purpose, yet with a developed nations have taken centuries relatively light touch: Singapore’s lively to nurture. Yet as an open society and online culture today testifies to this. globalised economy, we find ourselves It is in part because we have been able in circumstances as complex as those to support a world-class network and faced by any global city, if not more so:
4 / Editorial we must therefore be quick learners, and risk to professional integrity (p. 22). find new ways to relate to each other It may be more useful for the public civilly, productively and meaningfully sector to serve as referee, ensuring fair as a nation. and safe interaction, rather than try to Remarkably for an institution that has determine the flow of discourse, which played such a leading role in national life has grown increasingly kaleidoscopic. for decades, the public sector is taking But engagement should not be firmer steps towards more purposeful confined to the savvier, more assertive engagement and collaboration, seeking cohort of Singaporeans alone: the launch to fold the public into the governance of the Pioneer Generation Package has process in intentional and integrated demonstrated that the public sector is ways that may demand core changes still best placed to convene and scale up in the way it operates (p. 7). There efforts to reach the less well-connected is a tendency for the public sector to but no less valued members of society; it presume it knows best what is in the can also help bring different segments of broad national interest: although it often society together (in this case, different has the clearest grasp of the big picture, generations), in effective yet deeply agreement about the most pressing personal ways (p. 29). A maturing issues, or what is to be done about them, society that becomes more diverse cannot readily be assumed in society and complex can grow more robust, at large. Instead, consensus has to be if its sense of shared destiny can sought and built upon. In this, the tone accommodate these various personal and tenure of interactions will matter stories (p. 48). The challenge is to — McLuhan’s adage, that the medium do so without overgeneralising for is the message, is still worth heeding. administrative convenience: just as the While digital channels have come to Pioneer Generation is not homogenous, the fore in recent years, it still behoves neither are our ethnic communities, government agencies to pay attention families, or households (p. 53 and p. 58). to all points of contact they have with Meaningful participation generates its the public, whether online or offline, own commitment. When individual transactional or deliberative, in routine or citizens feel that their unique needs exceptional circumstances (p. 13). When and aspirations are acknowledged, the goal is to engender goodwill and that they have a place in society, they trust, particularly in realms where the are more likely to feel a stake in the government is not the primary arbiter national wellbeing, and more prepared of behaviour, transparency, humility and to contribute to the common weal. good humour seem appropriate, at little
ETHOS / 5 Other articles in this issue explore the nature of public trust in government — and why Singapore should value the broad respect its institutions enjoy (p. 63), as well as perceptions of fairness in public policy, suggesting that there are many implicit, unspoken assumptions, beyond the measurable indicators, that may influence and inform public opinion, depending on whose view is asked (p. 69). The good news is that our national relations remain strong: the higher expectations placed on our Public Service reflect an underlying confidence in its capability, trustworthiness, impartiality and excellence; for the people of Singapore, ours is a government worth engaging with. This should never be taken for granted.
I wish you an insightful read.
Alvin Pang Editor-in-Chief ETHOS
6 / Editorial Intentional Public Engagement: The Next Phase of Government-Citizen Relations
Public engagement in Singapore should become more purposeful, meaningful and integrated across traditional institutional and sectoral boundaries.
BY Yeoh Chee Yan is Permanent Secretary at the Ministry of Culture, Community and Youth. She chairs the Committee on Citizen Engagement under the PS21 Executive Committee, which provides strategic YEOH CHEE YAN guidance and coordination on whole-of-government engagement issues.
ETHOS / 7 The case for more effective public for public engagement, information on engagement is clear. A government that best practices in public engagement, and has a good relationship with the public is a range of relevant tools. Singapore’s better able to formulate better policies, Civil Service College has also developed deliver better services, and achieve better a Public Engagement Competency Model outcomes for society. Well-designed to guide practitioners’ capability public engagement can help a government development, and has implemented several draw on the knowledge and wisdom of a training courses for public officers. more sophisticated citizenry in order to illuminate complex issues, and involve Towards More Intentional committed citizens constructively in Public Engagement developing and implementing relevant Nonetheless, there are several areas in solutions. Public engagement also nurtures which Singapore’s public sector could common spaces in which citizens get do more to improve its approach to to hear and appreciate the diversity of public engagement. perspectives among themselves. Where First, the relationship between interests align, citizens may themselves policy development and public step forward to contribute towards better engagement processes should be public outcomes, or to help address issues made clear, so that the insights derived within their communities. Effective and from engagement contribute to more sustained public engagement therefore robust policymaking. It is worth noting helps to strengthen relationships and that there is no “one size fits all” model trust, both between the government and for engagement, because each policy the public, and among citizens. The end issue is unique and will have a blend result is a more inclusive Singapore in of hard and soft constraints. The level which people are engaged in service to and amount of involvement the public each other for the common good. has in any policy will invariably depend Given the growing importance on the nature of the issue, the relevant of public engagement to the work of constraints, and the decision-making government, practitioners across the space. These factors will need to be public sector came together in 2012 to considered when selecting engagement form a learning community, termed the approaches, for example, outreach, Public Engagement Network (PEN), to help consultation or co-creation. public agencies level up their capabilities For example, where there are in this area. PEN has developed a hard policy constraints and very Public Engagement Field Guide to provide limited options, a public engagement agencies with an over-arching framework exercise premised on co-creation may
8 / Intentional Public Engagement: The Next Phase of Government-Citizen Relations lead to mismatched expectations and mitigate the impact on segments of the the perception that the engagement public who may be adversely affected exercise is not constructive, or worse, by the policy. disingenuous. A more appropriate The key is to choose the most engagement approach might be to provide appropriate approach that best balances more information on the considerations national objectives with public expectations behind policy decisions, and then to of the policy. When done well, the public
PUBLIC ENGAGEMENT PAST AND PRESENT
ublic engagement has been an important element of the policy development and implementation Pprocess since Singapore’s independence. In the early years of nation-building, the People’s Association was established to engage with citizens on national policies. It helped to explain the rationale behind some of the less popular ones, and demonstrated the Government’s concern for the public. The feedback that was gathered from citizens helped to refine policies and their implementation. As citizens became better educated and informed, they began to express their views on policies that would affect their lives. In 2006, the Feedback Unit was restructured as REACH or “Reaching Everyone for Active Citizenry @ Home”, signalling the Government’s shift from gathering feedback to actively engaging and connecting with citizens. Public agencies began to actively consult the public to better understand different points of view before making policy changes. More recently, efforts have been made to engage wider segments of the population in more diverse areas of policy as well as national issues. Our Singapore Conversation in 2013 saw citizens from all walks of life coming together to discuss their collective aspirations for the future; these have continued in the more recent SGfuture engagements. The launch of the recent Pioneer Generation Package was accompanied with a high-touch outreach initiative, with citizen volunteers helping the elderly pioneers in their community to better understand the new policy and its benefits (see also “Communicating to Our Pioneer Generation” on page 29).
NOTE
1. The Pioneer Generation Package was launched in 2014 to recognise and honour the contributions of Singapore’s pioneer generation towards nation-building. It provides them with several forms of healthcare support.
ETHOS / 9 will have a better appreciation of the will help policymakers connect with considerations and trade-offs behind citizens better, and develop a more the policy issue, and genuinely feel that comprehensive understanding of their the engagement process was authentic diverse needs. and led to better outcomes. Third, all agencies should Second, public agencies could strengthen internal capacity and collaborate better on public engagement capability for co-creation and co- efforts, which are often not as wide delivery with citizens. While PEN or deep as they could be. Agencies has helped level up public engagement typically engage stakeholders around expertise across the public service, their specific policies and programmes, the expertise and experience among rather than from the citizens’ perspective. agencies remain uneven. Agencies But the issues that citizens grapple will need to invest more resources to with are not always neatly organised strengthen their own capabilities to by agency policy domains; often, their engage with the public effectively. While needs cut across agency mandates and past engagement efforts have typically boundaries. In tandem, government focused more on citizens as customers policies have grown increasingly of our policies or services, the next complex and often require significant stage of engagement will seek greater inter-agency collaboration at the policy participation from citizen as partners, with level (e.g., Medishield Life, CPF). a shared responsibility to co-develop and co-deliver solutions. Singapore’s public sector will therefore have to intensify Public agencies could collaborate capability development efforts across better on public engagement all agencies in consensus building, efforts, which are often not as wide co-creation, stakeholder relationship management and volunteer management. or deep as they could be. Positive Steps Forward The way the Government engages The Government has taken steps to the public must similarly take on a address these areas. While public collaborative approach: rather than engagement, policy development, public adopting a reductionist approach, we communications and service delivery are should create opportunities for agencies intimately linked and inter-dependent, to engage the public on broad cross- in practice, within and across agencies, cutting issues, organised from the the process of integration can be uneven citizens’ point of view instead of through at times. While these are distinct areas an institutional lens. This approach of expertise, and typically reside in
10 / Intentional Public Engagement: The Next Phase of Government-Citizen Relations While past engagement efforts have typically focused more on citizens as customers of our policies or services, the next stage of engagement will seek greater participation from citizen as partners. Singapore’s public sector will have to intensify capability development efforts across all agencies in consensus building, co- creation, stakeholder relationship management and volunteer management. separate units, their work has to be for collaboration. The Committee on tightly integrated. Citizen Engagement (CCE) under the In the last two years, the Public PS21 Executive Committee will provide Service has made good progress in strategic guidance and coordination on integrating public engagement with Whole-of-Government engagement public communications, but we must issues. It will work with agencies across not stop there. Instead, we must work government to build the spectrum of on developing the appropriate inter- capabilities needed to involve citizens agency processes and structures that meaningfully in dialogue, co-creation will support an integrated approach that and co-delivery. The CCE will also help brings together public engagement, public agencies embed public engagement in communications, policy development and their priorities, workplans and processes, delivery. This will facilitate the effective and depending on their context and formulation and implementation of needs, include public engagement at policies that meet and address the needs various points of the policy cycle. This of Singapore and Singaporeans. Clear will include increasing meaningful and and intentional public engagement and sustainable opportunities for citizen communications on issues of importance participation in the public sector. to the public should be regarded as critical elements of the policy process. Clear and intentional public To this end, Singapore’s public sector has started investing in stronger engagement and communications coordinating structures and processes on issues of importance to the for public engagement that will bridge inter-agency gaps, and identify public should be regarded as critical emerging areas and opportunities elements of the policy process.
ETHOS / 11 Public engagement will only succeed if delivery, and intentionally weave these elements together. Public engagement public officers are sincere, have a good practitioners and middle management understanding of citizens’ concerns and in agencies should reach out to their counterparts across the Public Service are able to connect with empathy. to seek better overall policy outcomes Public engagement is core to the for their agencies. Most critically, work of Singapore’s public sector, public engagement will only succeed if and we need to sustain our efforts public officers are sincere, have a good over the long term, across all our understanding of citizens’ concerns and agencies. Senior leaders in government are able to connect with empathy. Our and leaders at all levels must have a aim is to work in partnership with our deep understanding of the interplay citizens to build a more resilient and between public engagement, public cohesive society. communications, policy development and
12 / Intentional Public Engagement: The Next Phase of Government-Citizen Relations Engaging Citizens in the Digital Age
As public engagement grows online, the Public Service will need a strong social media policy that integrates both online and offline strategies as well as mindset and role shifts in service delivery to truly reap the benefits of social media.
BY Cindy Tan is Senior Researcher at the Institute of Governance and Policy, Civil Service College. CINDY TAN
ETHOS / 13 Engaging Citizens: A Priority for engagement was to get the word out to the Public Service citizens from all walks of life in order to Public engagement is not new to the help them understand the key messages Singapore government. With a vision and rationale behind public policies. One to be “One Trusted Public Service of the Government’s initial campaigns, with Citizens at the Centre”, our public “Keep Singapore Clean”, saw posters and agencies are continually monitoring and banners in English, Malay, Mandarin making sense of ground sentiments in and Tamil — Singapore’s four official the process of policy development and languages — displayed in public places. service delivery. The Public Service Other forms of communication included does not work in isolation, even though leaflets, pamphlets, car-bumper stickers, it is not always easy to get the whole stick-up strips, postal items and cinema public — including private individuals, tickets with stamps of the campaign businesses and civic groups — to fully slogan as well as public education appreciate all the considerations and talks and lectures.2 Subsequently, trade-offs involved in policymaking. other campaigns such as the “National Nevertheless, effective public engagement Courtesy”, “Speak Mandarin” and “Stop results in better policies and services at Two” were launched using a mixture that take into account the needs of of these mediums to communicate citizens in different circumstances. It can government policies. also increase mutual trust and shared As Singapore developed and the public ownership of policy outcomes, as more became more educated and outspoken, public issues become multi-dimensional communication platforms were set up for and cut across traditional agency, citizen voices to be heard. For example, demographic or sectoral boundaries. the Feedback Unit was set up in 1985 to explain policies and assess sentiments Platforms to Engage the Public on public issues through face-to-face Over the Years platforms such as dialogues, tea sessions In the early years of Singapore’s and conferences. In September 2000, independence, the priority in government the Speakers’ Corner at the Hong Lim
We must be close to the ground, listening to feedback, sensing the deeper concerns that often underlie that feedback, and spotting the gaps in policy delivery that should not be there.
Deputy Prime Minister Tharman Shanmugaratnam1
14 / Engaging Citizens in the Digital Age ENGAGING THE NATION: OUR SINGAPORE CONVERSATION
n August 2012, Prime Minister Lee Hsien Loong announced the need for “Our Singapore IConversation” (OSC) to engage Singaporeans on our desired future for the country. Open- ended group conversations and discussions were held to generate ideas on the public’s aspirations while the Ministries held thematic dialogues on housing, education, healthcare and jobs. Community groups also organised ground-up dialogues, including some in places such as food centres and schools to broaden the reach of the effort. A face-to-face OSC survey was conducted in four official languages. The OSC website, Facebook page and YouTube channel were also used to encourage the public to share their views online. By mid-2013, these diverse engagement platforms had yielded inputs from over 660,000 Singaporeans, contributing to key policy recommendations in housing, healthcare and education.1
NOTE
1. Melissa Khoo and Yee Lai Fong, “Redefining Engagement: Lessons for the Public Service from Our Singapore Conversation”, Ethos issue 13, June 2014: 7–17.
Park was made available for citizens to Effective public engagement can also give public speeches without having to obtain a Public Entertainment Licence. increase mutual trust and shared Subsequently in 2008, restrictions were ownership of policy outcomes. further eased to allow demonstrations by citizens to be held without a police broadband population penetration rates permit.3 This reflected the Government’s had reached 148% and 184% respectively, receptivity to more diverse platforms based on the total number of subscriptions for citizen views.4 versus total population.5 Each Singapore adult owned an average of 3.3 connected The New Digital Imperative devices. Laptop and desktop computer With the advent of fast, ubiquitous internet users spent 4.7 hours and mobile device access and a broad range of digital users spent 2.3 hours on the internet each platforms, more Singaporeans began day.6 Today, the internet has become an to go online to express their views on important channel for communication public issues. In 2014, it was estimated and engagement that no government that mobile population and wireless can afford to ignore.
ETHOS / 15 The rise of social media platforms,7 2006, the Feedback Unit was restructured such as Facebook, Twitter, Instagram, as “Reaching Everyone for Active Citizenry YouTube, Tumblr and WordPress, has @ Home” (REACH), and tasked with attracted large numbers of users to share facilitating communication between content with each other, particularly a Singaporeans and the Government new generation of digital natives who through a variety of electronic channels. have grown up with the internet.8 Social REACH expanded its social media media platforms are also more likely to platforms to include interactive discussion appeal to the Generation Y who grew forums, Facebook, Twitter and Instagram; up with the internet. For example, an by 2014, it had received 27,140 pieces Institute of Policy Studies Survey9 in of online feedback, more than double 2010 revealed that Singaporeans aged of that received in 2009.10 21 to 39 years old read more about The Public Service has also shifted politics on the internet, and trusted its overall digital strategy from a the internet as a source of political “government-to-you” approach to a news slightly more than older people. “government-with-you” approach — They also tended to participate more in a move supported by the Infocomm online political activities such as taking Development Authority of Singapore part in online political forums. Thus, (IDA)’s eGov2015 Masterplan.11 Among as the Government seeks to interest the key thrusts of this transition towards Singaporeans in public issues, social media a more collaborative government is to provides tremendous opportunities to better connect citizens in ways that extend the reach of engagement efforts, would allow the views and resources as well as to receive near-instantaneous of citizens to be actively harnessed to feedback on its policies and services — improve policy outcomes. By the second that is, if public agencies are prepared half of 2016, two new agencies — the for digital engagement. Info-communications Media Development Authority of Singapore (IMDA) and the Government Technology Organisation The Public Service has shifted its (GTO) — will be established to further overall digital strategy from a digital transformation efforts and “government-to-you” approach to a encourage the participation of citizens in the co-creation of public digital services.12 “government-with-you” approach. Successful Digital Several public sector-wide Public Engagement developments have arisen to support While these whole-of-government digital engagement efforts. In October efforts take root, individual agencies
16 / Engaging Citizens in the Digital Age have a vital part to play in ensuring the other, depending on the context, to success of digital citizen engagement broaden the agency’s engagement efforts. A number of elements are vital reach. There should also be clear to this effort: guidelines on when and how online incidents should be escalated, and a. A robust social media policy how public comments should be Besides taking steps to make websites moderated, especially if they remain more mobile-friendly to reflect the anonymous, in line with each public’s changing usage patterns, agency’s code of conduct (also see agencies need to decide which social box story on “Creating a Suitable media platforms they will adopt and Online Persona”). the purposes they fulfil. A robust social media infrastructure includes b. A proactive and citizen-centric mindset clear guidelines on how the use of in every public officer social media platforms fits into Public agencies should be proactive in the agency’s overall engagement public engagement. A citizen-centric strategy. For example, the plan mindset ought to be ingrained in should lay out how physical and every organisation and every public digital platforms complement each officer, whether they are involved
CREATING A SUITABLE ONLINE PERSONA
he Singapore Civil Defence Force (SCDF) was recently lauded in The Straits Times for its Tcreative posts that won Facebook fans. The agency had decided on a social media persona that would be witty, funny, informative, conversational, non-condescending in tone and extremely knowledgeable about life-saving techniques. SCDF’s social media officers kept to this persona when engaging the public and updated SCDF’s Facebook with interesting photos of officers on life-saving missions. The agency also advised its officers to treat the agency’s Facebook as their own and honour what they post.1
NOTE
1. “SCDF Wins Fans with Its Social Media Persona”, The Straits Times, 14 February 2016, accessed 1 March 2015, http:// www.straitstimes.com/singapore/scdf-wins-fans-with-its-social-media-persona.
ETHOS / 17 GOVERNMENT-CITIZEN COLLABORATION USING SOCIAL PLATFORMS
OneService (http://www.mnd.gov.sg/mso/mobile-about.htm) Jointly developed by the Municipal Services Office (MSO) and IDA, this award-winning mobile application gathers location-based public feedback on a variety of municipal issues (e.g., cleanliness, footpaths, animals in public places). Its map-based photo geo-tagging features help agencies to respond to and resolve issues quickly. Reported cases are also routed automatically to the appropriate public agencies for follow up.
Beeline (www.beeline.sg) This LTA/IDA-developed mobile application helps commuters travelling to their workplaces. Through Beeline, the public can suggest bus services for specific locations — popular routes with sufficient crowd-sourced demand will trigger private bus operators to run these routes for a paid fare. Beeline also helps commuters pre-book a seat on the minibuses, which serve routes of about five stops in length.
A robust social media infrastructure c. Cultivate long-term relationships with citizens includes clear guidelines on how the use For public engagement to be of social media platforms fits into the effective, time and effort need to agency’s overall engagement strategy. be invested to build a relationship between government and citizens Physical and digital platforms should on a long-term basis; it is not a complement each other, depending on matter of engaging the public only when a crisis happens. In the digital the context, to broaden the agency’s age, building rapport and trust engagement reach. with netizens become even more important because online chatter in policy development or service can blow up issues or change public delivery. To this end, many agencies perceptions of policies overnight — are already working to resolve with consequences that spill over day-to-day issues together with beyond the online realm. If trust and citizens, using digital platforms that goodwill have been built up over time are based heavily on public input. however, matters are less likely to get out of control when something
18 / Engaging Citizens in the Digital Age negative happens. In addition, Zealand (ANZ) Banking Group it becomes easier to encourage have developed a goMoney mobile active, constructive participation application, backed by analytics to in consultation or collaboration receive insights on how to better efforts, if public agencies have a streamline consumer experiences strong and deep relationship with based on online banking behaviours.14 the public. Leading by example, In the government sector, social media Prime Minister Lee Hsien Loong analytics could offer insights to spot has had four successful years of important emerging patterns and engaging with the public through needs. Available data will have to be his regularly updated Facebook page, integrated and analysed intelligently, which is followed by some 1 million both within and across individual netizens.13 Many have thanked him agencies, in order to enable whole- for his sincere sharing, and for of-government decision-making that helping them to better understand can better serve the public. public policies. e. Work more efficiently to respond d. Ensure public officers are ready for promptly to digital feedback new roles in digital engagement While digital platforms can help to Engaging the public through social connect the Government to citizens media platforms will also demand on a 24-7 basis, public officers may new roles and competencies. Besides not be able to respond to feedback being digital media savvy, social media and suggestions, nor reciprocate analytics will become increasingly with solutions, quite as readily, important. The private sector has since some matters have deeper a head start in analysing customer policy implications that need to data from social media to enhance be deliberated. At the same time, its product and service offerings. the speed at which misinformation For example, the Australia and New can spread through social media
Public engagement is an ongoing intentional process for the government that aims to build relationships and, together with the public, produce better policies, services and outcomes for society.
“Public Engagement 101, Defining the Public Engagement Framework”, PS21 Office, Public Service Division
ETHOS / 19 SETTING THE RECORD STRAIGHT ONLINE
n September 2015, there were online rumours that the Government conducted cloud seeding I operations to reduce the impact of haze for the Formula 1 race. The claims circulating on various online platforms also implied that the rain was harmful and urged people to avoid the chemically induced rain showers. Fortunately, the National Environment Agency was able to quickly debunk the misinformation.1
NOTE
1. “NEA Debunks Online Rumours That Recent Rain Was Caused by Cloud Seeding to Clear Haze”, The Straits Times, 17 September 2015, accessed 4 February 2016, http://www.straitstimes.com/singapore/nea-debunks-online-rumours- that-recent-rain-was-caused-by-cloud-seeding-to-clear-haze.
For public engagement to be effective, Conclusion The digital era has transformed the time and effort need to be invested landscape for public engagement across to build a relationship between all sectors. It presents many opportunities for the Government to better engage government and citizens on a long-term the public. However, digital forms of basis; it is not a matter of engaging the engagement need to be integrated with public only when a crisis happens. physical platforms, and judiciously managed in order to be inclusive and platforms is such that agencies fulfil all the various objectives of public can be caught off guard, with little engagement and communication. Besides time to put together an appropriate whole-of-government efforts, the Public and informed response. Public Service must help individual agencies agencies must be alert to monitor and officers to cultivate a citizen centric online chatter at all times, and be mindset, develop the desired capabilities prepared to work more efficiently and improve service standards for and respond to netizens more the new digital arena, so as to tap on quickly, while still ensuring that the the possibilities of social media as it information they provide is accurate continues to evolve. and appropriately communicated.
20 / Engaging Citizens in the Digital Age NOTES
1. Speech delivered at the Annual Public 8. Generation Y were born between 1980 and Service Leadership Dinner, 27 October 2000. More information from http://www. 2015, accessed 4 February 2016, http:// straitstimes.com/lifestyle/what-makes-gen-y- www.psd.gov.sg/press-room/speeches/ tick. speech-by-mr-tharman-shanmugaratnam- -deputy-prime-minister-and-coordinating- 9. Tan Tarn How, Chung Siyoung and Zhang minister-for-economic-and-social-policies-- Weiyu, “Survey on Political Traits and Media at-the-public-service-leadership-dinner-1. Use. Singapore Youth: Different, but not that different” (Singapore: Institute of Policy 2. National Library Board, “Keep Singapore Studies, 2012), accessed 4 February 2016, Clean Campaign”, accessed 4 February 2016, http://lkyspp.nus.edu.sg/ips/wp-content/ http://eresources.nlb.gov.sg/infopedia/articles/ uploads/sites/2/2013/07/Media-Survey- SIP_1160_2008-12-05.html. Summary_230511.pdf.
3. Cheryl Sim, “Speakers’ Corner”, NLB 10. “Welcome address at Reach Contributors’ Infopedia, accessed 19 February 2016, http:// Forum 2015”, REACH, 3 August 2015, eresources.nlb.gov.sg/infopedia/articles/ accessed 4 February 2016, https://www.reach. SIP_515_2005-01-25.html. gov.sg/read/news-and-press-releases.
4. Recent notable events held at Hong Lim Park 11. Infocomm Development Authority of Singapore, include protest against the Population White “E-Government Masterplan 2011-2015 Paper that drew more than 4,000 people Collaborative Government”, accessed February in February 2013 and the CPF protest that 4, 2016, http://www.egov.gov.sg/egov- attracted 3,000 attendees in September masterplans/egov-2015/vision-strategic-thrusts 2014. These protests helped to flag particular ;jsessionid=E1902C4184A8A5D13A7C73B79 perspectives on issues close to citizens’ hearts. D7D480D.
5. Ministry of Social and Family Development, 12. Ministry of Communications and Information, “Singapore Social Statistics in Brief 2015”, “Infocomm Media”, 18 January 2016, accessed 19 February 2016, http://app.msf. accessed 4 February 2016, http://www.mci. gov.sg/Research-Room/Research-Statistics/ gov.sg/web/corp/press-room/categories/ Singapore-Social-Statistics-In-Brief. press-releases/content/formation-of-infocomm- media-development-authority-and-government- 6. Simon Kemp, “Digital, Social & Mobile technology-organisation. in 2015”, accessed 4 February 2016, http://wearesocial.sg/blog/2015/01/ 13. As of May 2016. digital-social-mobile-2015. 14. Erika Maguire, “6 Strategies to Drive Customer 7. http://www.oxforddictionaries.com/definition/ Engagement in 2015”, 29 January 2015, english/social-media accessed June 20, 2016, http://www.forbes. com/sites/forbesinsights/2015/01/29/6- strategies-to-drive-customer-engagement- in-2015/.
ETHOS / 21 OPINION
When the Government Goes Online
A veteran journalist and editor believes the government should rethink its strategy for communication and engaging online.
BY Bertha Henson was formerly Associate Editor of The Straits Times and worked as a journalist in Singapore Press Holdings for 26 years. During her career, she launched several news magazines, including the BERTHA HENSON global award-winning IN and Little Red Dot for schools, as well as the now defunct Project Eyeball. She now runs her own media training company for government agencies and corporations. She teaches a seminar course on Quality Journalism at Tembusu College, National University of Singapore and is co- founder and consulting editor of The Middle Ground, a news website.
There are two worlds in Singapore. the Government is uncomfortable, even The Singapore government is inept, in navigating. The public sector familiar with one world, in which the has a much smaller voice here, drowned media consists of broadcast and print out by a cacophony of different views. platforms. This is the world in which the Conventional forms of influence do not Government remains the biggest voice work as well in a sphere over which in Singapore because of the symbiotic government has much less direct leverage, relationship between the public sector partly because of the multiple players and traditional media. In this realm, involved, both internal and external. institutional control over information The Government’s commitment to and the management of opinion have maintain a “light touch’’ in this arena been honed to a fine art over the years. makes it even harder to exert any fine But this world is shrinking, albeit at a control over this world. slower pace than some observers like The Government has been Bill Gates had envisaged. employing all the social media tools The other world includes the at its disposal to engage those who internet, that ephemeral medium which are more active online than offline. It is inhabited by anybody who has online has made official information easily access. This is an unfettered world that available and has developed a myriad
22 / When the Government Goes Online of ways to make public services more its fans online are silent bystanders, accessible. What the Government is less while its detractors are vocal. This good at is knowing how to “talk’’ to is the nature of the beast and not people online and persuading them to likely to change anytime soon. its point of view. While technologically The best thing the Government flexible and efficient in disseminating can do is to keep the broad middle information, it does so in the same voice ground from being affected by that it applies to the traditional media extreme adverse views, even while realm and with the same expectations conceding that there might be some and assumptions. It forgets that there truth in dissent. tend to be more cynical people online than offline. c. Missed — and mixed — messages. Important messages may be lost or go Hard Truths about the Online Realm awry if a particular “point of interest’’ If the Government wants to do a better takes centre stage, distracting from job of “engaging’’ people online, it has to the core issues. Worse, they may be come to grips with a few realities online: misinterpreted and amplified. This means the Government has to react a. It does not have an effective middleman quickly because it takes just a few on the internet. minutes for something to go viral. One of the advantages of a filter such This is in contrast to dealing with as traditional media is that it makes traditional media, where there is official information manageable time to negotiate or formulate an and easy to understand. Journalists appropriate response. are experts at telling stories attractively. Governments are not. A d. Communications work different online. journalist or editor can help blunt a What and how the Government hectoring tone, add context to make communicates online must be different information easier to understand, or from what it does offline. While the soften gaffes. To put it bluntly, the traditional media can be relied on, in professional news media can help the main, for appropriate outcomes protect a government from its own to government-related news, this communications blunders. There is simply cannot be guaranteed on no such mechanism on the internet. the internet. Even traditional media has realised that it cannot use the b. It lacks a large and vocal online fan base. online medium as a duplicate of its The Government has to acknowledge original print or broadcast content. that when it comes to policy issues, Instead, they have developed a dual
ETHOS / 23 approach to news, in the way news agencies such as the Law and Finance content is curated and prioritised ministries, for example, should avoid online versus offline. The mainstream being too free with its public comments media has tried to appeal to online and should stay above the fray. On the readers by catering to their preference other hand, an effective social media for bite-sized news, controversy, presence is more important for people- colour stories, as well as providing centric agencies such as the Ministry of platforms for comment. They know Education, the Ministry of Manpower, this is a different crowd. or the Housing and Development Board, which have a stronger public-facing mandate and have to demonstrate What the Government is less good at is empathy for the common man. knowing how to “talk” to people online Public Agencies and Social Media and persuading them to its point of view. — Points to Consider While technologically flexible and efficient Several key questions should form the basis of any government agency’s social in disseminating information, it does so media policy: in the same voice that it applies to the traditional media realm and with the a. If the key objective is to provide information, then social media same expectations and assumptions. which directs people to appropriate information on the agency website The Singapore public sector’s use should suffice. of the internet generally suggests a confusion of aims. What are the key online b. If the key aim is engagement, be objectives of the various agencies? Other clear about the image the agency than providing an online “information wants to project, because this will dump”, do the agencies want to be “liked’’ decide the tone of communications. by the public, or seen as authoritative? Other considerations include: Is it a pro-active or a reactive approach to engagement? Are there attempts to • Where this engagement should nurture friendly community relations? take place. Generally, agencies With which segments of the public? should engage only on home Social media cannot do everything territory (e.g., their own website — nor is it good for every agency to or Facebook page) where control cultivate an “engaging” image. Technical is direct.
24 / When the Government Goes Online CULTIVATING THE RIGHT IMAGE ONLINE
he Singapore Civil Defence Force, with its approachable, light-hearted social media Tpresence, seems to understand that its Facebook page is like a person, with a personality that it wants to brand. However, while humour is usually appealing to the online community, it may not always be the image that public agencies want for themselves. One suggestion: Agencies that deal with the public in a big way may want to focus on using its social media to offer user-friendly help or guides. These need not only be about new programmes. The online crowd has a short memory and old news may be passed off as new, wittingly or unwittingly. For example, changes to PSLE grading made the rounds recently despite it being old news — the Ministry of Education could have intervened online. There is a quick way for agencies to do this: they could modify their Frequently Asked Questions online to address the public’s trending interest in these old questions or policies. More technical agencies that deal with economics or the law could use social media to answer questions by reprising what has already been said by their principals and leaders.
• What issues should NOT be respond to an issue online, or discussed at all because putting offline, or both? Again, the two a foot wrong would have far- worlds are quite distinct. reaching consequences. c. If the agency considers engagement • Who to engage, because there an important part of policy, then are always some people who attention must be paid to the qualities are best ignored. of people in its social media team and the level of empowerment • When to engage or respond to they enjoy. comments, which also involves determining the acceptable level Reaching Out of tolerance. Government agencies usually depend on the mainstream media to broadcast official • How to engage. For example, news and information online while they would the agency want to themselves direct the online community
ETHOS / 25 BUILDING A COMMUNITY ONLINE
he Singapore Armed Forces may be the public agency with the best online traction. One Treason is that it appears to have a diverse range of commentators and authentic interaction on its Facebook page. There are different ways to cultivate feedback and discussion. For example, the National Environment Agency could host an active page for animal lovers; the Urban Redevelopment Authority could start one for those who believe in preserving heritage. Agencies could also offer an official point person for informal public groups to turn to for queries or background information.
to the original material. In the haste to and then respond to them quickly. upload fresh information online, it is They should not wait for something common for the media to make mistakes. to go viral and for the news media This should be corrected as quickly as to pick it up before coming forward possible before it reaches too many people. with a response. In fact, such pro- Because traditional media can be reluctant active engagement, especially when to publicise errors online, agencies should individuals complain of day-to-day consider telling their readers that the dealings with agencies, should be a earlier draft was incorrect, especially if matter of course — it goes a long the mistake was grievous. way for branding, and is already Here are three suggestions: the practice in the private sector.
a. Reiterate your own key messages c. Get to know your community voices Instead of re-directing people, in person agencies might want to consider Consider calling for periodic offline putting up three key points of its engagements (e.g., focus groups or tea message on its own social media sessions) with those who comment platforms before pointing readers to on agencies’ areas of interest. There the fuller mainstream media stories. are informal interest or lobby groups online which can make good partners b. Engage proactively, not reactively in this regard. These individuals will Agencies, especially those on the include detractors that the Government public frontline, might also want will never be able to win over. More to go into specific online groups often, however, they would be happy to sense public queries or concerns to be engaged in further dialogue.
26 / When the Government Goes Online Managing Online Opinion A better strategy might be for the It is clear to everyone that the internet Government to re-calibrate its attitude is a powerful tool which can influence towards online citizens and online views: opinion on issues. But the online world does not work with offline rules, not even a. Be as transparent with information rules of sub judice. Major players might as possible. It is easier to rebut with do the responsible thing but it cannot be additional information instead of mere said to be the same for individuals and assertions and assurances. Where online communities who do not even there is an information vacuum, know the rules. The suicide of 14-year someone will fill it, sometimes Benjamin Lim is a recent case in point. with garbage. It is true that too Despite more than 20 articles and a much information is indigestible, huge online uproar that spilled offline, but it has to be available to those the official decision was to stay quiet, who want the details and to give ostensibly because a coroner’s inquiry the Government a fair shake. It is will be taking place. The Government more helpful to public institutions may have done better to respond to if outsiders reiterate their point of misinformation quickly rather than view or make counterarguments hope for the issue to die down — which on their behalf. it did not. Media regulations and laws should b. Always acknowledge different be applied sparingly to issues that arise views rather than castigate those in the online realm, as they can often who hold them as “keyboard backfire, leading to accusations that warriors”. Being specific about the Government is being heavy-handed the target of a rebuttal is far more without doing much lasting good. The suspension of the website The Real Singapore1 has only led to the setting The online world does not work with up of similar clones. The attempt to use harassment laws on The Online Citizen offline rules. Media regulations and backfired when the courts ruled that laws should be applied sparingly to such protection from harassment is issues that arise in the online realm, intended for individuals and not entities, in much the same way as entities cannot as they can often backfire, leading to sue for libel.2 accusations that the Government is Some agencies have commissioned outside agencies to “seed” messages or being heavy-handed without doing to rebut information and opinion online. much lasting good.
ETHOS / 27 politic than tarring everyone with of a junior minister reclining on a the same brush, which turns off even bed in a foreign worker dormitory). those who support the Government’s More importantly, the team should point of view. be empowered to post online without having to refer every post up the hierarchy for vetting, on as wide a Throwing weight or pulling rank range of relevant issues as possible. does not work on the internet. The Government will have to The Government cannot control get used to the intolerant, irreverent internet chatter, it can only hope attitude on the internet where conspiracy theories, baseless accusations, sweeping to be part of it. generalisations and cheap shots are rife. They have always been present — c. Have a savvy social media team technology has merely brought them with members who are good with out into the open. Throwing weight language, possess a healthy sense or pulling rank does not work on the of humour and are in touch with internet. The Government cannot internet culture. It will help agencies control internet chatter, it can only avoid public relations gaffes (such as hope to be part of it. a recent misleading picture caption
NOTES
1. “Socio-political Site The Real Singapore 2. “Government Cannot Invoke Harassment Taken Down after MDA Suspends Editors’ Act to Make Website Remove Statements Licence”, The Straits Times, 3 May 2015, on Mindef: High Court”, The Straits http://www.straitstimes.com/singapore/ Times, 9 December 2015, http://www. socio-political-site-the-real-singapore-taken- straitstimes.com/singapore/courts-crime/ down-after-mda-suspends-editors-licence. government-cannot-invoke-harassment-act- to-make-website-remove-statements-on.
28 / When the Government Goes Online Communicating to Our Pioneer Generation
The launch of the Pioneer Generation Package demonstrated new ways to understand, inform, engage and serve Singaporeans on the ground.
BY Lai Szu Hao is Lead Researcher at the Institute of Governance and Policy, Civil Service College. LAI SZU HAO His research interests are in government communications and public sector governance.
ETHOS / 29 Looking after Our Founding effectively explain the benefits would Generation be critical to the programme’s objective Singapore’s sweeping $8 billion Pioneer of alleviating long-standing concerns Generation Package (PGP),1 announced about the cost of healthcare and to in early 2014, represents a ground- provide peace of mind. breaking public initiative to honour a generation — some 450,000 citizens Communication Objectives In aged 65 or older2 — that had built up Sync with Policy Goals the nation in its earliest years, and to While the PGP is comprehensive, it is provide for their healthcare needs in also complex in design, affecting different their senior years. Since consultations individuals differently depending on and dialogues3 had highlighted clearly their individual circumstances. This that the cost of healthcare was the made communication a challenge: prime concern of older Singaporeans not only did overall publicity about and their families,4 the Government the PGP need to be simplified, but recognised that senior citizens should there was also a need to customise the be informed about the package so communication to specific audiences. that they can benefit fully from it. Many Singaporeans already found It also saw that this would require a the existing healthcare financing and comprehensive communication effort assistance schemes hard to understand.5 beyond the usual media and publicity The PGP involves multiple tiers of channels. Singaporeans in the ‘65 and subsidy that depend on the complexity older’ age group have varying levels of the presenting disease and whether of education and literacy, and many of it would be covered by other existing them do not access news media regularly. schemes. Such intricacies are not only Given the intricate PGP framework, it difficult to explain but are also dependent might be difficult for some seniors to on individual contexts. absorb all the relevant policy details In communicating the PGP, it was that might apply to them. Reaching out imperative to ensure that the key messages to the pioneers and their caregivers to were structured and simple to understand, yet meaningful enough to resonate with the different target groups, in order to While the PGP is comprehensive, it is also provide assurance that healthcare costs complex in design, affecting different would become more affordable. To achieve this, the strategy for communicating the individuals differently depending on PGP incorporated several elements that their individual circumstances. were rolled out in stages.
30 / Communicating to Our Pioneer Generation Understand the pioneer generation expressing appreciation and respect in more deeply a personal way, which would not have At the early stage of implementing the been conveyed by conventional mailers. PGP, there was a need to understand how the pioneers felt about the package. Raise awareness and offer assurance Research was conducted to better The Ministry of Communications and understand the target audience and to test Information (MCI), which spearheaded effectiveness of different communication above-the-line publicity efforts, realised strategies, as well as aid in the design it could be counter-productive to detail of publicity materials. For instance, it the complex financial technicalities of the was found that the elderly preferred to PGP from the outset. As such, it decided receive something tangible — this led to introduce the subject to pioneers to the Ministry of Health developing a with the message that the Government Pioneer Generation Welcome Package, cares and will help them to lower their presented in the form of a gift pack healthcare costs. The initial phase of with a “Thank You” note penned by the communication campaign (from Prime Minister Lee Hsien Loong. the PGP’s announcement to just before This reinforced the PGP’s intention of its benefits were implemented) focused
We care and will help you lower your healthcare costs
Key Messages
Lower outpatient bills Lifelong protection when you see the doctor More Medisave funds against large hospital at polyclinics, SOCs, and and uses to reduce bills with MediShield Life CHAS clinics cash payments
Values: Honour and Care, Compassion, Assurance, Data-driven, Real Stories
Figure 1. Message Map for the Pioneer Generation Package (Source: Ministry of Communications and Information)
ETHOS / 31 not just on thanking and honouring As different publicity initiatives pioneers for their past contributions, were rolled out, the pioneers’ levels of but also on raising basic awareness of awareness and assurance were monitored the package and its assurances about to make sure the communication was reducing healthcare expenses. To this end, having its desired effect. Based on a the tagline “More help in healthcare, survey of pioneers conducted by the less worries for life” was created. Ministry of Finance (MOF), awareness Although this tagline did not appear on of PGP rose significantly from 65% to all publicity collaterals, it set the basic 95% from July to September 2014 (see tone and guided the development of Figure 2). Another survey conducted content across various media platforms by MCI during the same period also (see Figure 1 on page 31). indicated that the majority of pioneers felt
Is PG Aware of PGP?
PGP World Cup (English) TV Ads Timeline PGP Dialect Opera Belt
PGP Coffee shop (Malay) PGP the Musical & Repair shop (Tamil) (Mandarin) PGP English Song Teaser 35% 32% 25% 24% 17% 9% 12% 9% 5%
65% 68% 75% 76% 83% 91% 88% 91% 95%
Yes No Week 2 Week 3 Week 4 Week 1 Week 2 Week 3 Week 4 Week 1 Week 2 of Jul of Jul of Jul of Aug of Aug of Aug of Aug of Sep of Sep
Figure 2. Ministry of Finance’s Pioneer Generation Baseline Survey, July to September 2014 (Source: Ministry of Finance)
32 / Communicating to Our Pioneer Generation assured and recognised, and perceived pioneers, volunteer resource management that the Government was sincere in its and, more importantly, building social effort to honour them. capital through volunteerism.
Cultivate trust with a personal touch Innovations in Public In August 2014, the Pioneer Generation Communication Office (PGO)6 was established to lead For any public communication campaign personalised, last-mile communication to be effective, stakeholders’ understanding and outreach. They were tasked of the key issues has to be assessed, so to engage individual pioneers and that appropriate follow-up strategies help them to understand the PGP’s can be formulated to better explain the complex benefits. Using data analytics, policies at hand. This is especially vital Pioneer Generation Ambassadors for target audiences such as the pioneers, (PGAs) were judiciously deployed who are harder to reach for a variety to visit pioneer households, armed of reasons, including age, literacy and with essential information such as health factors. Furthermore, the pioneer each pioneer’s name, address, age and generation is not a homogenous group: spoken language. PGAs were matched communication cannot adopt a one-size- to pioneers based on the language fits-all approach. Consequently, the spoken, and deployed first to precincts level of customised content produced with a higher concentration of pioneers by public agencies to communicate with greater intervention needs. It was PGP was unprecedented. This ranged not uncommon, in the course of these from modifying the language of the house visits, for pioneers to open up to advertisements to tweaking content to PGAs about a wide variety of issues of suit each target subgroup. For instance, concern to them, ranging from social the videos produced depicted familiar welfare to municipal matters. These scenarios that seniors of specific ethnic interactions helped to foster trust and language groups could identify between the PGAs and the pioneers. with. Celebrities from the respective Indeed, the PGA scheme could yield ethnic communities were also featured useful insights on the local needs of prominently in newspaper advertorials
For any public communication campaign to be effective, stakeholders’ understanding of the key issues has to be assessed, so that appropriate follow-up strategies can be formulated.
ETHOS / 33 REVERTING TO VERNACULAR LANGUAGES FOR COMMUNICATION
ince the launch of the Speak Mandarin Campaign in 1979, government agencies in Singapore Shave not used dialects to explain public policies. Indeed, there have been restrictions placed on the use of Chinese dialects on free-to-air broadcast channels and television programmes, in order to encourage use of Mandarin within the Chinese community. This long-standing moratorium on the use of dialects was waived for the PGP campaign, because the use of vernacular and patois was considered vital in communicating with the target audience of seniors, who were often reliant on these vernacular tongues in daily life.
to attract their attention and hold Different ways of presenting a their interest. piece of information can evoke different In a further creative effort to address emotional responses. The PGO tested the many concerns of pioneers and their different headlines, images and videos caregivers, an 8-episode Mandarin drama designed to create awareness of PGP’s serial — A Blessed Life (吉人天相 jírén benefits. Test results showed that the tiānxiàng) — was commissioned to videos in the Mandarin, Malay, Tamil portray the different personal, physical and Chinese dialects resonated best and financial issues that pioneers with the pioneers, offering a sense face, along with the corresponding of familiarity and enabling them to PGP provisions that could help. This better digest the information. Some programme complemented the door- PGP videos were also tested with the to-door outreach by PGAs, who then PGAs — considered a group on the explained the PGP benefits in more detail ground keenly aware of the pioneers’ and addressed any residual information preferences — to get a sense of how the gaps or concerns they might have. messages might be received by their target audience. Test results showed that the videos in Enhancing Engagement through the vernacular languages resonated Citizen-centred Service best with the pioneers, offering a sense By mobilising nearly 3,000 volunteers as PGAs to facilitate last-mile communication, of familiarity and enabling them to a new format of citizen engagement, better digest the information. outreach and service was developed. Not
34 / Communicating to Our Pioneer Generation only had the PGO and its Ambassadors b. Connectors. The PGAs linked the fulfilled a mandate to communicate the pioneers, especially those who were PGP, but they managed, in the process, not socially active, to community to connect elderly Singaporeans with activities. During interactions, the relevant agencies to address many of PGAs also found out more about the their concerns unrelated to the PGP pioneers’ views on policies, service itself, by acting as: gaps and local needs; these insights were then channelled to policy owners a. Communicators. The PGAs to tighten service delivery and explained the PGP in simple ways sharpen communication messages. to the pioneers and their caregivers to help them appreciate the policy c. Navigators. Many pioneers do not intent and fully utilise the benefits. benefit from government schemes Wherever possible, the PGAs also because they (or their caregivers) often helped to clarify misperceptions lack awareness and confidence which the pioneers had about other in navigating the system, or government policies. have been frustrated by previous attempts. The PGAs assisted such applications or made referrals to the appropriate agencies.
Resources / Effort Required Aids most vulnerable members of target segment in navigating system of Government welfare Navigator and other schemes
Connects needy members of target Connector segment with Government schemes and community programmes
Communicates policy benefits to Communicator all members of target segment
Figure 3. Pioneer Generation Ambassadors: The Roles that Evolved to Fill Gaps (Source: Pioneer Generation Office)
ETHOS / 35 The many efforts made for the PGP last-mile communication efforts vital for communication campaign has led to a policy success. Effective, personalised deeper overall understanding of how to engagement goes beyond information reach out to elderly Singaporeans and dissemination to help intended groups explain government policies to them. It understand the relevance of policies has also generated greater awareness of to their well-being and how they can the role of message-testing in enhancing optimise the use of policy features given citizen-centric communication in general. their individual circumstances. While the various media platforms The PGP communication and are instrumental in promoting policy outreach efforts have improved the awareness, a significant number of the Government’s approach to ground elderly do not access mainstream media. engagement; in the process, they have Here, the campaign has allowed the also enhanced public service delivery, Government to appreciate the value of strengthened citizen-centricity, and face-to-face engagement as part of the re-ignited community networks. The data and experience gleaned from this important initiative will help future The campaign has allowed the efforts to understand, engage and Government to appreciate the value of serve citizens, as well as strengthen the planning of local programmes, face-to-face engagement as part of the and further improve last-mile service last-mile communication efforts vital delivery and communication. for policy success.
36 / Communicating to Our Pioneer Generation NOTES
1. For more information, refer to www.pioneers.sg. agreed with the statement “We cannot afford to get sick these days due to the high 2. The beneficiaries must either be born in medical costs”. (See Joyce Hooi, “Singapore’s Singapore or have become citizens before Emigration Conundrum”, The Business Times, 31 December 1986. 6 October 2012).
3. For instance, the Ministry of Health 5. The Singapore system may appear complicated started dialogues on healthcare as part when compared with universal healthcare coverage of Our Singapore Conversation as early as plans in other parts of the world, where no co- February 2013. The dialogue themes were payment or a fixed co-payment is required. For aligned with the overarching messages of instance, in Australia, the co-payment for each accessibility, affordability and quality of care visit to the general practitioner is fixed at A$7, in the Healthcare 2020 Masterplan. capped at A$70 a year for concessional patients.
4. The perceived inability to cope with rising 6. The PGO was set up to gather and train a healthcare costs had been highlighted in group of volunteers called Pioneer Generation public discourse in recent years. A survey Ambassadors. It was funded by the Ministry conducted by Mindshare (a global media and of Finance but housed under the People’s marketing services company) in 2012 showed Association for ease of operation. that 72% of the 2000-odd respondents
ETHOS / 37 OPINION
Public Communication and Engagement in China: Lessons for Singapore
The Chinese government is exploring new media strategies to engage a public more willing and able to express themselves online.
BY Tan Li San is Deputy Secretary, Industry & Information, Ministry of Communication and Information. She has previously served in the Ministry of Manpower, Infocomm Development Authority of Singapore, TAN LI SAN Ministry of the Environment and Water Resources, Ministry of Finance, Public Service Division, and the Civil Service College. AND LIM CHEE KIA Lim Chee Kia is Researcher, Institute of Governance and Policy, Civil Service College. His research focus is primarily on China, particularly on defence and geo-political issues.
This article was adapted from a research paper produced in the course of Ms Tan’s participation in the Lien Ying Chow Legacy Fellowship with the Nanyang Technological University. The views expressed are the authors’ own and may not reflect those of their respective organisations.
Introduction in developed countries such as the It is natural for a more educated populace United Kingdom, Canada and Australia. in a maturing society to want to play a While these societies share Singapore’s more assertive role in public decision- Westminster model of governance, they making. To engender trust and retain have a long tradition as liberal democracies legitimacy in these circumstances, a with active citizen participation in government has to engage with its political discourse. people in a different way: top-down, one- On the other hand, China’s public way communication must evolve into a engagement approaches are less well more reciprocal, two-way engagement understood. Yet, China offers a relevant between state and society. model for Singapore to examine: there Singapore has studied many models are some common features in the two of public engagement by governments countries’ governance traditions,
38 / Public Communication and Engagement in China: Lessons for Singapore including long-term single party rule and co-opting new technologies to and a government that has erstwhile meet its own objectives: to shape its dominated public discourse. China, like own image, improve service delivery Singapore, has also witnessed a relatively and even monitor local officials. As recent expansion of channels for citizens part of its image-building, the Chinese and civil society to participate in public Communist Party (CCP) has eschewed discourse, along with a proliferation of depictions of its role as being based on non-governmental organisations that are ‘control’ (控制 kòngzhì), in favour of becoming more vocal and active. How does characterisations such as ‘management’ the Chinese government communicate (管理 guǎnlǐ) or ‘guidance’ (指导 zhǐdǎo).1 with and obtain feedback from its huge and diverse population — rural and Prompted in part by the strong urban, vulnerable and affluent, among other disparities — whose needs and anti-establishment culture on the demands differ so vastly? How does the internet, the government invested Chinese government get its messages across despite the proliferation of voices, significant effort to develop its often critical, which have been enabled online communication capability. by the internet and social media? Indeed, the CCP seems to have China’s Evolving State-Society succeeded in marketing its style of Relationship governance, not only to the older Western media tends to characterise the generation or peasant folk, but “even state-society relationship in China as akin to its large population of globalised, to that of oppressor and oppressed. Yet urbanised, ICT-savvy youth”.2 this is hardly borne out by the reality In enacting this shift in stance, China’s of modern China. The internet has ruling CCP has exhibited a sophisticated opened up new worlds of information grasp of political communication and to Chinese citizens who previously public engagement strategies. While subsisted on a diet of state-controlled China’s model of public engagement media. It has also satisfied an urgent is unique, and the result of an equally social need, providing a channel for unique government responding to its people to connect and speak up against changing political and social environment, perceived social injustices. The Chinese it may yet offer instructive lessons as it government has adapted by shifting the seeks to engage more effectively with boundaries of acceptable public discourse, citizens and stakeholders.
ETHOS / 39 Strategies for Communication up at the eatery, paying for his food and and Engagement sitting down to eat with other customers. Within minutes, official media outlets Use of Social Media as a Means including Xinhua and CCTV reposted of Outreach on their platforms and the image of While China maintains tight control China’s top leader personally queuing over the communication of its ideology up at an eatery started spreading on and image, including wielding internet China’s social media. Xi’s publicity restrictions such as the “Great Firewall” campaign generated positive public that filters out undesirable content, responses on the Chinese internet. one prominent development in China’s Various organisations within the model of public engagement is how the Chinese government have also employed government has embraced the internet social media to enhance their public and social media. Prompted in part by image. The Chinese Ministry of Foreign the strong anti-establishment culture on Affair started a Weibo account in 2011 the internet, the government invested under the user identity of “Foreign significant effort to develop its online Affairs Elves” (外交小灵通 wàijiāo communication capability. xiǎo língtōng). Within three years, the account had gained 7.5 million fans. Through the use of lively language in The Chinese government has facilitated its interaction with online followers, the development of alternative platforms it has also improved the ministry’s traditionally stodgy, aloof image.3 such as Weibo and WeChat where it In Singapore, public communications can exercise far greater control over have extended to the internet and social media, with most political leaders and the content and remove unfavourable agencies using Facebook to provide messages if required. timely and visual updates on their programmes and activities. Beyond Chinese President Xi Jinping this, government organisations can experimented with crafting his online take a leaf from China’s success stories persona as one who is down-to-earth by humanising communications with and sympathetic to the concerns of the the public, by adopting a less officious average Chinese citizen. When he visited tone or making the extra effort to a popular eatery in Beijing, an influential show its officials interacting and internet commentator “coincidentally” working with members of the public ran into the President and posted, on and other stakeholders. Weibo, images of Xi Jinping queuing
40 / Public Communication and Engagement in China: Lessons for Singapore Encouraging Citizen Participation different points of view. When well and Engagement designed and implemented, as in the Facilitating greater civic participation case of the annual budgetary discussion not only provides channels for citizens at Wenling City in Zhejiang Province, to contribute their ideas and expertise, participants stand to gain knowledge but also creates opportunities to build about the policy choices and issues at relationships between the government hand, while allowing them and the and its stakeholders and people. The wider public witnessing the process Singapore government recognises this: to see beyond each group’s narrow within just five years, it has launched interests. More importantly, it also massive engagement efforts including allows the government to show its Our Singapore Conversation and SG responsiveness to public interests, and Future Engagement. These have been enables citizens to voice their views in useful avenues for participants to share a context of mutual respect. their aspirations and ideas. However, where civic advocacy pertains to issues that require difficult Even as the Chinese government trade-offs, the result of the government’s adopts tight monitoring and engagement efforts has not been an unequivocal success. In recent years, interventionist measures, including the there have been active lobbying for routine filtering of internet content to environmental and heritage conservation discourage certain discussion threads, in Chek Jawa and Bukit Brown, as well as advocacy of animal rights it knows that netizens are becoming and migrant worker rights. Such increasingly sophisticated and creative civic activism is on the rise, and is a reflection of the Singaporean public’s at getting around such measures. greater assertiveness. In such instances, China’s model of Deliberative Polling Recalibrating the State-Society Relationship offers useful lessons. Today, the Chinese government blocks Deliberative Polling involves popular foreign websites such as recruiting a representative sample Google, YouTube and Facebook, and of participants (demographically, as routinely shuts down Virtual Private well as those representing different Network services to prevent people sides of the debate), early provision of from circumventing these controls. In information, and facilitated sessions for their place, the Chinese government the group to come together to discuss has facilitated the development of
ETHOS / 41 alternative platforms such as Weibo in order to meet their legitimate needs. and WeChat where it can exercise far They have been open to suggestions greater control over the content and to improve public administration remove unfavourable messages if required. and have been keen to demonstrate Singapore, whose economic success rests responsiveness on issues at the top of on being an open global city, cannot people’s minds, for example, corruption, afford to take such measures, nor does environmental pollution, and food safety. Singapore have the population size to Paradoxically, the unfettered voicing support the development of domestic of public opinion has the potential to social media alternatives. undermine the stability of the Party’s Yet even as the Chinese government rule, and the CCP does not hesitate to adopts tight monitoring and deal with these in a heavy-handed way interventionist measures, including the when its security is threatened. routine filtering of internet content to There is realisation though that discourage certain discussion threads, suppression of internet voices will it knows that netizens are becoming ultimately be unhelpful as this would not increasingly sophisticated and creative only undermine its image and credibility, at getting around such measures, for but also cause the government to lose example using homonyms in place of an important channel to understand phrases that might be filtered by the public sentiment. In gist, both state authorities. While the government has and society use the internet as a tool been resolute in quelling discussions to expand their respective spheres of that directly challenge its legitimacy influence; the Chinese government or that incite social disturbances, it has realises that this is not a zero-sum game. been relatively tolerant of criticisms of Singapore has likewise become more the government or its policies, which sophisticated in our attitude towards, abound on the internet and social media. and use of, the internet. Singapore The government realises that the has been using technology to conduct internet can be harnessed in its favour, to sentiment analyses of internet and better understand the people’s sentiments social media content to understand
Both state and society use the internet as a tool to expand their respective spheres of influence; the Chinese government realises that this is not a zero-sum game.
42 / Public Communication and Engagement in China: Lessons for Singapore people’s responses to various policies to spread. While regulation is one and programmes. This allows the possible response, it may eventually government to gauge understanding be more effective and sustainable to (or lack thereof) of national issues, and encourage the development of a more respond accordingly. At the same time, civil and responsible internet space the internet occasionally becomes a that allows for meaningful dialogue forum for vitriol, rumours and untruths to take place.
NOTES
1. Such a stance, however, is possible only if the 3. Zhou Zhaocheng, “The Role of Social Party feels secure, which in turn is derived Media in China’s Political Communication”, from a feeling that the government has in China’s Socio-Political Reforms: achieved legitimacy. A state that is insecure Evolutionary or Revolutionary? (Singapore: is more wont to adopt draconian measures. Civil Service College, 2015): 95–111.
2. Anne-Marie Brady, ed., China’s Thought Management (Abingdon, UK: Routledge, 2012).
ETHOS / 43 BOOK REVIEW
The Challenge of Public Communications
BOOK DETAILS Speechless: A Year in My Father’s Business By James Button Melbourne University Press, 2012 (version reviewed; updated edition published August 2013); 256 pp.
REVIEWED BY Dr Vernie Oliveiro is Lead Researcher at the Institute of Governance and Leadership at the Civil Service College. Her research interests include governance, political narratives and civil society. The views VERNIE OLIVEIRO expressed herein are her own.
In an episode of the BBC television series of the policy details. The Minister, in The Thick of It, a Minister is tasked with turn, is ambushed by questions from the announcing to a classroom of teenagers a press. In the end, the Prime Minister new policy encouraging young people to moves to contain the damage by axing develop mobile phone apps. The problem the policy entirely.1 is twofold: first, the Minister does not Not a few politicians and their aides, know the policy — it was developed by whether fictional or real, have learned that the government’s coalition partners — bad communications can circumscribe an and second, the Minister is something of otherwise good policy. New public a Luddite who cannot tell the difference servants used to be told that “policy is between “downloading” and “uploading”. implementation”. With an increasingly Predictably, the announcement is a media-saturated and politicised public disaster. The Minister stutters and sphere, policymakers might become more stumbles through his speech, he flubs acquainted with a new maxim: policy the question-and-answer portion of the is also communication. James Button’s event and, flustered, commits a faux Speechless: A Year in My Father’s Business, pas for which he now has to publicly should come highly recommended to any make amends. The Junior Minister, public servant who wants to understand seizing the opportunity, disparages his political communications. The book is superior and shows off his own grasp both a behind-the-scenes glimpse of
44 / Book Review: The Challenge of Public Communications speechwriting in the Australian Public erosion of “informal contact between Service as well as a brief micro-history journalists, ministers and advisers”; of the Australian Labour Party (ALP), journalists, rather than enjoying told from the perspective of a son of a conversations with public servants, former ALP Minister. now only get “scripted briefings”. He Button imparts insights that might laments that the very people who are prove useful to anyone new to the field often most knowledgeable about policy of political communications. “Know and who can provide context that might your audience” is a key point of note — illuminate public understanding of speeches need to speak to the concerns issues are also the least likely to share of audiences, avoid offending them and their knowledge in the public sphere. even, as a veteran political speechwriter Button suggests that this contributes to counsels Button, “tell people something a general lack of understanding about about themselves they had not thought the work of bureaucracies. of before”. Another might be to make Perhaps more illuminating are the sure that you can “hear the voice” lessons that Button learns through of your client, and write using the working for former Australian Prime vocabulary, metaphors and other turns Minister Kevin Rudd. Rudd believed that of speech that come naturally to the a good speech did not just communicate speaker. “Be well read” might be a third. information about a policy, it also fit Political speechwriting almost always said policy into “the government’s core involves extensive research work, and narrative”. Crucially, we see how important speechwriters need to be able to draw it is that politicians trust the public on a vast array of material — facts, servants who bear the responsibility — personal stories, historical narratives, and enjoy the privilege — of writing imagery and metaphors — to effectively speeches. Button describes how Rudd, in convey what they mean. Speechless also describes the many The very people who are often most communications challenges that policymakers might face today. Among knowledgeable about policy and who can these are the financial constraints provide context that might illuminate that prevent media organisations from public understanding of issues are also the covering important stories well, the increasing scepticism of the public, least likely to share their knowledge in the and the 24-hour news cycle that public sphere. This contributes to a general encourages reactive rather than creative policymaking. These challenges are lack of understanding about the work compounded, Button suggests, by the of bureaucracies.
ETHOS / 45 addition to the busy work of governing, that speechwriters “have to literally be conscientiously edited the many drafts close to someone to get his sound”, that of speeches he was sent. Unwilling to they “have to be exposed to him, sit in sacrifice control, Rudd often stayed up his office and hear him talk … hear him late into the night working on speeches answer the phone”. Yet, elected leaders and, on one occasion, junked a speech are invariably very busy people. This, and rewrote it on the flight to the event. and the nature of their office, tends to Besides the duplicative inefficiencies this isolate them not just from the public, created, it also sapped morale; Button but also from those who work for them. confesses: “I was writing looking over Similarly, speechwriters might hope my shoulder. That doesn’t work”. that their literary flourishes survive the interventions of bureaucrats who are sticklers for accuracy and nuance. With an increasingly diverse population, A stronger personality in a different it no longer makes practical sense to talk political system, such as Noonan in the White House, might have insisted on of a singular, monolithic “public”, or act being right beside the President and as if a “silent majority” exists with views would have argued strenuously with interfering bureaucrats. Button can somehow distinct from the range of only wonder if he should have been opinions already being expressed in public. more assertive with his Prime Minister. Button recounts Noonan’s Speechless highlights some tensions observations about how an increased between the ideals of political emphasis on profit-making in media has communication and the realities of contributed to the growing prevalence of working in public service. In dealing sound bites. It seems that one constant with these, Button is more descriptive challenge of political communication than prescriptive — he leaves it to is the need for the officers involved to the reader to determine how they continuously adapt to changing media might, in their own contexts, resolve landscapes. Singapore’s information some of these issues. For instance, he officers are, in turn, learning to both acknowledges the need for speechwriters communicate with a public that tunes to “hear the voice” of their ministers. into multiple channels for information and Button mentions reading the work of work in an environment which no longer Peggy Noonan who wrote speeches allows the Government to control the for US Presidents Ronald Reagan and public agenda. They will need to ensure George H. W. Bush. She writes, in the substantial quality and consistency On Speaking Well (Regan Books, 1998), of their communications amid diverse
46 / Book Review: The Challenge of Public Communications media, particularly given increasingly While facts and figures are important, sceptical public demands for more timely, accurate and meaningful information. citizens also care deeply about the There may be a need for the Government things that only a narrative can deliver to better anticipate and prepare for future developments in media. — direction, values and the answers Button’s advice for speechwriters to that can help people identify with the know their audience seems particularly Government’s programme. wise in the Singapore context. With an increasingly diverse population, it no oversee government communications longer makes practical sense to talk “care” about policies and politicians the of a singular, monolithic “public”, or same way as partisan speechwriters who act as if a “silent majority” exists with are more vested in parties, ideologies views somehow distinct from the range or personalities? In fitting policy into of opinions already being expressed narrative, how should public officers in public. The Government arguably balance or differentiate between the needs to become more sophisticated political imperative to persuade and in their understanding of the hopes, the ethical imperative to inform? fears and beliefs of diverse audiences, Does the Singapore Public Service and how best to communicate with need dedicated speechwriters? If so, them. Latterly, the Government is also what institutional adaptations and learning that while facts and figures career paths might be needed to afford are important, citizens also care deeply speechwriters enough access to “hear about the things that only a narrative the voice” of those for whom they write? can deliver — direction, values and the Finally, given Button’s (and Noonan’s) answers that can help people identify suggestion that good communications with the Government’s programme. are based upon excellent research and Some questions linger for those sense-making, what capacities does interested in the challenges of political the Singapore Public Service need to communication in Singapore. Can develop in these areas in order to get impartial career public servants who political communications right?
NOTE
1. BBC, “The Thick of It”, Series 4 Episode 1, 8 September 2012. http://www.bbc.co.uk/ mediacentre/proginfo/2012/37/The-Thick-of-It. html.
ETHOS / 47 OPINION
Narratives and the Institutional Imagination
Political scientist Catherine Fieschi argues that every country needs a good tale to help it adapt to change while maintaining a sense of collective identity.
BY Catherine Fieschi is the Founder and Executive Director of Counterpoint, a London-based global cultural risk consultancy. As a political scientist, Catherine believes that rigorous social and cultural analyses can CATHERINE FIESCHI help leaders make better decisions, in both the public and private sectors. She advises business and political leaders around the world and serves regularly on government task forces.
The word ‘narrative’ often has adverse new challenges into opportunities? effects on my audiences: a rolling of the The point is that in the absence of a eyes at best; switching off entirely, at strong, new narrative promulgated by worst. Most sit queasily trying to tame institutions and shared by its people, their allergy to a word that has become across its diverse geographical and over-used and under-valued. This is a political landscapes, Europe is not great shame. coping. It is not re-inventing itself. It is But why should we care about not playing the role it should be playing stories? Well, think of the state of on the world stage, and it is letting its Europe at the moment: a European own people down. That’s what happens Union that has not been able to evolve in the absence of a narrative: no one can a new narrative (beyond its post-war imagine themselves as part of a greater rationale as a guarantee of peace) has whole beyond short-term wins and become hampered and weak, fragmented losses, beyond their immediate circle in the face of crises and unable to of family and friends (people who are (re-)capture the allegiance of its own ‘like’ them). The absence of a narrative citizens. What if it did have a new betrays the absence of the institutional narrative? Would it be able to cope imagination that allows us to plan our with new forms of diversity, to turn future together as we evolve — together.
48 / Narratives and the Institutional Imagination The Importance of the he argues, that necessary moral codes Institutional Imagination and beliefs are generated — along with, In his wonderful (and oft misunderstood) more importantly, the most necessary of 1983 book Imagined Communities,1 the illusions for stable democratic societies: late Benedict Anderson pointed to the that I share something with people spread of print capitalism — not just whom I have never met. That, as Offe the advent of the printing press, but puts it, “my anonymous fellow ‘citizens’ also capitalism’s ability to circulate are actually trusted, ‘compatriots’”.2 the results — as the point of origin of My point here is that institutions nationalism. Print capitalism, he argued, and narratives go hand in hand: the is what made “imagined communities” narrative generates a sense of shared possible. In other words, it enabled destiny; this is encoded, promulgated human beings to think of themselves and upheld by institutions, who in turn as connected despite time and distance. strengthen the narrative, which in turn Attributing the advent of national strengthens the institutions. The virtuous consciousness to the development of circle of a shared belonging needs the printing press, Anderson traced both of these elements to be sustained. all of the transformations unleashed Institutions will not simply keep going by the latter: the circulation of ideas in if they are not fed by the imagination cheaper and faster ways, the creation of of the narrative, and narratives will communities of thought, the emergence of not take root and play their full role, national languages and the development if they are not repeatedly upheld by of secular allegiances which came to be active institutions committed to the seen as the defining features of modern narrative. What I have referred to as a nationalism. What Anderson highlights virtuous circle is in fact a virtuous path: is the capacity of shared stories to create it moves forward as nation and state shared destinies. change and adapt to circumstances not Claus Offe further develops this necessarily of their own choosing. But idea in his well-known discussion about it takes place within an institutional institutions: it is through institutions, framework that is its own creation,
A good narrative can account for failure, expansive enough to fold in individual misfortunes while maintaining its logic. The many and varied strands of stories within a narrative can successfully incorporate the things that don’t quite fit.
ETHOS / 49 fueled by an ever-evolving capacity to for how a series of events needs to be tend to and harness the stories of its understood and interpreted. people and weave them into a narrative. Third, a good narrative can account for failure, or at least for bumps in The Elusive Nature of Narratives the road. It is expansive enough to Narratives are elusive creatures — try fold in individual misfortunes while too hard to make one and citizens are maintaining its logic. This is why the quick to catch the whiff of propaganda. many and varied strands of stories The ‘Britishness’ story under Gordon within a narrative are important; because Brown is a good example of a narrative they can successfully incorporate the shoved down people’s throat: a barely things that don’t quite fit. A good disguised attempt to ‘graft’ a message example would be the narrative of the on an existing narrative about tolerance American dream which can accommodate and community with the result that (a) failure because its main thrust is that the graft never ‘took’ and, (b) people of adventure, and of people willing to began to question the ‘official motives’. seize their chance — rather than of Yet, let them run fallow, unsupported success (which would have made it much by institutions, and narratives cease to more fragile). Still, there are enough perform their binding function. stories of success that the narrative is Narratives are also elusive in the effective in providing legitimacy and sense that, when they work, they are institutional momentum. difficult to distinguish from habits, conventions, stories, myths and institutions themselves. So how can we tell when The minute a narrative we’re seeing, or hearing, a narrative? becomes fixed, i.e. appears First, a narrative is not ‘just a story’ — it is a system of stories that hang incapable of accounting together and make sense of the way for, and accommodating history has unfolded; But it also offers a glimpse of the future as somewhere change, it starts to become different, yet to which one can still relate. dysfunctional. Second, it is as much about believing in how the stories relate to one another Finally, a narrative is as much about as it is about the stories themselves. the past as it is about the present or the A narrative weaves stories together future: one of its key roles is to change, to make sense of history and of the adapt and expand in ways that allow present and future, according to a set its proponents and actors to evolve of values that provide an explanation over time. The minute a narrative
50 / Narratives and the Institutional Imagination becomes fixed, i.e. appears incapable A powerful narrative, capable of of accounting for, and accommodating change, it starts to become dysfunctional. evolving and accommodating This has institutional effects. The new forms of diversity, is a key French Republican narrative around laïcité, its particular brand of militant piece of institutional architecture. secularism, offers a good example of a once powerful narrative incapable The Canadian mosaic, as it is of evolving to encompass change. The known, is just under-specified enough results on the institutions of the French to be powerful, because it remains Republic — chiefly, the alienation of a accommodating. The narrowly defined number of its non-secular citizens — linguistic multiculturalism of a few are dramatic. generations ago has gradually given way to a broader multiculturalism Narratives and Diversity that addresses mega-trends that might Diverse nations (by that I mean have threatened the nation and its nations for whom the absence of a institutions: inequality, new demands homogenous population might have for recognition, and new ways of been an obstacle to the cohesion needed formulating such demands. In the face to live together peacefully under a set of this, Canadian institutions continue of shared national institutions) seem to uphold multiculturalism: for every to have long recognised the value of a new challenge, there is a corresponding good narrative. The Canadian narrative attempt to respond through the promotion on multiculturalism — in which a and expansion of the multicultural multicultural ‘mosaic’ leaves even greater narrative and its clockwork — but room for adaptation and change — is generous — logic. Whether in the a case in point, and a manifest success face of terrorism (the role of Muslim as evidenced, in part, in the readiness community leaders is often pointed to in with which Canadians, both recent and the surfacing of the so-called ‘Toronto long-established, cite it as Canada’s 18’ plot in 2006) or in the face of the founding creed; they also readily cite Syrian refugee crisis (strengthened by the protection afforded by the Canadian Canadian Prime Minister Trudeau’s Charter of Rights and Freedoms. But presence at the airport in December Canada’s multicultural narrative also 2015 to welcome the refugees with the seems capable of expanding — of words “You arrive as refugees, but you encompassing new forms of diversity, leave this airport as permanent residents new forms of the ‘new’.3 of Canada”), multiculturalism is seen
ETHOS / 51 as an essential but accommodating family lives, in our working lives, in narrative that underpins both behaviour the way we move across the globe, and and expectations. But it has changed: the way we choose to spend our time, housing quotas are no longer quite as our money, our energy. Our successful engineered, or engineered on the same societies have given us more choice basis as before. For example, Toronto and more of a capacity for educated Community Housing reflects a concern choices. This is bound to reshape the for new forms of discrimination and way in which we coalesce with one inequality along generational and another, who we think is similar to us, income lines. It has become accepted whose differences we can relate to, and that diversity runs deeper than race, whose may seem increasingly alien. So or gender, that it can look different, or importantly, while narratives need to needs to be spotted through a different adapt, they are also a powerful way to set of lenses. help us and our institutions adapt in The point here is that a powerful the face of change. By continuing to narrative, capable of evolving and maintain Offe’s necessary ‘democratic accommodating new forms of diversity, is illusion’, strong adaptive narratives a key piece of institutional architecture. allow us to evolve with confidence, Diversity will not cease to come up as to change whilst remaining true to a relevant issue, because we can expect ourselves as collectives. some enormous changes ahead — in our
NOTES
1. Benedict Anderson, Imagined Communities: 2010. See in particular pages 7 and 8 for Reflections on the origins and spread of references [citing Michael Adams, Unlikely nationalism (London: Verso, 1983). Utopia: The Surprising Triumph of Canadian Pluralism (Toronto: Viking, 2007)]. http:// 2. Claus Offe, “How can we trust our fellow www.cic.gc.ca/english/pdf/pub/multi-state. citizens?”, in Democracy and Trust, ed. pdf. For the most recent data from 2015, see Mark Warren (Cambridge: Cambridge http://www.environicsinstitute.org/uploads/ University Press, 1999), 63. institute-projects/environics%20institute%20 -%20focus%20canada%20spring%20 3. For the most recent evidence, see The 2015%20survey%20on%20immigration- Current State of Multiculturalism in Canada: multiculturalism%20-%20final%20 The New Evidence, Minister of Public report%20-%20june%2030-2015.pdf. Works and Government Services Canada,
52 / Narratives and the Institutional Imagination OPINION
Race … or Erase?
Does race continue to be relevant in modern, diverse Singapore?
BY Ngiam Siew Ying is Senior Director in the National Population and Talent Division. The views expressed NGIAM SIEW YING in this article are her own.
The Changes Are Real Singapore takes in new immigrants Recently, the daughter of a Malay friend at the pace of about 20,000 new citizens was asked whether she was “Chinese, and 30,000 new Permanent Residents Malay or Indian”. She replied that she (PRs) each year. Compared to the base was “English” — the language they of about 3.9 million residents, this is speak most at home. In my own extended not considered large, but cumulated family, traditions and practices that over the years, we can easily say that started out predominantly Hainanese Singapore is a nation of immigrants. Few in character have been gradually of us can trace our roots in Singapore blended with those practised by the beyond two generations. Peranakans, Teochews and Hokkiens About 2 in 10 marriages in Singapore as more relatives marry outside our are inter-ethnic, and 4 in 10 are between original dialect group. a citizen and non-citizen (either PR or While Singaporeans cherish and foreigner). An estimated 10% of our seek to keep alive our various cultures youths under 18 today are inter-ethnic, and traditions over the generations, and this will only rise. there is no doubt that they have evolved Multiple identities and more complex after decades of life in a diverse society. sub-ethnicities are increasingly the Things have changed in the last fifty reality today. Can we then assume years, and will continue to change in the the structures of administration and next fifty. Which lines will blur? What governance — structures that have distinctions will lose their lustre? What served Singapore well for the past fifty is core to our identity as Singaporeans? years — will continue to work in the
ETHOS / 53 next fifty? Can we assume that the Indian? Does it matter which race they peace and harmony we have carefully subscribe to more, or which race allows cultivated and defended in society will them an advantage with the quotas survive the test of time and change? and better access to their dream flat? Is this fair to the couples who do not Do Our Race-based Policies have such flexibility of choice? Continue to Serve Us Well? In the past, almost everyone had to Systems and policies do find a way to make accommodations and compromises work themselves out, but the concern in order to fit into a nascent society is whether our systems and policies just finding its footing and identity. perpetuate a false sense of security Today, such sacrifices seem to weigh about the level of social cohesion we disproportionately on the newcomers, have achieved, or whether they serve who may not fit readily into the original to create an exclusive identity of what categories which our society and a Singaporean is — permanently governance structures have grown used excluding anybody who falls outside to. The extent of this mismatch will no that definition. doubt increase, as the world becomes smaller and society more diverse. If racial categorisation conflates Some differences cannot simply be issues, over-complicates matters, over- papered over with labels. I suspect we classifies people, and is increasingly irrelevant, why not simply do away with would all feel very much less Singaporean it, and let us all just be Singaporean? if we were to remove our collective This would also free us from the awkward ‘Others’ category applied multiracial identity. to all who are not Chinese, Malay or Indian in extraction. Can and should For the family from the Philippines Singapore go this way? who have become Singapore citizens, will their children be forced to learn What if We Are Just Singaporean? Mandarin, Malay or Tamil as their Unfortunately, the other side of the coin mother tongue language, as Tagalog is not any more comfortable. is not offered in our schools? If I am Singapore separated from Malaysia neither Chinese, Malay, Indian nor and gained independence as one united Eurasian, which self-help group should multiracial nation. We pledged to be I approach for help? Should the newly one nation regardless of race, language wed Chinese-Indian couple apply for or religion. We also enshrined in our their first BTO flat as Chinese or Constitution important protections
54 / Race ... or Erase? for the rights of minorities. This was current hard-won equilibrium, a risk in part to ensure that everyone can with a price that may be too high to be on equal standing, with national pay. Instead, what we might pursue is representation, regardless of the size perhaps a model of multiculturalism of their community. Would glossing in which a few principles are upheld. over cultural traditions, identities and practices not go against the spirit of treating our cultural differences with Disproportionate effort should respect and sensitivity? The race riots be made to integrate smaller and of the 1960s, while a distant memory for most Singaporeans, remain a relevant newer social groups into Singapore and dire warning about what could yet society. It follows that resources may happen if matters pertaining to race are not handled with great care. be disproportionately allocated, Countries like France, which has depending on need. The influence one opted for citizens to identify themselves wields should not depend on the size as French, to the exclusion of their racial identities, do not seem to have of one’s demographic group in society. fared much better at maintaining social cohesion, keeping peace, and ensuring First, equality. This means that level progress amongst its different we are Singaporean, regardless of race, communities. Some differences cannot language or religion. All citizens should simply be papered over with labels. enjoy equal standing and legitimacy Conversely, I suspect we would all as members of society, regardless of feel very much less Singaporean if we individual background and affiliation. were to remove our collective multiracial Every Singaporean committed to our identity — this is very much a part of country has an equal right to belong, and who we are, as a society of immigrants the colour of one’s skin does not make from many different parts of the world, us any more or less Singaporean, nor who somehow get along and made it more or less deserving of the rights and work against the odds. responsibilities of being Singaporean. This also means that disproportionate Striking a Balance effort should be made to integrate smaller So this is an issue with no clear comfortable and newer social groups into Singapore landing spot. The status quo belies some society, including our naturalised citizens inconvenient loopholes, and keeping to who have made the decision to become it risks policy obsolescence. Seeking to Singaporean. It follows that resources make changes risks de-stabilising the may be disproportionately allocated,
ETHOS / 55 depending on need, as smaller groups Finally, we need an inclusive may not have the economies of scale national identity. Two options present enjoyed by the larger groups. The themselves. We can choose a national influence one wields should not depend identity anchored on our ancestry and on the size of one’s demographic group heritage, symbolised by the physical in society. characteristics, language, traditions Second, there should be reasonable and practices typical of our founding accommodation of differences. racial groups. Such an identity may be Individuals and cultures have different comforting in its familiarity and sense needs and these should be accommodated of security to those already included as long as it does not impose undue within its ambit. The common space is hardship. Of course, reasonableness is substantial, and the shared memories subjective, as is the definition of ‘undue plentiful. On the other hand, we could hardship’. Yet Singapore has, by edict also anchor our national identity on or by natural instinct, been practising attainable values (e.g., kindness, civic- our own unique form of reasonable mindedness, equality), rather than on accommodation: we are accepting of and immutable traits such as skin colour, cater for different dietary restrictions, race and place of origin. This may different cultural beliefs, practices and offer less assurance to the in-group, even superstitions; we have evolved our and values can be tenuous, hard to own ways of managing our national define, shift with time, and influenced life around these differences. While by newcomers. However, this offers we might debate what is reasonable, the potential for a broader, more far- or whether these accommodations may reaching definition of what it means have unintended consequences, this to belong, and allows the adoption of has served to bring greater awareness newcomers into the Singapore family. of the diversity and difference in our The question is: which approach would midst. This process towards reasonable result in greater national resilience and accommodation is important and should better help Singapore to weather the never be taken for granted. Instead, complexities and realities of the world? we need to nurture a more open and Our choices could have unintended consultative process for recourse and consequences. The administrative consensus building. policies or governance structures we construct will influence the definition The administrative policies or governance of what makes a Singaporean. A society in which relations are tense places a structures we construct will influence the strain on good sense and common definition of what makes a Singaporean. courtesies. My favourite example is that
56 / Race ... or Erase? of Joseph Schooling, an accomplished neither out of an individual, nor should national swimmer. He is Singaporean we ever try to do so. born and bred, and is Eurasian, one of the original, longstanding groups We cannot help being both members in Singapore. Despite his excellent contributions to his sport on behalf of a particular racial group as well of Singapore, the fact that he does not as being Singaporean — we can take carry a more common Chinese, Malay or Indian family name gave rise to neither out of an individual, nor accusations that he was not a true-blue should we ever try to do so. Singaporean. How we progress as a nation, comfortable both in our own What we can do, however, is to skins and our shared national identity, subscribe to a fair and just societal will be reflected in how we view and system, based on a common set of treat our future ‘Joseph Schooling’s’ — principles. In everything that we do and and by extension how we treat anyone in every policy we create, we should ask else who is committed to Singapore and ourselves: are we upholding the principles contributes to our collective success. of equality, reasonable accommodation, and does it allow newcomers to be False Dichotomy included? These principles are not new; At the end of the day, the choice between they are already deeply enshrined in being defined by our race or by our our Constitution and pledge. If we can nationality is a false dichotomy: we maintain a balance on all three fronts, should not pretend that we even have I believe we will be assured of a future a choice in this matter. Fundamentally, society that is generous in spirit and we cannot help being both members resilient in the face of any challenges of a particular racial group as well or changes to come. as being Singaporean — we can take
ETHOS / 57 INTERVIEW WITH PAULIN TAY STRAUGHAN
Making Public Policy Relevant for Bicultural Families in Singapore
A conversation with noted sociologist Paulin Tay Straughan offers insights on Singapore’s growing social diversity and its implications for bicultural families and social policy.
PAULIN TAY Associate Professor Paulin Tay Straughan is a sociologist from the National University of Singapore (NUS). She is also the Vice Dean of International Relations and Special Duties at the Faculty of Arts and Social STRAUGHAN Sciences. Professor Straughan served as a Nominated Member of Parliament from 2009 to 2012. Her area of research focuses on medical sociology, ageing studies, work and family. She obtained her PhD from the AND University of Virginia in 1990 and has been teaching in NUS since 1991.
KHARINA ZAINAL Kharina Zainal is Principal Researcher at the Institute of Governance and Policy, Civil Service College. Her team studies issues of social policy development in Singapore. She is also involved in developing and facilitating programmes at the College.
This article is written The realities of globalisation have 2004.1 About 2 in every 5 marriages are by Kharina, based on transformed the way we live our lives and transnational — a figure that has not conversations with Professor Straughan, form families. We begin to be exposed changed very much in the last decade, conducted on and be comfortable relating to other being 37% in 2014 and 36% in 2004. 19 January 2016. people and their cultures. Singaporeans When these couples go on to be parents, are marrying fellow Singaporeans across they will raise their children in the ethnicities and across nationalities. midst of colourful blends of cultures, Singaporeans with multiple identities identities and ethnicities. For children and more complex sub-ethnicities are from bicultural or bi-national families, increasingly the reality today. Inter- what does it mean to be Singaporean? ethnic marriages are becoming more How do they relate with their families, common — accounting for about 1 in peers and communities across cultures? every 5 marriages in Singapore in 2014, What is home, community and country compared to about 1 in every 10 in to them?
58 / Making Public Policy Relevant for Bicultural Families in Singapore National University of Singapore of bicultural households. “Discussions Professor Paulin Tay Straughan has on biculturalism,” Professor Straughan a unique perspective — both personal argues, “have to be part of a larger and professional — on the integration conversation on Singapore’s identity.” of children from bicultural families. She is married to Dr Robert Straughan, an On the Impact of Biculturalism on American, and they have two grown Society and Social Policies up sons — both Singaporean, born While biculturalism, and increasing and bred here. Her sons feel deeply social diversity in general, is set to have a Singaporean and American at the profound impact on Singaporean society, it same time. A keen observer of social is not yet clear how it will shape ongoing policies in Singapore, she makes the conversations about Singapore’s identity, point that bicultural families hold “very core values, and policies. Professor different perspectives and experiences Straughan surmises that some may feel on issues of national identity, family uneasy about the prospect, “since the and other social policies”. Policies that articulation of that ambivalent notion of have worked well for the past fifty national identity is already so tricky with years may no longer be adequate for just Singaporeans in the conversation, let a changing social landscape, which alone having foreigners now”. But the includes an increasingly diverse truth is we do not have a choice. population, as well as a growing number
ON DEFINING BICULTURALISM
n sociology, biculturalism involves two originally distinct cultures in some form of co- I existence. The children from these families will live, embrace and transverse the richness of both cultures, often unconscious about the need to make any distinction from one or the other because it is as natural as their left and right limbs. They are born to the world with both. The coming together of both cultures defines them and their beliefs. Indeed, these children are the outcome of a significant coming together of differences.
“Marriage and family formation are the most intimate and private of social relationships. To be able to marry a person who is ethnically and culturally different from yours require mutual deep appreciation of each other’s way of life and beliefs.” – Paulin Tay Straughan
ETHOS / 59 She points out an example of schooled in Singapore and completing why such conversations matter more National Service. It was a difficult than ever: decision both for him and the entire family. There was a deep sense of “Foreign spouses who choose to become resentment at being forced to choose naturalised citizens will also want their only one citizenship when he had, all stories inscribed into the national core. his life, held dear both his Singaporean But this should not be something new and American roots — it was like being to us, as Singapore was like that many asked to chop off a limb. While she years ago as a young migrant society believes that such situations should be and accidental nation. A series of happy considered on a case-by-case basis, the accidents helped us to attract people last thing we want is for children from from all over the region to settle in bicultural families to withdraw from Singapore where we now call home.” the conversation, because they have been forced into a no-win situation, for The implication is that if policies instance by current policies against dual make it hard for Singaporeans with citizenship. We cannot afford to lose any foreign spouses to settle in Singapore, Singaporeans if we can help it; social the entire household may leave, or those policies need to reflect and cater to the that are already resident overseas will diverse reality of our households today. not return. Particularly with Singapore’s already low fertility rates, we cannot On Engaging Bicultural Families: afford to lose any more Singaporean Looking for Commonalities sons and daughters who might otherwise One way to resolve the difficult question be ready to come home. of identity in an inclusive way is to look for commonalities. This is easier in societies We cannot afford to lose any which are more culturally homogenous, such as Japan and Korea. As Professor Singaporeans if we can help it; Straughan highlights, given Singapore’s social policies need to reflect and diversity, the challenge is different:
cater to the diverse reality of our “How do we integrate foreigners into our households today. national script? What are the shared identity and shared values from these Professor Straughan also recounts ‘accidental co-citizens’? The broad strokes her son’s story, who had to choose are easy to agree upon: multiculturalism, between a Singaporean and an American tolerance for others’ cultural practices, citizenship after having been born and justice and equality. Singapore stands
60 / Making Public Policy Relevant for Bicultural Families in Singapore for good, clean, incorruptible governance may have more commonalities with across the board. This is an important a fellow Singaporean of a different promise. Meritocracy works well only when ethnicity. And these could be in the you cannot bribe your way up, although form of familiarity towards each other’s people still have different starting points, language or food. For example, a Chinese which we must be aware of.” Singaporean may understand Malay – On social integration and terms such as ‘cantik’ and ‘bodoh’ or shared values would have tasted mee rebus and nasi lemak. But when hosted for dinner by But when we start to look at our a mainland Chinese family, this same normative culture — i.e., the practices Chinese Singaporean may be surprised and routines of our everyday lives — it by the dishes and their preparation, becomes much more subjective, individual which all seem foreign to him.” and therefore complex. In a dense city – On embracing our uniquely hybrid such as Singapore, it is very difficult not Singaporean identities to encounter someone with a different ethnicity, culture or belief system; by The implication is that we already necessity, Singaporeans are exposed to have a uniquely Singaporean grasp of other cultures, languages, cuisines and culture, including those not immediately ways of life. The question, however, is our own. But in order for this unique whether we are accepting of this diversity: perspective to be inclusive and complete, Singaporeans from all walks of life, “On a day-to-day basis, at an individual including those of bicultural backgrounds, level, it is easy to practise: we just have should be rendered visible, engaged to be open-minded. But at a national and given a voice. level, it becomes more complex. What This requires particular sensitivity, even do we expect to see when we go into as a younger generation of Singaporeans a Singaporean home? Does it only yearn for a sense of belonging and a depend on the ethnicity of the family? way to define themselves in increasingly What do the different cuisines in the globalised and competitive environments. hawker centre say about our culture? Professor Straughan argues that: What is uniquely Singapore? Over the years, it must be an embodiment of the “Children from bicultural families are no different ethnicities. We should not be different. They, too, start to think about surprised if a Singaporean Chinese feel what will anchor them to Singapore. more at ease with a Singaporean Malay For example, a Singaporean-Vietnamese compared to a mainland Chinese. This child will feel alienated if he is asked is because the Singaporean Chinese to downplay his Vietnamese roots.
ETHOS / 61 We have to be tactful, sensitive and especially at the primary and secondary respectful when we engage citizens. levels. We need to mainstream into It is important to be curious about schools topics such as the impact of each other without fear. Give space to internationalisation and globalisation discuss cultural practices which define or the importance of being an inclusive our everyday lives. There should be no society, discussed against a background ranking or judgement regarding what of our ongoing efforts and supporting is superior or inferior. The purpose policies, including laws that protect social of such conversations is to seek out harmony or which exclude hate speech. It commonalities. This is a never-ending would be better to have healthy avenues exercise which we have to begin now, for “safe conversations”, rather than include the younger generation, and allow these views to go underground. especially those from bicultural families.” In Professor Straughan’s view, it is – On giving space to difference unfortunate that “National Education has become perceived as top-down There are times when we fail indoctrination”. But it need not be the case, she argues, if Singaporeans are to recognise the importance of able to weave their stories together allowing Singaporeans air time. It organically, on appropriate platforms where the government is only one of the is important to let people speak to players rather than the dominant voice. release some angst. “There are times,” she argues, “when we fail to recognise the importance Encouraging These Conversations to of allowing Singaporeans air time. Take Place It is important to let people speak to Professor Straughan feels that such release some angst.” discussions should begin in school,
NOTE
1. Inter-ethnic marriages constituted 20.4% of total marriages in 2014, up from 13.1% in 2004. In 2014, the proportion of inter-ethnic marriages continue to be higher among Muslim marriages (34.4%) than among civil marriages (17%). See Department of Statistics, “Statistics on Marriage and Divorces: Reference year 2014”, July 2015, accessed January 29, 2016, www.singstat.gov.sg.
62 / Making Public Policy Relevant for Bicultural Families in Singapore INTERVIEW WITH PAUL LIGHT
The Nature of Public Trust in Government
A veteran scholar explores the nature of public trust in government and its impact on public policy and service delivery.
PAUL LIGHT Dr Paul C. Light is Paulette Goddard Professor of Public Service in the New York University’s Robert F. Wagner School of Public Service and founding principal investigator of the Global Center for Public Service. His research interests include bureaucracy, civil service, Congress, entitlement programmes, executive branch, government reform, nonprofit effectiveness, organisational change, and the political appointment process. Professor Light is the author of 25 books, the most recent being Government by Investigation: Presidents, Congress, and the Search for Answers, 1945–2012 (Washington, DC: Brookings Institution Press, 2014).
Professor Light met While Singaporeans’ trust in government over Singapore had and still has, but history with ETHOS Editor-in- the years has been high, governments around has a way of working its will through Chief Alvin Pang on the world are seeing a general decline in 30 July 2014 when demographic replacement, through he was in Singapore public trust. Is this a broader phenomenon? technological change, through increased for a visit jointly We are really not sure what is going on diversity. Of course, the US has always hosted by the Lee in developed and developing nations. In had a fair amount of ambivalence about Kuan Yew School of Public Policy, the the United States (US), the high point how strong the government should be. Centre for Strategic of trust in the government was in the In a sense, the future of Singapore’s Futures and the Civil 1950s. It began to fall in the 1960s trust in government is based in part Service College. and the approximate cause was not on the fact that you already have trust the Vietnam War; it was civil rights. in government. It’s hard to hold on to Vietnam did contribute to further something of great value when you erosion, as did the Watergate scandal no longer have the shared experience and Nixon’s resignation. We did not have of having lived through historical or great authority figures to guide us as period effects of the kind we see in
ETHOS / 63 generational displacements. So in the you see in the US and Western Europe: US we have the concept of the Greatest people still have good experiences with Generation, which was my father’s government but they will attribute the generation, who went through the experience to good luck or a fluke, Depression and World War II. This is because the reputation of government also the generation that is dying out, so has become so bad. You have to be very you lose some historical anchors, along careful about that. with the social capital and bonds that tie people and governments together. In To address public perception and build the same way, twenty years from now, trust, should governments then become will people remember what Singapore better at communicating their successes, was like twenty years ago? as the private sector often does? I think anybody who believes that distrust is merely a problem that can be In the US and Western Europe, solved by getting newspapers to publish people still have good experiences more good news about government is with government but they will mistaken. Attitudes towards government are driven by a number of factors. First, attribute the experience to good bad news sells and attracts readers. luck or a fluke. Second, reading about how wonderful government is in helping this person or I would not predict that your trust that person will not have a penetrating in government is going to fall, but it effect, because the public doesn’t trust will only stay up if you respond to the media anymore. They believe that prevailing social and historical drivers. the news is biased — and with today’s Right now we are in a setting where technology, you no longer have to read access to information is great, and or listen to what you don’t like. You public expectations in terms of speed, can find your own stations and sources of transaction, quality of interaction, that tell you what you want to hear, or transparency, opportunity for free tell your side of the story. So there’s expressions and so forth, are high. no agreement anymore on what the Like it or not, these expectations exist news is. I don’t think public relations and if governments don’t keep up, then campaigns work because even the notion they become a representation of the old of having a PR campaign is going to stodgy past. And then even if they are produce scepticism (“What are they effective, they are seen as being effective hiding?”) about PR being managed. by accident. That’s one of the things
64 / The Nature of Public Trust in Government Performance talks, and that’s indicator of whether or not government what people remember. It’s the story; is trustworthy or whether government it’s the dog that doesn’t bark that is is performing. We have tried to unpack important to trust in government. You trust in government and understand must do your jobs well, and you have what drives that measure. It’s not a to take distrust as a natural part of the good measure but the best you can do process. When something goes wrong, is do your best and admit when you as it inevitably does from time to time, make a mistake. you must respond to it with candour. What we often lack in government is the willingness to admit a mistake. We You must do your jobs well, and you have don’t do that very well. to take distrust as a natural part of the Now more often than not it is the bad stories that show up in the media. process. When something goes wrong, as It’s not a functional lack of good news it inevitably does from time to time, you but the nature of the media. After the Challenger space shuttle accident, must respond to it with candour. it became clear from the subsequent investigation that it could have been How should governments assess their prevented, but dissent had been success, particularly for areas in which suppressed internally, leading to the there are no clear measurable standards? accident. Later, NASA launched another Should public trust be one of the indicators space shuttle successfully but the news of a government’s performance? was still negative: that the shuttle did I would not use trust as a measure of not blow up. The positive outcome how well government is doing. Trust became an opportunity to rehash the in government is not well linked tragedy again. to performance. Either negative or Governments, like all organisations, positive, bad news about government are going to make mistakes. It is just only confirms to the distrustful that that these tend to be more transparent their mistrust was justified, whereas to the public than what corporations do. good news doesn’t impact trust very To some extent, trust in government is much. There are so many factors that always going to be corroded because bleed into performance that are beyond in public policy, there are people who government’s control: the basic foundation are winners and those who are losers. of a good measurement system is that Trust in government is not a good you should only use metrics that you
ETHOS / 65 can control through your activity. of the sum total of its systems and Otherwise, the performance measurement its cohesion — but that is going to is imbalanced. be tested in the future. The greater That said, I think there is a hierarchy risk to a society like Singapore is the of performance. Public agencies corrosion of the social capital that has should pursue zero failures, Six Sigma made it so successful, which may result performance, zero tolerance for poor in fractures along factional lines based service, and so on. You should always on social, economic, religious elements. aim for 100% accuracy and quality of But that is not inevitable. There can be service — that subway should always good structured dialogue about what be on time, period. If you lower those the core values are in society and how expectations, you are on a slippery society should achieve them. Public slope and you will eventually reach participation in government, consensus zero. Now is that going to affect trust building, are all part of a long-standing in government measured by ordinary debate about how societies should work. survey research? Probably not. The world is changing; it’s no longer bounded by the sea or the border and I admire Singapore for being as open as it Trust in government is not a good is. I’ve been to other societies that are very indicator of whether or not the tight, that rely on the rule of law to police government is trustworthy or civil obedience or moral activity, but that is difficult: the citizenry becomes restless. whether government is performing. But these are great moral conundrums that all nations face. What do you do Our research on trust in governments about the moral fabric of our society? suggests that it’s an amalgam of How do you deal with inequality? How variables that are well beyond the do you deal with educational access and reach of governments’ day-to-day the opportunity to live a rich and full life? performance — trust in government You can engage these at a higher order, is not a referendum on government engage in public dialogue, while being performance nor is it a referendum on aware that you’re going to alienate people media coverage. It’s an amalgam of no matter what you do, and you have to how you feel about many things, from deal with that. All you can do in this what happened in the grocery store to government, which is well-performing, what happened at the airline counter, is to try to keep up with this changing for example. world and your demographic changes Singapore is successful not because will require you to change some of your of any one special factor, but because practices, I should think.
66 / The Nature of Public Trust in Government How can the Singapore government step whether the goals need to be reset. You up to the expectations of a generation pledge that the trains will come every accustomed to the immediacy and ten minutes but they will be on time. responsiveness of the digital world, while And then we can talk about what the balancing its duty to serve the larger public cost is to society, who is going to have good for the long term? to pay for it to come every five minutes. One fundamental issue confronting But if you go down to that train at rush government in the immediate term hour in the morning and you have to is the fact that our lives are instantly use your elbows to get onto the train transparent. You can know everything and government isn’t watching, then we need to know through Google maps, you are creating an impression, but not through the cloud, through all sorts of one that you hope for: the impression is different social platforms. Governments that government isn’t paying attention. cannot hold public trust for long if It doesn’t matter if your trains have they are not equally transparent, yet nice straps and interiors and so on: the governments cannot violate the privacy purpose of the subway train is not to of its citizenry. So it’s a balancing act make government feel good about how for the public sector. effective it is at purchasing train cars. Governments are not going to be as transaction-oriented as Amazon or Alibaba, but government can Trust in government is not a referendum be responsive; its websites must be on government performance nor is it responsive. Governments all over the a referendum on media coverage. It’s world have a lot of difficulty managing information well because we don’t have an amalgam of how you feel about that expectation that governments can many things well beyond the reach of be as fast and transparent as possible without violating our privacy and governments’ day-to-day performance. without exposing us to risks such as fraud or terrorism. So you have to work through the It is also up to government to deliver priorities and trade-offs. However, on promises made. There’s no excuse my experience has been that working for not doing so. If the promise needs through the priorities from on high to be changed, you need to talk about through an opaque process, where the cost and benefits of doing so and nobody understands how you reach what will have to be given up in order that decision, is a source of skewed to get it. You set goals, meet them and expectations: I was not involved in that then you can have a conversation about decision, they did not take my views into
ETHOS / 67 Over-promising is more of a problem than under-promising, but under-promising creates an expectation that government is not very competent.
account, they are not listening to me, etc. savvy than the generation which is You should deliver on your promises currently running government right and then decide whether or not you’ve now. Singapore doesn’t face a single promised too much or too little. Over- future, nor even two or three futures. promising is more of a problem than It faces a thousand futures squared under-promising, but under-promising and you must understand which future creates an expectation that government you wish to pursue and which you is not very competent. So find the point wish to avoid. You can look at the of compromise where the promise is trends and see the stresses coming. accurate, honoured and appropriate: You can better understand, through this is part of government. This is what rigorous methodologies, what the makes Singapore special. shock absorbers have been and will The government is going to be be in the Singapore system. You have tested in coming decades as generations the tools do the robust modelling to replace each other, each bringing a see what the futures look like and to different set of problems. The good hedge against the downside futures news: Singapore has a generation in place and to shape for the upside. That’s and set to lead government in future, where Singapore needs to focus. who are much more technologically
68 / The Nature of Public Trust in Government Survey of Fairness Perceptions in Singapore Public Policy
A survey finds that the perceived fairness of public policies in Singapore varies according to the socioeconomic groups affected.
BY Do Hoang Van Khanh is Senior Researcher in the Social & Economics Team, Institute for Governance and Policy, Civil Service College. Her research interests include healthcare economics, behavioural economics KHANH DO and evidence-based policymaking.
AND Sharon Tham is Lead Researcher in the Social & Economics Team, Institute for Governance and Policy, SHARON THAM Civil Service College. Her research interests include evidence-based policymaking, behavioural economics and economic geography.
ETHOS / 69 Introduction Do Singaporeans have a dominant Fairness is an important facet in policy view of what is fair or unfair in public discussions, because it influences how policy? Are public perceptions of much support the government gets from fairness consistent or do they vary the public when rolling out policies. across different policy domains? Are However, there has been little research these perceptions systemic and what in Singapore that systematically explores are their implicit rules? We conducted fairness perceptions in public policy. a survey to address these questions. In addition, perceptions of fairness change with time. For example, there Objectives of the Survey are indications of a growing preference International surveys, such as the in Singapore for universal access to 2009 Bamfield and Horton’s study,1 social transfers and support. Changing have highlighted the importance of demographics may have also tilted fairness “progressive universalism” — a system perceptions towards universal provisions in which everyone receives some benefits, that cater to an ageing population and but those in middle and higher income a middle class that increasingly feels groups receive less than those in the that the deck is stacked against them. low-income group. Their findings
It’s my point that every policy that comes out has to be reasoned and reasonable. It’s reasoned in the sense that every policy has its rational grounds based on data, knowledge, for you to come to the best choice of what action to take. But every policy must also be reasonable in the minds of the people who are affected. Reasonableness is an emotional assessment and not a rational assessment. The reasonableness part of it is when the people are going to look at it and say ‘Does that seem fair, does that seem reasonable?’ The policy needs to pass this test.
Mr Lim Siong Guan, former Singapore Head of Civil Service2
70 / Survey of Fairness Perceptions in Singapore Public Policy suggest that people would be more were prepared, when presented with willing to contribute to benefits with evidence of barriers to opportunity, wider coverage. Bamfield and Horton to support public interventions that further highlight that a common specifically helped the disadvantaged, complaint was that the system was not even at some cost to the rest of the generous enough towards the middle population. or “sandwiched class”. In other words, With these insights in mind, the Civil participants preferred to be treated Service College, Singapore designed and differently from those at the top for commissioned a “Fairness Perceptions taxes, but not too differently from those in Singapore Public Policy” survey, with at the bottom for benefits. a focus on the distributive fairness of Even though progressive universalism how rights and government resources may be less efficient than a more targeted are allocated. In particular, there was approach, it might receive higher public interest to find out how Singaporeans support and hence affect the willingness view the targeted, universal, means-tested of the middle class to pay their share. For and universal approaches to allocating example, the British Social Attitudes Survey rights and public resources.5 It also in 2012 found that 70% of participants examined if these fairness perceptions opposed the idea of reducing taxes in are consistent across different segments return for making free health services on of the population and if they continue the National Health Service (NHS) only to be supported even at some cost to available to people with low earnings.3 individuals (via higher taxes or prices). However, it is worth noting that The survey, conducted in March and fairness perceptions may not be April 2014, was administered to a consistent across different public policy random sample of 1,002 Singaporeans domains. Sectors such as education aged 20 and above that closely resembled and healthcare for instance, may be the demographic profile of Singapore subjected to different fairness criteria: Residents (i.e., age, gender, race, housing education is considered fundamental to type and working status).6 ensuring equality in opportunity, while medical care is regarded as a good with Key Findings “special moral importance”.4 Bamfield The survey revealed several key and Horton’s survey also points out insights on Singaporeans’ perceptions that while people were usually against of fairness regarding the allocation of targeted interventions, many participants government resources.
ETHOS / 71 KEY FINDING #1: It is fair for taxpayers to pay higher income taxes to cover increased expenditure in healthcare, compared to childcare, preschool or unemployment benefits.
56% of respondents felt it was fair for 56% VS 49% & 46% pay higher income taxes to cover increased public expenditure on healthcare Healthcare Childcare/Pre-School Unemployment benefits
Figure 1. Level of Support for Using Taxes to Fund Healthcare, Childcare and Unemployment Benefits
A majority of respondents (56%) felt it was fair to do so. This could be partly it was fair for pay higher income taxes due to the profile of the respondents, as to cover increased public expenditure on about a third of them (32%) were either healthcare. In contrast, for unemployment single or married with no children, and benefits and childcare/kindergarten, only only 3% were unemployed. half or less of the respondents thought
Policies with a wide reach should take on the universal, means-tested approach as this approach would likely to be perceived as fair by the majority of the public.
72 / Survey of Fairness Perceptions in Singapore Public Policy KEY FINDING #2: The universal, means-tested approach to allocate government transfers and impose taxes is usually the fairest.
Questions 57% Questions 45% on Housing on General 75% 76% Government Top- Ups/Subsidies 62% 52%
Questions 63% Questions 52% on Tertiary on Income 60% 73% Education Supplement 55% 71%
Questions 54% Targeted on Healthcare 74% Universal, Means-Tested 68% Universal
Figure 2. Fairness Responses to Approaches to Allocate Resources – Average by Domain 86% of respondents felt that the universal, 80% means-tested approach to distributing of respondents felt government healthcare-related transfers as 100% that the universal, seen in Medisave and CPF top-ups was fair means-tested approach for direct 80% 69% public hospital bill 61% 58% subsidies was fair 60% 55%
40%
20% CPF/Medisave Top-Ups
0% Hospital Subsidy Targeted Universal, Means-Tested Universal
Figure 3. Preferred Allocation Approaches for Hospital Subsidies and CPF/Medisave Top-Ups
ETHOS / 73 There was clearly a preference for when allocating transfers and tax the universal, means-tested approach burdens. This approach would likely to taxes and allocating public resources to be perceived as fair by the majority across most domains. This meant that of the public and would thus garner For example, for housing related respondents preferred if everyone more support. questions that dealt received some of the transfers or paid One example would be healthcare with housing grants taxes, but the amount of transfer or tax services (see Figure 3). The strong and property taxes, should be differentiated according to preference for a universal, means-tested universal, means-tested approach received income levels. approach to distributing government much more favourable The universal, means-tested healthcare-related transfers was seen returns than the other approach was clearly the most preferred in Medisave and Central Provident two approaches. Only about half of for questions related to healthcare, Fund (CPF) top-ups, where 86% of respondents felt the general government top-ups, housing respondents felt that this approach universal approach policies and transfers for vulnerable was fair. In terms of direct public was fair, while targeted groups, followed by the universal and hospital bill subsidies, 80% felt that allocation was deemed unfair. For general the targeted approaches (see Figure 2). the approach was fair. This dominant government top-ups/ This finding could imply that support for the means-test approach subsidies, all three approaches were policies with a wide reach should take was seen even across different income deemed fair. on the universal, means-tested approach groups, educational levels or gender.
KEY FINDING #3: A well-supported policy could end up being perceived as unfair, when people are told that it would involve higher out-of-pocket payments.
...but when respondents were 77% 23% told in a separate of respondents Unfair 58% question that they said it was fair to Unfair needed to pay adopt a universal higher taxes to cover approach, in which increased public the government expenditure, only pays the full premium for all 42% Singaporeans... Before reference to taxes After reference to taxes deemed the universal approach fair
Figure 4. Support for Universal Hospitalisation Insurance Before and After Being Told of Higher Taxes
74 / Survey of Fairness Perceptions in Singapore Public Policy Hospitalisation insurance was one However, when respondents were of the exceptions to the preference for told in a separate question that they a universal, means-tested approach. needed to pay higher taxes to cover Instead, there was a strong preference increased public expenditure, the for a universal approach, in which the universal approach was deemed fair by government pays the full premium for all only 42% (see Figure 4). In other words, Singaporeans (77% said it was fair). This citizens had strong initial impulses support was consistent across all income towards the collectivisation of medical levels. A possible reason could be due to insurance, but this was reduced when hospitalisation insurance being viewed they realised taxes would rise to support as an ‘entitlement’ that the government this policy. should provide equally for all citizens.
KEY FINDING #4: Education and income levels could influence fairness perceptions.
100% 88% 80% 78% 67% 60% 56% 42% 40% 34% Before reference to taxes 20% After reference 0% to taxes Upper Sec and below Diploma Degree and higher
Figure 5. Support for Universal Hospitalisation Insurance Before and After Being Told of Higher Taxes, Based on Educational Attainment
When analysing reactions to The first observation was that a increased taxes in return for universal larger proportion of those with higher hospitalisation insurance, there were education levels and household incomes interesting variations based on income seemed to feel that it was fair, even levels and educational attainment. when told of the need for higher taxes
ETHOS / 75 (CONT’D) KEY FINDING #4: Education and income levels could influence fairness perceptions.
100% 81% 80% 77% 74% 70%
60% 53% 42% 42% 40% 36% Before reference to taxes 20% After reference 0% to taxes Below $3,000 $3,001–$6,000 $6,001–$10,000 More than $10,000
Figure 6. Support for Universal Hospitalisation Insurance Before and After Being Told of Higher Taxes, Based on Household Income Levels
or costs to individuals, to support needed. The largest drop in support higher public expenditure. was among diploma holders and those In the case of hospitalisation from household incomes between $3,001 insurance, universal provision was seen and $6,000 per month. Their support as the fairest by all respondents. But dropped by more than 40% once an degree holders and those with monthly increase in taxes was factored in (See household incomes of $10,000 or more Figures 5 and 6 for more details). saw the smallest drop (by 11% and Similar patterns were observed for 17% respectively) in the ‘fair’ response questions pertaining to transfers for when they were told of higher taxes low-wage workers. More respondents felt it was fair to provide low-wage A larger proportion of those with workers with some benefits. However, higher education levels and household at least half of them felt that the policy was unfair when told of the need to pay incomes seemed to feel that it was fair, higher taxes or food prices to fund the even when told of the need for higher support. Again, the fairness ratings among those with higher education levels taxes or costs to individuals, to support and household incomes fell the least higher public expenditure. when told of the financial implications.
76 / Survey of Fairness Perceptions in Singapore Public Policy The second observation was A persistently large proportion of the that the “sandwiched class” showed lower support across all allocation “sandwiched class” consistently viewed the approaches, especially for targeted targeted approach as more unfair compared schemes. The group with $6,001–$10,000 monthly household income expressed to the other income groups — they are lower fairness levels when compared to left out from most government transfer all other income groups, even for the schemes while having to pay higher taxes. generally preferred universal, means- tested approach (see Figure 7). This higher incomes). This could possibly be observation was also seen across most due to the fact that this group viewed policy domains. themselves as the “sandwiched class”, In addition, a persistently large who are left out from most government proportion of this income group transfer schemes while having to pay consistently viewed the targeted higher taxes. Hence, they reacted more approach as more unfair compared to strongly against the targeted approach that the other income groups (both lower and would help only the low-income groups.
(CONT’D) KEY FINDING #4: Education and income levels could influence fairness perceptions.
Questions 83% Questions 75% on General 76% on Housing 75% Government 66% 75% Top- Ups/Subsidies 77% 81%
Questions 63% Questions 76% on Tertiary 60% on Income 71% Education 53% Supplement 73% 61% 70%
Questions 75% Below $3,000 The “sandwiched class” on Healthcare 74% $3,001–$6,000 showed lower support across all allocation approaches, even for 72% $6,001–$10,000 the generally preferred universal, 69% Above $10,000 means-tested approach.
Figure 7. Support for Universal, Means-Tested Approach for Different Policy Domains, Based on Household Income Level
ETHOS / 77 KEY FINDING #5: Fairness perceptions on tertiary education differ between subsidies and fee increases.
For public university fee subsidies, both the targeted and universal, 78% 81% 65% means-tested approaches received high support Targeted Universal, Means-Tested Universal
Figure 8. Support for Allocation Approach for University Fee Subsidies
The universal, means- tested approach where richer students bear a greater fee increase, 48% 38% 44% was deemed the most unfair, with more than 60% saying it was unfair
Targeted Universal, Means-Tested Universal
Figure 9. Support for Allocation Approaches for Tertiary Fee Increase Structures
Interestingly, fairness perceptions hand, only 65% of respondents felt towards tertiary education subsidies that the universal approach was fair and fee increases were divergent. For (see Figure 8). Hence, it appeared that public university fee subsidies, both the respondents felt a strong need to provide targeted and universal, means-tested relatively more subsidies to students approaches received high support (78% from lower-income households. and 81% respectively). On the other
78 / Survey of Fairness Perceptions in Singapore Public Policy When it came to tertiary fee increases, approach that would place them at a at least half of the respondents already disadvantage compared to others was felt that it was unfair to pass the fee unfair. This suggests that unlike other increase in any form to the students. policy domains, tertiary education Among possible fee increase structures, was not seen in a similar way across the universal, means-tested approach, different income groups, possibly where richer students bear a greater invoking a notion of opportunity and fee increase, was deemed the most private benefit. unfair (more than 60% said unfair; see Figure 9). While this approach to fee increase would appear similar to the When it came to tertiary fee increases, universal, means-tested approach to respondents from each income group subsidies, where lower-income groups felt that any approach that would place are favoured, framing it in the context of fee increases yielded a drastically them at a disadvantage compared to different fairness response. others was unfair. Furthermore, there were differences in fairness preferences by income levels when it came to fee increases. Those from Conclusion low-income households (below $3,000 This survey on “Fairness Perceptions per month) felt that it was most unfair in Singapore Public Policy” offers when there was no differentiation in fee evidence on how Singaporeans view the increase between them and the richer way resources and rights are allocated students. On the other hand, those in the current system. from high-income households ($10,000 A significant observation was that and above per month) felt it was most those in the middle-income group unfair when the fee increase took on a (with monthly household income of targeted approach and was borne solely $6,001–$10,000) felt “sandwiched”. This by richer students. The most surprising group consistently expressed lower result came from respondents from the fairness levels than other groups for middle-income groups, who felt that the all redistribution approaches, including means-tested approach was the most their most preferred universal, means- unfair while being indifferent to the tested, which could be a signal to their other two approaches. sentiments of being left out of most There was thus no general consensus government schemes targeted to help when it came to tertiary fee increases. the poor, while still having to pay taxes. The results suggest that respondents Another important finding was from each income group felt that any that while the generally perceived
ETHOS / 79 People felt it was fairer to pay a bit for more healthcare subsidies was fair. This is probably due to the fact that more for universal, means-tested healthcare is something everyone subsidies and transfers, rather than expects to depend on sooner or later. On the other hand, expenditures on early pay less, through lower taxes, for child education and income support for targeted schemes. lower wage groups saw larger relative drops in perceived fairness once higher fairness of a policy always dropped taxes or out-of-pocket expenditures when people were informed that higher were mentioned. taxes were required to pay for higher Finally, and perhaps most importantly, expenditures, there were considerable there was a general preference for variation among certain subgroups and the universal means-tested approach domains. First, respondents with higher to allocate public resources in most education levels (degree and above) and domains. People felt it was fairer to monthly household incomes ($10,000 pay more for universal, means-tested and above) had a greater tolerance for subsidies and transfers, rather than pay higher taxes in return for increased less, through lower taxes, for targeted public expenditure. This could possibly schemes. In other words, people seemed be due to their better understanding of willing to tolerate some inefficiency trade-offs in public finance and having and costs to themselves if the policy more financial resources to cope with appeals to their sense of fairness. higher taxes or prices. Second, certain These insights may inform Singapore domains still received high level of policymakers’ understanding of how support for increased expenditure, policies can be designed for greater public even taking higher taxes into account. buy-in, balanced against the efficiency One such area was healthcare: people of more targeted approaches. generally felt that paying higher taxes
80 / Survey of Fairness Perceptions in Singapore Public Policy NOTES
1. Louise Bamfield and Tim Horton, Foundation (RWJF) Scholars in Health Policy “Understanding Attitudes to Tackling Research Programme, Working Paper Series, Economic Inequality” (York: Joseph Rowntree WP-47, 2010, http://healthpolicyscholars.org/ Foundation, 2009), access date 19/02/2013, sites/healthpolicyscholars.org/files/w47_lynch. https://www.jrf.org.uk/report/understanding- pdf. attitudes-tackling-economic-inequality. 5. For the purpose of this survey, the targeted 2. Lim Siong Guan, speech at the launch approach refers to a selected segment of society of the Public Relations Academy receiving benefits or bearing the costs of a Conference, 28 June 2002. policy. For example, only the low-income group would receive subsidies or only the high-income 3. A. Park, E. Clery, J. Curtice, M. Phillips and group would have to pay taxes. The universal, D. Utting, eds., British Social Attitudes: means-tested approach refers to everyone in The 29th Report (London: NatCen Social society receiving the benefits and bearing the Research, 2012), accessed 19 February 2013, costs, but the amount depends on their needs https://www.bsa-29.natcen.ac.uk. and abilities. Hence, lower-income citizens would receive more subsidies and pay less 4. N. Daniels, Just Health (Cambridge: taxes, whereas higher-income citizens would Cambridge University Press, 2008) and J. P. receive less subsidies and pay more taxes. The Ruger, “Health, Capability, and Justice: Toward universal approach refers to everyone receiving a New Paradigm of Health Ethics, Policy and the same amount of benefits or bearing the Law”, Cornell Journal of Law and Public Policy same costs regardless of their income levels. 15 (2006): 403–82, cited in Julia Lynch and Sarah. E. Gollust, “Playing Fair: Fairness 6. For details on methodology and Beliefs and Health Policy Preferences in the questionnaire design, please visit United States”, The Robert Wood Johnson www.cscollege.gov.sg/ethos.
ETHOS / 81 Uniquely Singapore, Uniquely CPF
Singapore’s pragmatic approach to social security has led to the development of a unique system that does not readily adhere to international benchmarks.
BY Heidi Chan is Principal Research Analyst with the Policy Research Department at the Central Provident HEIDI CHAN, Fund Board. Eng Soon Khai is Group Director of the Policy, Statistics and Research Group at the Central Provident ENG SOON KHAI Fund Board. AND Laura Lim is Lead Research Analyst with the Policy Research Department at the Central Provident LAURA LIM Fund Board.
82 / Uniquely Singapore, Uniquely CPF Background on the Singapore System A key guiding principle when designing Singapore’s social security system has and reviewing social programmes is co-evolved with its historical development. fiscal sustainability. This issue has Given our unique position as a small and become particularly salient in recent open economy with no natural resources, years, given the number of pension we have adopted a model, premised schemes worldwide that are struggling on self-reliance, that is more fiscally to honour their pension obligations in sustainable and conducive to economic the face of demographic pressures or competitiveness. This, however, does poor investment returns. not mean that we adopt a laissez-faire In Singapore, modest levels of fiscal stance towards social policy. Instead, spending enable taxes to be kept low the Government takes an activist for the broad majority of Singaporeans approach, consciously designing social while maintaining a progressive system spending and subsidies in ways that of taxes and transfers. This also maintains reinforce both individual responsibility the incentive for individuals to work and collective responsibility, as part of and upgrade their skills, save for their a shared social compact. retirement and other needs, and to take While the Central Provident Fund responsibility for their own families. (CPF)1 provides for Singaporeans’ basic This has not come at the expense of retirement needs, our social policy adopts the well-being of Singaporeans. Our a holistic approach that extends beyond approach of social investment, social social security to also encompass social security and targeted social assistance investment and social assistance (see box has enabled Singapore to achieve story on “Key Features of Singapore’s positive social outcomes while keeping Social Policy Framework”). government expenditure and taxes
This is not about leaving things to self-reliance, or about leaving families to face uncertainties on their own. It is a strategy of government support for efforts by individuals to learn and strive to achieve their aspirations, to own a home by working and paying down a loan, and to save for their retirement needs. It may be a paradox, but this paradox of active government support for self-reliance has to run through all our social policies.
Deputy Prime Minister and then-Finance Minister Tharman Shanmugaratnam2
ETHOS / 83 KEY FEATURES OF SINGAPORE’S SOCIAL POLICY FRAMEWORK
Social security: The key pillars of Singapore’s social security system are: Home Ownership, the Central Provident Fund system (consisting of individual savings accounts under a fully-funded, defined contribution system), Healthcare Assurance, Workfare (income supplement for low-wage workers), and the recently introduced Silver Support Scheme (income supplement for the bottom 20% to 30% of elderly Singaporeans). Through the CPF, Singaporeans build up savings for their retirement and healthcare needs as well as housing purchases.
Social investment: The Government invests heavily in education and training (most recently with the introduction of SkillsFuture3) to ensure that Singaporeans are employable and can earn an income for themselves. Initiatives such as Workfare4 and Special Employment Credits5 are targeted to encourage the employment of low-wage workers and older workers respectively. The Government has also implemented an extensive public housing programme, enabling the great majority of Singaporeans, including low-income households, to own their homes. Home ownership promotes self-reliance, social mobility and financial security.
Social assistance: Targeted assistance reaches the needy and disadvantaged while minimising disincentives to work. Only those who cannot work and have no other financial means receive long-term aid, through the Public Assistance scheme. ComCare programmes help individuals get back on their feet in the short- to medium-term. Lower-income households also receive substantial healthcare subsidies, and can fall back on Medifund6 as a last resort if they cannot afford their medical bills. The permanent GST Voucher scheme provides cash, Medisave top-ups and utilities rebates for lower and middle-income Singaporeans on a regular basis.
relatively low. These positive outcomes What Makes Singapore’s include low unemployment, high home Approach (and the CPF) Unique? ownership rates and healthcare outcomes Started in 1955, Singapore’s Central that are superior to those in many Provident Fund is a defined contribution advanced countries.7 system that is fully funded by contributions
84 / Uniquely Singapore, Uniquely CPF from employers and employees. CPF Is an Integrated Social Security System Contributions are held in three separate CPF integrates several aspects of social accounts — the Ordinary, Medisave security: retirement savings, healthcare and Special Accounts — which support financing, home ownership. Together Singaporeans’ home-ownership, with government schemes like Workfare healthcare and retirement needs. and Silver Support, an individual can While CPF is a defined contribution look forward to peace of mind in old scheme in substance, it differs from age. There is also flexibility within many other defined contribution the CPF system to allow a member schemes in design, coverage and risk to optimise the use of his savings. For sharing. So what makes Singapore’s example, the portion of CPF savings approach unique? that is invested in property may be monetised when needed to enhance CPF Is Asset-based retirement income, while the monthly Singapore complements the accumulation income that a CPF member receives in of cash savings for retirement with retirement will also help him to meet asset-based policies. A key component his out-of-pocket medical expenses of this approach is allowing the use of in old age. CPF members can also CPF savings for housing purchases, transfer their CPF savings among with the Government also providing family members to better support each subsidised public housing and substantial other’s retirement needs. housing grants to enable Singaporeans to own their own homes. This strategy has resulted in a home ownership CPF integrates several aspects of social rate of around 90%, with even lower- security: retirement savings, healthcare income households having substantial financing, home ownership. housing equity in their properties. Home ownership eliminates the need to worry about rental costs during CPF Helps Individuals to Manage one’s retirement years; and housing Retirement Risks assets can be monetised, if necessary, Although CPF is a defined contribution to supplement retirement income. This (DC) scheme at heart, it has incorporated asset-based approach — as opposed elements of risk pooling that are more to providing cash benefits to those in common to defined benefit (DB) systems, need — is consistent with the principle resulting in an approach that is eclectic of self-reliance, with subsidies going yet meets the retirement needs of towards asset development rather Singaporeans. In particular, the way than consumption.8 that the CPF addresses the two key
ETHOS / 85 risks of investment and longevity is protects CPF members when market unusual among DC schemes. returns are low.10 CPF monies are In a typical DC scheme, the retirement safeguarded because the SSGS savings built up in individual accounts are issued and guaranteed by the is a function of the contributions Singapore Government. received and the investment returns that these monies earn. Poor investment • To address longevity risk, a national performance can severely affect the annuity scheme called CPF LIFE was amount of savings available to the introduced in 2009. Previously, CPF individual at retirement: in the aftermath members would receive an income of the 2008 global financial crisis, many stream for about 20 years from the DC participants saw the value of their CPF savings accumulated during retirement savings shrink dramatically one’s working life. With increasing due to investment losses. Furthermore, life expectancies, members faced the as life expectancies continue to rise and risk of outliving their savings. CPF with many individuals underestimating members with at least $60,000 at their own life expectancy, DC participants age 65 in their Retirement Account11 also run the risk of exhausting their will be automatically enrolled12 in retirement monies while they are CPF LIFE, ensuring that members still alive — a phenomenon known as receive monthly payouts for as long longevity risk. as they live. The other feature of In contrast, we carefully manage CPF LIFE is that payouts are CPF members’ exposure to investment commensurate with the amount and longevity risks: of CPF savings committed to the • CPF monies, by default, are invested scheme, which preserves the principle in special non-tradable government of individual responsibility. bonds known as Special Singapore Government Securities (SSGS). CPF Has Redistributive and Progressive These bonds are issued by the Features Singapore Government, which has While CPF is premised on self-reliance a triple-A credit rating. With Extra and individual savings, it includes Interest for lower CPF balances and redistributive and progressive features for older members, CPF members that benefit less well-off members. These can earn up to 6% interest per include CPF housing grants and the Extra annum on their CPF savings.9 CPF Interest on CPF savings introduced in retirement savings currently earn a 2008. In addition, the Workfare Income floor rate of 4% per annum which Supplement Scheme (WIS) encourages
86 / Uniquely Singapore, Uniquely CPF low-wage workers to stay employed illustrate the strengths and weaknesses by providing a government transfer of different systems, but are less useful that supplements up to 30% of annual for appreciating how the unique features income for low-wage workers. The cash of each system have evolved to suit their component of the WIS supplements respective contexts. their income, while the CPF component helps them build up their retirement savings. Under the WIS, more than While CPF is premised on self-reliance $670 million was disbursed as at end and individual savings, it includes 2015 for work done in 2014, benefitting redistributive and progressive features about 439,000 Singaporeans. Since 2008, the Government has that benefit less well-off members. been providing a 1% additional interest on the first $60,000 of a CPF member’s International comparisons of balances. Since 2016, an additional 1% retirement income systems tend to extra interest is paid on the first $30,000 focus on adequacy and sustainability. of CPF balances for members aged 55 Adequacy refers to the level of benefits and above. These measures help to boost that the systems provide for old age members’ monthly retirement payouts, needs, while sustainability refers to especially for those with lower balances. their ability to continue providing These features make the CPF these benefits in the long term. While an exception to the typical defined these are useful parameters in assessing contribution scheme. It embodies the effectiveness of a retirement both individual responsibility, as it income system, the way in which each is still first and foremost based on parameter is defined and applied will individuals saving for themselves, as affect evaluations significantly. well as collective responsibility, with For example, while sustainability its progressive elements and collective indicators typically include the level of pooling of risk. pension assets and public debt relative to GDP as well as demographic factors,13 it How Does Singapore’s CPF would not be meaningful to apply these Compare with Other Countries’ parameters across the board. These Retirement Systems? metrics were originally designed for International comparisons typically traditional pay-as-you-go DB systems apply a common set of evaluation criteria that tend to be susceptible to demographic in order to ensure comparability and pressures (whereby contributions from a facilitate benchmarking. Such studies can shrinking workforce are insufficient to
ETHOS / 87 fund the pension payouts of a growing healthcare and education subsidies, elderly population). Such metrics are and GST Vouchers.14 This has been less applicable for a fully-funded DC recently bolstered by the introduction system such as the CPF, in which each of the Silver Support Scheme in 2016, member can only withdraw what he which complements Workfare as part has set aside in his account. of the fourth pillar of social security International studies that focus in Singapore. The Silver Support only on cash savings for retirement Scheme supplements the retirement would also underestimate the level of incomes of the bottom 20% to 30% of adequacy that the CPF provides, since it older Singaporeans, just as Workfare includes unique provisions for housing supplements the incomes of the bottom and healthcare that go beyond pure 20% to 30% of working Singaporeans. retirement needs alone. For instance, As Singapore’s approach is atypical, its such studies tend to assume the need social safety net may consequently be to incur expenditure on housing rental, perceived by conventional measures which Singaporean retirees, who mostly to be less robust or sustainable than own their homes, do not require. Indeed, it actually is over the long term. many studies overlook the fact that many Singaporeans hold substantial What’s Next for Singapore’s housing equity (instead of liability) that Social Security System and CPF? they could potentially unlock in order The CPF is a uniquely Singaporean social to increase their retirement adequacy. security system, whose features have Singapore’s approach to helping evolved over more than half a century the needy is often not fully appreciated to meet our particular context and in international studies. While some values. It should continue to be refined countries provide generous welfare to stay relevant and meet the current benefits to the elderly poor, there has and future needs of Singaporeans. been increasing concern over fiscal While the main objective of the CPF deficits and public debt levels, calling remains to ensure that Singaporeans into question the sustainability of can meet their basic retirement needs, such schemes. In contrast, Singapore there is scope for the CPF to provide provides support for lower-income more options to cater to varying Singaporeans whilst maintaining a retirement needs of Singaporeans. fiscal balance through schemes such as In September 2014, the Government Workfare, substantial housing grants, appointed a CPF Advisory Panel to
88 / Uniquely Singapore, Uniquely CPF study possible enhancements for CPF lower but increase over time to help members. The Panel released the first with rising costs of living, and how part of its recommendations in February to provide options for CPF members 2015, which included giving members who wish to take on some investment the flexibility to withdraw more as a risk in order to seek higher returns on lump sum upon retirement, deferring their CPF savings. the starting age for their retirement To build a more inclusive and resilient payouts, and providing clearer choices society, the Government has signalled over their desired level of retirement its commitment to enhance the CPF payouts and corresponding retirement system and reinforce Singapore’s social sums to set aside. The Panel is in the safety nets. These efforts will create a process of studying how to provide an broader and more flexible social security option for CPF members who prefer system that protects Singaporeans over retirement payouts that start off their lifetimes.
NOTES
1. For a brief history of the CPF, see https://www. 5. Under the Special Employment Credit (SEC) cpf.gov.sg/Members/AboutUs/about-us-info/ scheme, for Singaporean employees earning up history-of-cpf. to $4,000 a month, the Government will cover up to 8% of the monthly wage of those above 2. Speech by Mr Tharman Shanmugaratnam, age 50, and up to 11% of the monthly wage for Deputy Prime Minister and then-Minister those aged 65 and above. The Government has for Finance at the Academy of Medicine, also announced an extension of the Temporary August 23, 2013. Employment Credit up to 2017, which offsets up to 1% of wages (capped at the CPF salary 3. SkillsFuture is a national movement to enable ceiling), to alleviate the rise in business costs all Singaporeans to develop their skills due to the increases in CPF contribution rates throughout life. It includes the SkillsFuture and CPF salary ceiling. Credit, which can be used to offset the fees for a wide range of skills-related courses, the 6. Medifund is an endowment fund set up by the SkillsFuture Study Awards, and the SkillsFuture Government in 1993, as a safety net to help Mid-Career Enhanced Subsidy. needy Singaporeans who cannot afford to pay for their medical expenses, despite substantial 4. Workfare comprises the Workfare Income bill subsidies. The other components of Supplement Scheme (WIS), which provides healthcare financing in Singapore are more income and CPF savings to older, low- Medisave, where Singaporeans set aside a income Singaporean workers when they stay portion of their CPF savings for medical needs, employed, and the Workfare Training Support and MediShield Life, a basic health insurance Scheme, which encourages these workers to plan that covers all Singapore Citizens and attend training to improve their skills. Permanent Residents for life, and which helps to pay for large hospital bills and selected costly outpatient treatments.
ETHOS / 89 7. Singapore’s unemployment is low and the 10. There is currently an interest rate floor of 4% annual average overall unemployment rate per annum on CPF savings for healthcare and has been around 2.5% for the past 10 years. retirement, while an interest rate guarantee Singapore enjoys a high home ownership of 2.5% per annum is in place for all rate of about 90%. Singapore’s healthcare CPF savings. outcomes have won accolades, see for example, Bryan R. Lawrence, “To Fix Medicare 11. The Retirement Account is created for and Social Security, Look to Singapore”, members when they reach age 55; savings The Washington Post, August 17, 2012. from their Special and Ordinary Accounts would be transferred to the Retirement 8. Citing Singapore’s approach in his 2011 Sir Account to form the Retirement Sum. Robert Menzies Lecture, Noel Pearson argues that “…[Singapore] redistributed money to 12. Members turning 55 from 2013 onwards are promote wealth and asset development, not automatically enrolled in CPF LIFE, and are consumption. The lesson here is subsidising eligible to start their retirement payouts at consumption is fatal. By doing so you age 65. Older members who turned 55 before neutralise the most important incentive to 2013 can choose to opt into CPF LIFE. strive and work.” Noel Pearson, “Proof of Welfare’s Multiple Failings”, The Australian, 13. Such demographic factors would include old- March 5, 2011. age dependency ratios and fertility rates.
9. CPF members earn up to 5% per annum 14. The GST Voucher was introduced in Budget on their Special, Medisave and Retirement 2012. It is a permanent transfer scheme to Account monies, inclusive of an extra 1% help lower and middle-income households with interest paid on the first $60,000 of a their expenses, in particular, what they pay member’s combined balances (with up to in Goods-and-Services Tax (GST). There are $20,000 from the Ordinary Account). From three components to the GST Voucher: Cash, January 2016, CPF members aged 55 and Medisave and Utility-Save (or U-Save). above also earn an additional 1% extra interest on the first $30,000 of their combined balances (with up to $20,000 from the Ordinary Account). As a result, CPF members aged 55 and above will earn up to 6% interest per year on their retirement balances.
90 / Uniquely Singapore, Uniquely CPF THE ETHOS ROUNDTABLE
Risk-Ready Leadership
Three distinguished participants from Singapore’s 8th Leaders in Governance Programme share insights on how the public sector can embrace a more complex and uncertain world.
The ETHOS Roundtable was conducted by ETHOS Editor-in-Chief Alvin Pang in September 2015 with a group of participants in the 8th Leaders in Governance Programme (LGP) (24 August to 1 September 2015). Organised annually by the Civil Service College, the LGP draws from Singapore’s development experience to offer practical insights into the fundamentals of good governance and effective policy implementation for sustainable economic development and social cohesion. Over the seven-day programme, participants interact with senior government officials and thought leaders, and visit key government agencies to understand their operating philosophies and values.
PARTICIPANTS Mr Nikhil Seth, Executive Director, United Nations Institute for Training and Research Ms Stephanie Foster, Deputy Public Service Commissioner, Australian Public Service Commission Mr Said Faisal, Executive Director, ASEAN Coordinating Centre for Humanitarian Assistance on Disaster
On Important Developments in the is the major defining feature of public Public Sector Today service today. Seth: In an earlier era, the relationship between the political leadership, the Foster: In Australia, the focus has been civil service and the public was based on the need for public service to be agile on benevolence, but this is no longer and flexible — features which haven’t the case — information technology and been traditionally associated with social media have changed governance bureaucratic, hierarchical organisations. forever. Governments and civil services This is about being flexible and adaptive have had to be much more responsive to both in terms of the way in which we people’s concerns, which have become respond to a changing public environment, much more apparent, demanding as well as the way we work with each more urgent attention. This dramatic other. We’ve talked a lot about the shift, from official benevolence to need to work across government, and responsiveness to citizens’ concerns, working genuinely with citizens, private
ETHOS / 91 sector and non-profit sectors. So it’s others are changing the process, just moving away from what Nikhil terms so we can join the club. But if this is an environment of benevolence towards at the expense of the results we want, one of more genuine co-creation, to use then I think we have to differ. We have a current buzzword. to understand what works for us — we cannot let the process become the The question is no longer about managing objective in itself. I think there will the risk, but living with the risk. be trade-offs. With all the rapid changes in the This has enormous challenges world, the question is no longer about for organisations that have not been managing the risk, but living with the used to working like that. But it also risk. In this context, the ability to adapt has enormous benefits, in the way we becomes important — but adapting also have been nudging the public to serve entails sacrifice, changing the way we themselves — a concept more familiar do things, which is the toughest thing in Singapore than in many other to do. People understand that there countries — so that we can meet the is no victory without sacrifice. Good demand for service that is immediate, leaders will define what victory means, responsive and delivered in a way people and what the cost is. want without expanding the public service. By harnessing the power of a Seth: The purpose of governance more capable, educated public, we can, is to enhance the wellbeing of your together, deliver a much higher level of citizenry. But public wellbeing is a very service, and achieve all of the things complex interplay of forces which act that we want to do. upon peoples’ economic aspirations, as well as social aspirations. People want Said: At the end of the day, it is about decent jobs. They want security. They what results we want to achieve. When want opportunities. But they also want you change the business model or your their families to do well. They want to approach, you have to bear in mind move up the social ladder. They want whether the results you desire are to overcome discrimination, explicit or achievable. I’m always worried when implicit. They want to live in a good we change processes simply because environment, with peace and security.
All these forces act so indivisibly across various spheres that the issues have to be seen in their complexity and to be tackled simultaneously in order to enhance well-being.
92 / Risk-Ready Leadership In the past, we have tackled these to do with having the same party in forces in certain silos. There are ministries power for so long. that look after economic prosperity, But often in Australia, we bemoan employment; others look after social the difficulty we have sustaining long- inclusion, law and order, and so on. term planning and in fact, we’re working But all these forces act so indivisibly very hard to reskill our public service across various spheres that the issues to not blame politics for stopping them have to be seen in their complexity and from doing what is our real job, which to be tackled simultaneously in order is to plan long-term sustained futures to enhance well-being. The old silo in all of our policy areas. approaches of segmenting economic issues, social issues, environmental Policy without execution is hallucination. issues and peace and security issues are no longer possible. Like anything in life, you got to work So the ability of governance to see with what you have, and so if ministers inter-relationships and to optimise or governments have particular political policy, to see where resources are best drivers, then you’ve got to find a way spent, so that these complex forces of achieving the best you can within which act upon the individual can be that framework. Part of our job as civil simultaneously addressed, is the key servants is to give the government challenge in most governance systems options that they can work with, rather and in all societies and economies today. than saying this is the ideal, but we are never going to get that through because On Balancing Short- and Long-Term Public Goals the politics will interfere. It’s one of Foster: For any country, but particularly the biggest challenges but also one of those of us who are relatively small, the most exciting things about public having the agility to uphold competing sector work: to get the best solution priorities and drivers and manage them possible through the politics of the day. all simultaneously will become critical to our success. Like Singapore, we Seth: In many of our countries, the shouldn’t ever let ourselves be forced political discourse is being hijacked into binary choices. — the whole political conversation In the Singaporean context, what I ends up being about peripheral issues. found striking was the importance and But Singapore has managed to keep the extent of alignment between the the political discourse around the elected government, the civil service well-being of its people, on looking and the people. Obviously that is partly ahead, and the different approaches of
ETHOS / 93 getting there, so you can have a vision This is where good leadership makes for the next fifty years — that’s the the difference. A good leader tells you kind of planning most countries need what victory looks like, and what it will but short-term politics don’t allow to take to get there. You can let market happen. Nevertheless, the forces that mechanisms work, in which you get are driving change in the world will good leaders sometimes, and different have a deep impact, and they need to leaders at other times. But I believe be planned for now. good leadership is manufactured — it is a deliberate process, at all levels. Said: The model of long-term planning This is why the Civil Service College in in Singapore is about anticipating Singapore is remarkable: it is a system change. Long-term planning is not for creating public sector leaders. just a slogan, but a carefully designed, robust process with many stakeholders. Foster: Many people and many It is also oriented towards producing organisations tend to make a choice outcomes we want, not long-term between being either thinkers or doers; planning for its own sake. But I think focused on the future or focused on details. what separates good from average is All of these are equally important and the discipline of execution, which is without all of these elements, you get lacking in many other countries. The a far less desirable result. Not any one general assumption is that those at the person will have all of those things, high level focus on the big picture, the but it’s our responsibility to make sure softer aspects. But we have learnt is that they are in the system. Leaders bring whether you are high level or low, you that all together. need to understand what it takes to get things done. You can have great plans or On Desired Qualities of Leadership ideas but it’s the discipline of execution Seth: Care and responsiveness are two that makes a difference between one qualities which are to me emblematic of organisation to another, one country great leadership. Through being caring to another. Policy without execution and being responsive, good leaders is hallucination. Everyone feels good create an atmosphere of trust; people about it but actually nothing happens. trust in the decisions you make. This is important, because tough decisions The two things that leaders really need require trade-offs and sacrifices. If the people are convinced that this is to be good at, and cannot delegate away, happening for their well-being and are the questions of “what” and of “why”. welfare, and the leader cares for them
94 / Risk-Ready Leadership and is trying to build trust with them, that the public service has a responsibility I think the society will do well. to actually help determine the “what”, and then equipping people to do the Said: In the end, the two things that “how” really well. leaders really need to be good at, and In that regard, we need leaders who cannot delegate away, are the questions are blazing the trail, not following the of “what” and of “why”. They are difficult past in different guises. It goes to what questions: “Why do we want to achieve was raised earlier about the question as you wish?”; “What do you want to of risk, and how every success involves see in the next five years?”; “What sacrifice. In the public services, I think does Singapore want to be in the next is important to learn to embrace risks, 50 years?”. Leaders really need to and engage with risk as a core part understand the “what” and the “why”. of our business, not as something to You can delegate the “how” — it is manage on the side. At one point during technical. But the “what” and the “why” the LGP course, we talked about not need to be solid. being firefighters but venture capitalists. Venture capitalists operate by taking We need a sense that risk, by doing it sensibly, methodically, with a good evidence base and so on. constructive engagement Fundamentally, they have to be at the with risk is what makes us forefront in order to succeed at all. In the same way, we need the same relevant and responsive. kind of entrepreneurial spirit in the public sector. We need a sense that Foster: Public servants can fall into constructive engagement with risk is the habit of thinking that they are all what makes us relevant and responsive, about the “how”, while the political rather than being averse to risk and masters determine the direction, which treating it like the scary monster in the we just implement. But the vision in closet. If we can crack this as a public Singapore is one of the public service service, as part of being good leaders, in partnership with the government to it will propel us into the future. shape the country’s future. This means
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