Commentary: Volume 25, 2016 Singapore: A Democracy of Deeds and Problem-Solving
Editor: Gillian Koh
Published by The National University of Singapore Society (NUSS) Kent Ridge Guild House 9 Kent Ridge Drive Singapore 119241
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COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 1 Contents
Editor’s Introduction Chapter Seven 5 - 10 Singapore: A Democracy of 61 - 68 Developing the Singapore Deeds and Problem-Solving Soul: ACRES and Animal Gillian Koh Welfare Louis Ng Chapter One 11 - 20 Revisiting S Rajaratnam’s Chapter Eight “Democracy of Deeds” 69 - 77 A Sustainable Future through Irene Ng Purposeful Making Veerappan Swaminathan Chapter Two 21 - 28 Singapore 100: Becoming a Chapter Nine City of Good 78 - 85 The Challenges and Promise Melissa Kwee of Ground-Up Social Innovation Chapter Three Kuik Shiao-Yin 29 - 37 Foundations: The Mutants of Democracy Chapter Ten Lee Poh Wah 86 - 92 Five Hunches about the Future of Public Policy Design Chapter Four Bernise Ang 38 - 49 ‘Giving a Future to our Past’ - Reflections on Developing the Chapter Eleven Heritage Conservation Cause 93 - 100 A Democracy of Words Chua Ai Lin Johannis Auri Bin Abdul Aziz
Chapter Five 50 - 53 Building an Enabling Environment for Successful Ageing Susana Concordo Harding
Chapter Six 54 - 60 Transient Workers Count Too’s Singaporean Way with Advocacy on Migrant Workers John Gee
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 3 ...... Mission Statement
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At NUSS, a lifelong relationship with NUS and the wider graduate community is achieved through two mutually reinforcing thrusts:
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4 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Editor’s Introduction Singapore: A Democracy of Deeds and Problem-Solving Gillian Koh
Gillian Koh is Deputy Director (Research) at the Institute of Policy Studies which is part of the National University of Singapore (NUS) where the area of civil society and its development is one of her research interests. An NUS alumnus herself, she is proud to be a member of NUSS.
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 5 Editor’s Introduction
Singapore: A Democracy of Deeds and Problem-Solving
This edition of NUSS’ Commentary significant milestone — Singapore’s trains the spotlight on Singapore’s 50th year of Independence. For that active citizens, with a theme that reason, we thought to shift the attention borrows a phrase used by the late towards the extraordinary acts that former Deputy Prime Minister and one ordinary citizens and community leaders of independent Singapore’s founding have mounted to address the country’s leaders, Mr S Rajaratnam. He had said social and cultural needs. Oftentimes, that Singapore should be “a democracy those ground-up actions have led to of deeds, not of words”. change in public policy. The chapters in this edition of Commentary provide the Writing in the early years after NUSS community with an update on the Singapore’s unexpected birth and in the life of civil society in Singapore. midst of the difficult geopolitical conditions facing us, Mr Rajaratnam felt Outside of government policy and that Western norms of liberal democracy programmes, or sometimes in addition to like having a confrontational opposition or opposition against government policy, and adversarial politics would not bring many active citizens have worked us the effective long-term governance tirelessly, quietly but effectively for a and the progress we desperately sought. better Singapore. While there can always be discussion and dispute over what is His plea was for the kind of democracy defined as the ‘common good’ or the that would involve citizen participation at ‘public good’ for a community and all levels of society; to “get people away country, these active citizens let their from adversarial democracy” so that they actions speak and allowed the fruit of would “solve practical problems in a their labour prove their intent. They also practical way”. The first chapter of knew that the means by which they Commentary 2016, written by the award- hoped to effect positive social change had winning biographer of Mr Rajaratnam, to reinforce that social good. Or, as a Ms Irene Ng, provides a crisp background Gandhi has often been quoted as saying, essay on what this meant and why it was many of them have been cognisant that important for a Singapore that was “the means are the ends in the making”. struggling for survival. It explains the theme of our journal this year. There are several key messages from the chapters of Commentary 2016. Previous editions of this NUSS journal First, that even in the most obvious have provided excellent critical areas of need, there is still a lot of room analyses of different aspects of public for novelty, the spirit of insurgency and policy, with the most recent 2015 one innovation to bring about positive set within the celebration of that social change.
6 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Editor’s Introduction
Singapore: A Democracy of Deeds and Problem-Solving
We have here, a record of how philanthropy that brings paradigm shifts Singaporeans and local non-government in the practical levers of social change, organisations have invested themselves should be a sunrise sector. in articulating and addressing the needs of Singapore’s social minorities – what The second message therefore, is that the chapters by Melissa Kwee of the while active citizens can sometimes feel National Volunteer & Philanthropy daunted when they think the problem is Centre, Lee Poh Wah of the Lien larger than what any one person or even Foundation as well as John Gee of an organisation can address, they can still Transient Workers Count Too, do. make a difference.
They speak of the more novel individual In addition to the three chapters referred and corporate acts we too can explore in to above, the interview with Louis Ng and addressing the daily needs of the poor the chapter by Veerappan Swaminathan and disadvantaged; the efforts to support speak of their journey to help children in their climb out of the effects Singaporeans become more aware of the of being from such backgrounds through larger, more complex ecological system innovative models of pre-school that they must seek to understand, education; and the practical acts but treasure, and act on. also policy advocacy targeted at improving the welfare of Singapore’s Ng, a long-time activist against animal migrant workers, often the invisible part abuse and the illegal wildlife trade who to what sustains life in our busy city-state. founded the group called ACRES as an undergraduate at the National Kwee highlights the ways that individuals University of Singapore (NUS), shares, and corporate citizens can find that are in an interview, how his work is not just within their means to adopt, to make a about animals but about us humans - difference in the lives of the needy. Lee developing the Singapore soul that on the other hand, represents the sector acts against unethical practices and of philanthropic foundations that is injustice wherever we see it. He describes always associated with out-sized financial the process of multi-stakeholder resources. With a clarity of purpose and engagement which culminated in the the freedom of manoeuvre, Lee discusses November 2014 changes to animal how the Lien Foundation has been able welfare legislation. It encourages us to to develop innovative solutions to deal find ways to develop allies in our fight for with the multiple challenges that the a fair and just world. poor face in seeking a brighter future. As a relatively developed society, this Swaminathan of the Sustainable Living space of intelligent and progressive Lab or SL2, a movement spawned while
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 7 Editor’s Introduction
Singapore: A Democracy of Deeds and Problem-Solving he was still studying at the NUS as well, impact of its urban redevelopment plans is inspirational for his creative and on our historical sites and buildings; to practical approach to ecological take heed of these intangible but sustainability; no action is too small or invaluable considerations of heritage and modest if we want to do our part for the memories. It is integral to the cause that health of Planet Earth. He introduced the the state comes to institutionalise the Maker Movement in Singapore and practice of impact assessment – it signals created a programme where people can to active citizens and academia that it is learn to repair their household items worth investing expertise in these areas rather than dispose of them. After all, so that decision-making is informed, being conscious of our ecological impact robust and wise; it also ensures that what is only being kind and fair to the is of national and public concern need not generations that come after us and be politicised in the sense that whether Swaminathan convinces us that we do a heritage site is of value will not be not need to be stumped by the seeming caught in the whims, fancies or enormity of that mission. Every small adversarial competition of politicians. step, every little act adds up; each can speak volumes of what matters to us. Working with the government and other voluntary welfare groups to bring about The third message which we see clear systemic social change is not easy, but references to in Ng’s interview, is that Susana Concordo discusses how that has active citizens can and must find effective been a rewarding journey in the area of ways to foster collaboration with other ageing. How we treat our seniors to stakeholders in the issue that they ensure they can still access all the things invested in. that make life meaningful, how the genders age differently and therefore The chapter by Chua Ai Lin is another that need to be supported differently, are expresses this idea of preservation as well forms of consciousness that have become as collaboration. Through her work with mainstream because of her work and that the Singapore Heritage Society, she is of the Tsao Foundation. Concordo focused on the mission of preserving our describes a special ageing-in-place country’s built heritage and collective programme in Whampoa which thrives memories. We have become more because it has the cooperation of thoughtful about these because of the agencies in the government, the activism of folks like her. It is also voluntary sector as well as academia. through careful advocacy work by the organisation that the government too has The fourth message of the journal is that come to accept the need for a more at the end of the day, active citizens systematic basis on which to assess the whether young or old just have to take
8 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Editor’s Introduction
Singapore: A Democracy of Deeds and Problem-Solving risks but also possess that priceless and dependencies. The change must be quality of being prepared to learn on sustained; it must generate self- the go. reinforcing circles of virtuous outcomes. Even if we are risk-taking, active citizens The chapters in this volume give voice to can be wise and thoughtful in how they young Singaporeans who have and seek to intervene in the part of the social continue to find new ways to bring about world that has caught their interest. social change. They have a heart for the world around them, they are energetic, The fifth and final message is that smart and do not wait for permission to sometimes, ‘words’ do make all the try out new models of social action. difference and so, it is too optimistic that Current Nominated Member of Singapore need only be a “democracy of Parliament and founding member of The deeds”. Thought Collective, Kuik Shiao-Yin expresses the courage, conviction and In coming up with their solutions, it is commitment that is needed to break most certain that our contributors will new ground specifically in the area of have been inspired by ‘ideals’, and education and citizenship training among conducted their advocacy with ‘words’ youth in her chapter. She and her but the articles in this volume have partners just went out there and did it, privileged accounts of practical through success and failure, creating programmes of self-help, community what is akin to Singapore’s first social action and enlightened philanthropic enterprise conglomerate today. leadership. They demonstrate the active use of our contributors’ sense of political Bernise Ang is another outstanding young rights, civic liberties and resources. Singaporean whose chapter highlights However, not all problems can be solved the need for a more thoughtful planning merely by deeds. process as we develop public programmes to improve the lives of our ‘Words’ and ‘ideals’ are integral to fellow citizens. The deeds we seek to developing and expressing our identity – perform have to be sensitively designed who we are; what we believe in. For that to take into account the behavioural reason, Commentary 2016 ends with a inclinations, the culture and the outlook chapter by young scholar, Johannis Abdul of those we wish to work with . These Aziz, who highlights areas in which civic have to be married with with the deep discourse cannot but be the route to expertise on the problem area that we peace, happiness and progress for our are addressing. The impact we should nation. In the emerging values conflict seek is one that empowers the people at around areas like gay rights; sanctity of the heart of it, not create greater need life questions of euthanasia and the death
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 9 Editor’s Introduction
Singapore: A Democracy of Deeds and Problem-Solving penalty; and religious accommodation in Who can forget the landmark pre-General secular Singapore, it is the process and Election dialogue with representatives of quality of our civic discourse that will ten political parties held in August 2015 determine if such issues will tear us apart, which was webcast, recorded and shared or allow us to accept and even transcend right across the country? We also have our differences of opinion and conviction. our regular Ministerial Dialogue sessions that help us keep abreast of policy What is the objective behind our theme developments. As the political landscape and choice of articles? It is to reinforce becomes more varied, NUSS should within the NUSS community the idea that continue to provide a platform where we we have power in us to develop the seek out the light that lies beyond the engaged, compassionate, inclusive and heat, sound and fury of policy and progressive nation we want. political debates.
The NUSS community already does We hope that the stories of social extraordinary things. We contribute to innovation and action in this edition of the NUS Alumni Bursary Fund to help Commentary will motivate members needy NUS students. In the special SG50 further to be those problem-solvers in year, a sum of almost $2.8million was their spheres of influence that the raised for this cause that ensures that country can benefit from. Get some tips many more young Singaporeans enjoy on how to rally your peers and other the social mobility that comes with a stakeholders around that programme of good university education. In 2014, we improvement and change. Be spurred had already contributed about $404,000 on to consider the importance of to the Fund. designing sensitive, suitable and sustainable solutions to the issues you NUSS members do not just give dollars care about. Most of all, be inspired to get but do deeds through our Groceries on those plans off the ground as many of the Wheels (GOW) programme that has been contributors to this volume already have. running since 2010. Members deliver to the door, daily essentials to the poor and disadvantaged. Twelve thousand beneficiaries have been reached in this way over the years, and we should do more.
Our community is also committed to contributing positively to Singapore’s political and intellectual development.
10 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Chapter One Revisiting S Rajaratnam’s “Democracy of Deeds” Irene Ng
Irene Ng is Writer-in-Residence at the Institute of Southeast Asian Studies. She is the biographer of S Rajaratnam. She published the first volume ‘The Singapore Lion: A Biography of S Rajaratnam’ in 2010 and is currently writing the second volume of the biography. She is a former Member of Parliament.
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 11 Chapter One
Revisiting S Rajaratnam’s “Democracy of Deeds”
“What you have done may not get as was confronted with existential much publicity as the utterances of challenges at every turn. It was professional oppositionists, but long surrounded by a dangerous regional after these have gone, what you have environment and besieged by done will strengthen the democracy of problems from multiple directions. deeds and not words.” How should Singapore’s leaders steer ~ S Rajaratnam (14 August 1971) their newly independent nation? How should its people respond to the It has been 45 years since options available? These were the S Rajaratnam spoke those words to questions of the hour. They would grassroots volunteers and coined the shape the country’s politics and its phrase “democracy of deeds”. It people’s lives for decades. encapsulates his views on one of his deepest political preoccupations: To survive and succeed, the fledgling the sort of democracy and society democracy had to build its own that Singapore should strive for. foundational pillars based on its More fundamentally, it animates objective conditions and needs, not Singapore’s search for a model of on some preconceived model governance that would safeguard the imported from Western liberal small country’s survival and advance democracies. For Rajaratnam, an the welfare of its people in a harsh important pillar would be a and unpredictable world. democracy of deeds, not of words.
Known as the ideologue among the His phrase “democracy of deeds“ has first-generation Cabinet leaders, since been stamped onto the political Rajaratnam advocated what he termed lexicon. In recent years, several a “problem-solving democracy”, leaders have invoked it in their oriented towards solving the problems speeches, including Prime Minister of the people in practical ways — as (PM) Lee Hsien Loong. opposed to a democracy of words, engaged in empty rhetoric and political These recent iterations of Rajaratnam’s confrontation. His was not a theoretical principle throw a fresh spotlight on proposal. It was a call to action. his views on the subject. This essay is divided into three parts: First, an Those were the turbulent years when examination of his concept of building Singapore’s survival as an independent a “democracy of deeds”; second, the country was far from assured. A small context; third, some thoughts on its island without any natural resources, it relevance today.
12 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Chapter One
Revisiting S Rajaratnam’s “Democracy of Deeds”
Origins of Concept Africa, had been followed by internal conflicts based on race, language or Philosophical, urbane and learned, religion. He became obsessed with Rajaratnam was an intellectual with ensuring that Singapore would avoid encyclopedic knowledge of the theories that fate. of democracy and its practice in various parts of the world. However, as a political Reinforcing their cautious stance towards practitioner, like many other leaders of his the Western liberal democracy model generation, his views had been largely was their own searing experience battling shaped by the realities of running a with pro-communists in the critical years fragile country at a time of great upheaval which determined the fate of the country. and stress. Indeed, since 1961 when the pro- With the weight of the country’s communist members from within the problems on their shoulders, the People’s PAP broke away and formed the left- Action Party (PAP) leaders were more wing opposition party, Barisan Sosialis, interested in practical solutions than Singapore politics had been bitterly power politics. They had observed warily adversarial. After Singapore’s separation how other newly-decolonised nations in from Malaysia in 1965, Barisan Sosialis the Third World experimented with boycotted parliament in protest against democracy in moments of promise, yet what it termed as Singapore’s “phoney failed their people so spectacularly. independence”. It took its fight to the Demagogic and corrupt leaders had used streets with illegal strikes and protests populist tactics to win elections, only to in tandem with the communist be plunged into interminable power revolutionary waves then sweeping the struggles while they squandered away region. The boycott paved the way for the country’s resources to stay in power. the PAP to dominate parliament as it swept all the seats in the successive The PAP leaders had also learnt how elections until 1981, when J B Jeyaretnam democratic dysfunction in some of these of the Workers’ Party won a seat in a by- countries had brought about political election. paralysis and, in several cases, democratic collapse with military takeovers. Life for For Rajaratnam, then Singapore’s foreign their people had in fact worsened since minister as well as labour minister, the those states gained independence: more Barisan boycott was the biggest turning corrupt, more lawless, more violent. It point in Singapore’s political history. It worried Rajaratnam, in particular, how allowed the government to focus on the process of decolonisation in many economic and social development, Third World countries, such as in Asia and unobstructed by political roadblocks.
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 13 Chapter One
Revisiting S Rajaratnam’s “Democracy of Deeds”
It also provided an unparalleled The primary purpose of many of his opportunity to shape the country’s speeches then was to convince the political culture for the long term. citizens of the difficulties facing the country; to raise the Singaporean cause In formulating policies and above parochialism, above division, and communicating them to the public, above history; and to unite the people Rajaratnam worked closely with with a sense of common destiny in words Singapore’s then PM Lee Kuan Yew that inspired action. Using his gift for and the key cabinet members. language and ideas, he sought to instill Some policies, such as compulsory in the people a new spirit and a new national service and the urban attitude. renewal programmes, proved highly controversial. A manifestation of this effort can be glimpsed in his phrase “democracy of The lack of checks and balances in deeds” from his 14 August 1971 speech. parliament drew criticism from some However, what did he mean by it? While quarters in Singapore as well as abroad, Rajaratnam did not specifically define particularly from the United States and the phrase, a close analysis of his the United Kingdom. They charged, various expositions on the subject among other things, that Singapore was reveals its key features: A democracy undemocratic. of deeds is based on public-spirited action in solving society’s myriad Rajaratnam took the issue by its horns, problems, a sound understanding and and seized the opportunity to expound appreciation of the country’s external and on one of his favourite subjects: the internal realities, and a devotion to the fundamentals needed for Singapore’s welfare of the people. democracy. It is important to note here, however, that his core ideas In Rajaratnam’s mind, this conception on a problem-solving approach to was an essential part of the “problem- governance predate the Barisan solving” democracy that should be boycott, and can be discerned in his developed – involving the participation speeches and writings as far back as the of as many citizens as possible in trying early 1960s. The approach was based to solve “practical problems in practical on his conviction that Singapore, ways”. Indeed, real democracy, as despite its inherent vulnerabilities, he argued in another speech on could triumph against all odds by 23 December 1971, is “one in which the relying on what he touted as the only various activities in a society are resources it had — human will, distributed as widely as possible among ingenuity and intelligence. the people”.
14 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Chapter One
Revisiting S Rajaratnam’s “Democracy of Deeds”
While some tasks requiring strategic by getting the people involved in solving planning and national coordination had problems, they would better understand to be performed by the Government, the constraints and challenges facing other tasks, such as solving local Singapore. Hence he hailed the problems, should be carried out by the government’s move to empower people people. “The more participation there is to run town councils in 1988, calling it by the people in the thousand and one an important stage of Singapore’s activities of society, the greater the democratic process. “This stage would be measure of democracy,” he said. the most difficult because Singaporeans would have to learn to be responsible for Significantly, Rajaratnam often held up their mistakes...They would also find that the efforts of grassroots volunteers in the exercising authority would not mean community as evidence of democracy popularity and total freedom,” he said. at work, and as strengthening the democracy of deeds that he envisaged. At the heart of his “problem-solving At constituency events, he highlighted democracy“ was his deep-rooted belief their efforts to “solve practical problems that good governance was about action in a practical way,” such as helping and results. Hence, the issue was not residents affected by the urban renewal whether parliament should be made up programme, raising funds to build a of one party or multiple parties. The community centre, thereby helping to important factor was the “quality and build a better society. Besides character of the parties concerned – constituency grassroots organisations, he whether in government or opposition”. also encouraged citizens to join other “An opposition party consisting of bums, grassroots groups such as trade unions opportunists, and morons”, he argued, and cultural groups to help solve the could endanger democracy and bring problems they faced. “Then you have about chaos, disorder and violence, as real democracy. Not fighting, not had happened in many countries. confrontation, but it’s when people get around to do some job to make life What concerned Rajaratnam was the better for all,” he said. Democracy did kind of opposition politics that would take not mean opposing everything the root and be entrenched in Singapore’s government proposed, for then political system – constructive and progress could not be achieved, he responsible, or destructive and stressed. Rather, it meant that the people obstructive. Given the high stakes and the had a say in solving problems and making combustible external climate then, he decisions at the grassroots level. had grave misgivings about the kind of adversarial partisan approach that Furthermore, Rajaratnam believed that, necessarily upholds opposition for the
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 15 Chapter One
Revisiting S Rajaratnam’s “Democracy of Deeds” sake of opposition. He said, “In my view, sensitive Singapore was to external what we need are problem-solving developments and its need to be flexible parties. These will become effective and forward-looking. The general public opposition parties if the ruling party had a limited understanding of the shows itself to be clearly incapable of complex issues involved in policy-making solving real and vital problems affecting and the challenges the government faced the nation. Only an opposition which can in addressing the new situations. This come out with better solutions to drove him to make repeated calls for problems than those offered by the ruling Singaporeans to understand this hard party can become a genuine and truth: many of the country’s domestic meaningful opposition.” policies had to be modified to respond to external realities out of sheer necessity. As for the critics of the day, Rajaratnam’s main issue with them was over the Context and Concerns quality of their criticisms. He fretted about the “persistent tendency for critics The external threats at that time of Government policy to view its actions presented one of the most dangerous as though Singapore were an island cut periods in Singapore’s history since off from the rest of the world”. He independence: Britain’s accelerated approached armchair critics with the withdrawal of its troops from Singapore undertone of scepticism about the high by the end of 1971, amidst a volatile principles they invoked, usually at high geopolitical landscape. The pull-out decibels. He relished cutting through posed serious threats to the country, their bombast to ask if they genuinely already battered by the shock of cared for the ordinary people, or were separation from Malaysia. The British they opportunists just out to grandstand presence was the bulwark of defence for popular applause and personal self- for Singapore, curbing communist interest? However, he would welcome insurgency within the country and “meaningful, constructive criticisms as a deterring potential aggressors. problem-solving approach”, as he said on another occasion in 1971, and The Singapore leadership’s sense of expressed the hope that “criticism as a crisis was compounded by the problem-solving approach may grow in realisation that, in dealing with the new the years to come”. challenges, the country was on its own. A deep strategic thinker, Rajaratnam as Underlying Rajaratnam’s problem-solving Singapore’s first foreign minister was approach was his deep concern that, in only too aware of the country’s indulging in gloomy navel-gazing, vulnerable position, and of the new Singaporeans would lose sight of how dangers arising from the dramatic
16 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Chapter One Revisiting S Rajaratnam’s “Democracy of Deeds” changes in the strategic environment. Chinese-medium schools, and trade unions. Already, an increasing number of The first major change was Britain’s left-wing disturbances had been troubling accelerated withdrawal of its military the island. forces from East of Suez, announced in 1968, which marked its retreat from If these were allowed to escalate, the a global role. Meanwhile, the United cocktail of agitations would poison States, demoralised by the long-drawn Singapore’s efforts to attract the foreign war in Vietnam and shaken by the Tet investments that the country so Offensive in 1968, signalled its plans to desperately needed to provide jobs and withdraw from the Indochina War, which a better standard of living for its people. was the centre of the Cold War in the From the crucial years of 1968 to 1971, region. Rajaratnam took on a second portfolio as Minister for Labour to push through These shifts in the era of the Cold War tough labour laws to restore stability in turned the region into a focus of intense the country’s economy. During this rivalry for ambitious powers such as sensitive period, Rajaratnam adopted a China, the Soviet Union and Japan. firm hand in bending relations between Observing the moves in 1971, the government, trade unions and Rajaratnam described the region as “one employers toward the national in the throes of rapid and revolutionary imperative of social discipline and changes”, and added sombrely, “some of economic development. these changes portend trouble for Singapore.” At the same time, as foreign minister, Rajaratnam kept a shrewd eye on what To add to the gloom, the resurgence of he described as the “treacherous armed communist activity in Malaysia in currents of international politics”, 1968 boded ill as the tide of revolutionary cautious about how major powers had armed struggle swept across Southeast shown a readiness to pursue subversion Asia. The war was expanding from and proxy wars in various countries if it Vietnam to Laos and Cambodia. suited their own national interests. He was alive to how great power rivalries Rajaratnam feared that the withdrawal of were being fought out in some Third the British and American troops from the World countries with civil wars aided – region would give a fillip to the clandestinely and openly – by the big communists’ efforts to subvert Malaysia powers and their proxies. The rise of and Singapore. In Singapore, the principal covert operations by big powers in the targets for communist subversion were newly-independent countries rang alarm radical left-wing parties, students in bells especially for small nations. In his
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 17 Chapter One
Revisiting S Rajaratnam’s “Democracy of Deeds” speech at the United Nations in 1971, he warned that the major powers would not said, “If the small nations are to prevent have the “slightest compunction“ to becoming expendable pawns in the big sacrifice Singapore and its two million power game, they must first put their people if Cold War interests demanded own houses in order. As long as we are it. His upshot was: “Nobody is going to internally weak, we are easy prey for big look after our fate and fortunes except powers.” ourselves. Anything else is wishful thinking. It is the road to disaster.” Hence, he was particularly wary of incidences in Singapore that appeared To compound the pressures on instigated by external forces under the Singapore, this period also witnessed cloak of concealment, and was anxious high-wire drama with Malaysia and to strengthen Singapore’s defences Indonesia. With memories of the fateful against such covert activities. Clearly, 1964 Malaysia-Singapore race riots still with its strategic importance, Singapore raw, there were anxious moments as had become an important target of the Malaysia’s racial troubles in 1969 to 1971 major powers in their struggle for power played out. Knowing how easily and influence in the region. As he warned Singapore could be drawn into the fray in May 1971, “The setting against which across the Causeway, the Singapore the drama of survival will be played out government kept a tight lid on communal in future is bigger; there are more players tensions on the island and reinforced its involved; and they are more powerful and multiracial policy as expressed in the the plot more complicated. And black Singapore Pledge, which Rajaratnam operations are part of this play.” At stake drafted in 1966. in this unfolding drama were Singapore’s sovereignty, and its independence to Coalescing with the troubles up north chart its own political course. Against this were rumblings from the south with ominous backdrop that year, the Indonesia’s anger at Singapore’s government took action against a execution of two Indonesian marines in Chinese language daily, Nanyang Siang 1968 for their role in the 1965 bombing Pau, and two English-language dailies, of MacDonald House in Singapore. The Singapore Herald and the Eastern Sun. Indonesians responded to the hanging with mob violence and attacks on The fear of external interference in Singapore’s diplomatic mission in Jakarta. domestic politics ran deep among the Foreshadowed by the experience of Singapore leaders, having witnessed its Indonesia’s Confrontation [Konfrontasi], destabilising effects in other countries. it was a tense period for Singapore as it Citing the wars in Vietnam, Laos and stood up to a neighbour many times its Cambodia as examples, Rajaratnam size, and at a time when its own
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Revisiting S Rajaratnam’s “Democracy of Deeds” defence sinews were puny. Fortunately, While Rajaratnam had progressive cool heads on both sides prevailed, but instincts, he believed that in tough, the incident was sufficient to trouble uncertain times — times like the 1960s bilateral relations for the next five years. and 1970s in Singapore — ensuring the nation’s survival should constitute the Concluding Thoughts highest morality. Everything else was secondary. As Rajaratnam himself said Rajaratnam’s vision of a problem- bluntly in 1971,“We are not prepared to solving approach at all strata of loosen the reins until we are quite sure Singapore – government, opposition, that the consequences of the British run- critics and individual citizens – was an down have been effectively tackled. If the idealistic, long-term goal. It set the restraints and discipline are maintained, broad strategic direction for achieving short of overwhelming disaster, the a national consensus on democratic prospects for Singapore are good.” Note governance in Singapore. The quest that he said this in August — the same could hardly have begun in less month he coined the phrase “democracy favourable circumstances. Indeed, it of deeds” that year. could be argued that, in the difficult 1960s and 1970s, the conditions were Indeed, it may be argued that the largely not ripe for the realisation of this vision. interventionist and centralising practice As with several of his big ideas, such as of the government during those years building a Singaporean Singapore had militated to a certain extent against (1960s) or turning the country into the the growth of the widespread civic Global City (1972), he could be said to participation in diverse areas. Given be ahead of his time. the political context then, it must have been a tough call at times for the Known for his curious combination of government to decide on where to draw idealism and tough-mindedness, the line between legitimate debate Rajaratnam could be doggedly pragmatic and unacceptable incitement. In those in short-term matters, something anxious days, the government’s necessary given the external conditions preference was to err on the side under which he had to pursue Singapore’s of caution. national interest. Without his flexible and realist approach to the world, he could While this hard-headed approach was never have navigated the shoals of one not without its controversies, few can foreign policy crisis after another, helping deny that it has reaped remarkable Singapore to manage the transition from results for Singapore. It overcame the a colonial outpost to a stable democratic challenges posed by the British pull-out independent nation. and other severe problems, and turned
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Revisiting S Rajaratnam’s “Democracy of Deeds” the country into a success story of grit, never lose sight of the country’s determination and imagination. external realities. Singapore’s inherent vulnerabilities remain. Without With a more stable and resilient nation compromising the fundamentals, the today, it is timely to revisit Rajaratnam’s current political culture is steadily concept of a democracy of deeds. evolving as it adapts to the modern Singaporeans are better-educated, more challenges — a sign of hope to the demanding and more vocal. In this age coming generations. of social media and mobile technology, there are more opportunities for the public today to organise themselves and get involved in shaping society. However, it is still far from clear whether all these will translate into a democracy of deeds, and not of words.
Going forward, it is necessary to focus on the ways in which the state joins hands with citizens and institutions of civil society to help foster the constructive culture needed for such a problem-solving democracy to flourish – one based on meaningful action, a sound understanding and appreciation of the country’s realities, and a devotion to the public good. The road towards that goal may be occasionally bumpy, but, as Rajaratnam convinces us, it is an ideal worth striving for. Ultimately, its progress depends on the political will of the citizens as a people and also of the national leaders.
There is reason to be optimistic for its development as PM Lee and his new generation of leaders advance Rajaratnam’s vision within the framework of a more inclusive society. However, as Rajaratnam would have us remember,
20 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Chapter Two Singapore 100: Becoming a City of Good Melissa Kwee
Melissa Kwee is a life-long lover of humanity with a desire to connect people, ideas and opportunities to serve the greater good. Educated as an anthropologist, she has been applying the study of culture to understanding processes of social change and the role of personal agency. She serves on several community and corporate boards and has received the Singapore Youth Award, ASEAN Youth Awards and Fulbright Scholarship. She was educated at Harvard College (AB magna cum laude) and the National University of Singapore (EMBA). She is currently Chief Executive Officer of the National Volunteer & Philanthropy Centre (NVPC) which established Giving.sg; a national giving platform that seeks to connect people to causes, to enable action, learning and community building. NVPC invites partners to contribute and reach out together.
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Singapore 100: Becoming a City of Good
“Why should we be in such desperate independence, we honoured them with haste to succeed, and in such desperate accolades of leadership and hefty Pioneer enterprises? If a man does not keep pace Generation packages. The rest of us are with his companions, perhaps it is mostly glad we live in a clean, safe and because he hears a different drummer. efficient country where the laws and Let him step to the music which he hears, other rules of governance are clear, however measured or far away.” recognised and enforced (even if there are too many of them). ~ Henry David Thoreau During the Jubilee celebrations of 2015, “Do not think that I have come to destroy we stopped all of our busyness and took the Law or the Prophets. I did not come note of those around us who are in to destroy but to fulfil.” greater social need, such as the elderly, people with disability, and the poor and ~ Gospel of Matthew 5:17 disadvantaged families. We set aside our differences to be grateful about what At the cusp of our next fifty years as an we have and reflected on how we independent city-state, we stand in a achieved that. Our differences did not Singapore challenged by rising economic disappear, the economic outlook did pressures, shifting demographic trends not become more favourable and manna and conflicting ideologies that keep both did not descend from heaven, so to the policy circles and coffee shops buzzing speak. However, I observed, that we with discussion about that future. had become a Singapore that was However, Singapore has emerged from comfortable with candid conversations SG50 — code for Singapore at its 50 years about what has worked and what has not of independence — stronger, clearer and in bringing about socio-economic more united about who we are and what progress. There was humility in that kind of a country we want to build. conversation. There was even a shift in certain perspectives about what it There is a new zeitgeist brewing, as seen means to live the good life or indeed, in a rise in local pride around our built, what it means to be the ‘Singaporean of natural and cultural heritage that has, in the Year’. turn, made cookbooks, local hipster cafes and all manner of tourist paraphernalia The Straits Times Singaporean of the rise in popularity. Local icons of culture Year 2015 awardee, the first ever, are being celebrated, reinterpreted and Ms Noriza Mansor, aged 50, was not a revived. For the youth, it is suddenly ‘cool’ technopreneur, a business tycoon, or a to be Singaporean. For our senior citizens President’s Scholar. Ms Mansor is a who lived through the early years of bedsheet promoter who works in
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Singapore 100: Becoming a City of Good department stores selling various brands have succeeded? Beyond reflecting on of mass-market linens. You would have the transformation from slum to forgotten about her if not for an action shimmering metropolis or the relevance that the peer judges believed embodied of the 5Cs (condominium, credit card, car, what is best about being Singaporean. cash and country club membership), fundamental questions about our Noriza was celebrated because she had collective purpose and identity as a washed and cared for an elderly man who nation, are percolating. Do we have a soul had soiled himself in a public square as or are we simply highly functional he ran an errand with his wife who was pragmatists? Is Singapore a city of good? in a wheelchair. Why did the good Do people define the good life as a Samaritan story trump the stories of grateful and giving life, or is it defined by personal bests that other potential just having many good things? This is a awardees were feted for? What was it conversation that is just beginning. that spoke to her peers and judges? Who are the people who are trying to I imagine it was that Ms Mansor, with her make sense of this and are forging new quiet and practical problem-resolution practices and identities? What issues and abilities, embodied what we do best: we circumstances have brought about these do not make a lot of fuss when there is a opportunities to develop those practices problem. Instead, we get to the root of and identities? What patterns do we the issue and attempt to solve it as observe that can be strengthened to efficiently and effectively as possible. share the fruits of our success? Except in this instance, this was not a business or policy concern; it was instead This essay seeks to explore five trends a human issue and was addressed in a that define this new spirit of Singapore way that restored human dignity. through the lens of civic action and community-building and concludes with Despite being technocratic and practical, some practical ideas to build on that. Singaporeans intuitively know what is best about being Singaporean and about Five trends that bode well for this new being human: giving and receiving, loving spirit of service will be discussed. and being loved, being productive and enjoying meaningful fruits of our labour. Skills-based Volunteering: Because We all have a Skill to Offer Looking ahead to SG100, it is timely to reflect on the meaning of ‘success’, to Today, being a professional is more than give thanks for the origins of that success just about doing a job. More millennials and ask, for what purpose is it that we are interviewing companies to see if they
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Singapore 100: Becoming a City of Good are the kind of company they want to government skills development scheme. work for. As uncomfortable as it may feel, The programmes above allow for the this is a new reality — employees want honing of skills while there is also the more out of employment than just a creation of social value. job. For example, the pro-bono initiative of the Law Society of Skills volunteering is also changing Singapore is driven by passionate young youth volunteering. Most people lawyers whose thirst for justice have not volunteer in their youth but sustaining been met in their day jobs. Another volunteering into their adult lives has example is how Chartered Financial been the challenge. Initiatives are now Analyst (CFA) Australia and a number of shifting to focus on meaning-making, the ‘Big Four’ accounting firms are empowering youth with skills to seeking to institutionally support understand needs rather than simply charities with pro bono hours and robotically implementing programmes, services. A third example is medical and and connecting them to communities nursing students who are seeking of purpose and practice. projects locally and regionally to exercise their skills and address real needs around Modelled after the best of national us. A fourth example that comes to mind youth initiatives, Youth Corps Singapore is an initiative by the School of Chemical is raising the game at the national level. and Life Sciences (CLS) Optometry It is bringing the spirit of service to department at Singapore Polytechnic youth by offering them a way to serve, that organises eye examinations in learn and develop life-long friendships Cambodia on a regular basis. It also in a fellowship built on a common collects disused spectacles in Singapore, commitment to serve. Perhaps over catalogues them and distributes them to time, we will see more of the best and villagers in Cambodia. brightest use their talents to serve society. For instance, why not establish Beyond the traditional professions, we the equivalent of the ‘Teach for see hairdressers offering haircuts to the America’ model in Singapore which elderly poor or those who are bedridden. reaches people in the Southeast Asian “I feel so humbled when I see people line region? Fundamental to effective youth up just so I can cut their hair,” remarked volunteering is a service learning a neighbourhood hairdresser aunty methodology where the youth adopt involved in such an initiative. critical life skills which include needs assessment, reflection and meaning- We all have skills and this is part of a more making, and community collaboration holistic ‘SkillsFuture’ programme, if it is that will also serve them well and keep possible to borrow the name of the them engaged in such work later in life.
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Business for Good: Because Partnering enterprise, Samsui Supplies & Services, Others Creates Greater Impact the subsidiary of the Soup Restaurant Group, also wanted to do something to An emerging trend is found in how care for the nutrition of the elderly. For businesses analyse, design and execute their 2014 #GivingTuesday, a national day community initiatives. Corporate social of giving, Samsui pledged to serve 30,000 responsibility, while not new in quality meals to the elderly in nursing Singapore, is taking on new forms where homes, daycare centres and other leaders are not just doing their ‘day of community facilities. To fulfil this pledge, service’ or presenting cheques, but they partnered their suppliers to creating platforms and mobilising others contribute ingredients, logistics support to multiply their impact. and donations.
IBM initiated one such effort amongst Director of Samsui Supplies & Services, businesses in their neighbourhood at the Ang Kian Peng was inspired by a mentor Changi Business Park. Instead of being an who believed that giving was part of exclusively IBM initiative, they organised doing good business. “He taught me that ‘Changi Business Park Gives’ as a platform we should help others with what we do to engage businesses in the area and best. We are in the food business, so we provide an opportunity to work with the want to help those who cannot afford South West Community Development decent meals on a daily basis,” Ang said. Council on identifying neighbourhood Other than the impact on the elderly needs that businesses could address with through the programme, Kian Peng’s skilled volunteers, funds raised and greatest satisfaction was in bringing meaningful collaboration. The result? An together many people from different impressive 90,000 hours committed by walks of life to form friendships that have employees and donations of over been deeply fulfilling. $85,000. The benefit of size, an IBM leader told me, was to leverage it to serve Family-based Giving: Because We Learn others. She expressed great pride that What We Live their efforts enabled smaller businesses in the neighbourhood to get a taste of As families get smaller and where there volunteering and community work by is more intentional parenting, we also see working with more experienced the initial seedlings of family-based giving volunteers. emerge. This practice teaches values of gratitude and sharing, strengthens family However, large multinationals are not the ties, promotes a sense of self-efficacy only ones organising platforms and and the belief that we can bring about coalitions to do good. Last year, local food positive change to the world around us.
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Singapore 100: Becoming a City of Good
At the National Volunteer & Philanthropy includes the need to cater to after-office Centre (NVPC), we know that the small hours, bite-size projects; training and simple ideas work best. Last year, requirements; training courses offered during Chinese New Year, we seeded the only a few times a year to get volunteers idea of giving hongbaos to the poor by ready; and a misunderstanding of what featuring a story of two brothers who precisely is needed by charities that want decided to donate part of their hongbao support from volunteers. money to a charity whose cause was meaningful to their family. Through a This difficulty in alignment has given rise collaboration with the Singapore to new outlets in community-based and Kindness Movement and the dailies, the informal giving where passionate story generated a 73 percent year-on- neighbours have disintermediated year increase in donations to charities charities by analysing issues at the that month. Small idea - Big difference. ground level and creating their own Most of all, it changed families’ approach solutions rather than doing these through to giving by inviting them to think about existing charities. who to give to and the reason for it. To illustrate what I mean, let me cite the To share a more personal anecdote about ‘Learning Friends’, ‘Early Reader’ and this, my family has added a visit to a block ‘Keeping Hope Alive’ programmes. of one-room flats to our Chinese New Children whose parents are in jail are Year tradition. We host a dessert party for often disadvantaged. A group of friends the children at their void deck. We also created a training programme and visit the elderly staying in the block with deployed student and adult befrienders oranges and have conversations with to visit the homes of such children to them. We did these for the first time last become their ‘Learning Friends’. Their year, and more friends and family joined mission is to build the children’s sense of in this year. At the end of it, my cousin self-confidence and worth. even asked me whether we could go back regularly, outside of the Chinese New ‘Early Reader’ has been running for over Year season. a year and has developed both corporate and institutional partnerships with Informal and Community-based Giving: companies and tertiary students who are Because Everyone Can Do Something now trained, prepared and supported to read to their ‘early reader friends’. A challenge most agencies involved in volunteering grapple with is the ‘Keeping Hope Alive’ is an organically misalignment between the service grown group based on a ‘first responder’ offered and the type of charity. This concept that organises volunteers to visit
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Singapore 100: Becoming a City of Good elderly folks living alone and other one- alternative livelihoods for the villagers. room Housing & Development Board This might sound like just a drop in the (HDB) residents. The volunteers assess ocean, but as a drop in that village, he is and address the needs. They fix an ocean. cupboards, buy new mattresses, cut nails, raise funds for surgery and help the Imagining the Possibilities of Making a residents get connected to the variety of Difference services available which are not always accessible to them. The organiser invites What do these initiatives and projects volunteers to do this every Saturday have in common? How can they be morning. With more people, she says, amplified? they can go deeper and further to keep the sense of hope alive in the elderly and They all begin with a certain imagination residents of one-room flats. What makes of what is possible. There is a story that them different is their attitude — they provokes, captivates and mobilises the feel blessed by the opportunity to serve. will to take action. We need to tell more They are a new type of volunteer group stories about how this can happen. that recognises that it is they who are beneficiaries, and those whom they serve However, stories and inspiration where are their teachers. no outlet exists to do good results in cruel frustration and exercise in what some ‘Sayang Kalimantan’ went further afield may call ‘slacktivism’. We know that a to make a difference. It sought to tackle simple ‘like’ or ‘tweet’ does not the haze in Kalimantan. In the midst of fundamentally change things or result in us choking from the haze here in successful action. Anecdotes can describe Singapore, the founders asked a need but they cannot result in themselves what it must be like for those fundamental change. We need ground- living at the source of the haze and level enquiry and patience to understand decided to render help there. The the real issues to make headway. protagonist was a videographer who went to Kalimantan to offer masks and That understanding then has to be commercial grade air purifiers which connected to possibilities and resources were crowdfunded online to residents for action. People and groups will have there and to tell their story. He is now to struggle to define the real needs and trying to adopt that particular village and create platforms for themselves and offer more regular support by way of others to act. We need to connect like- training to create ‘clean air safe houses’ minded champions and resource partners which can be set up when the burning so each can bring what they can offer to starts again. He is trying to develop the table. Each has to ask: what are my
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Singapore 100: Becoming a City of Good gifts? What do I see as the world’s greatest need? How can I face my doubts to take the first step towards doing something about it today?
Perhaps that is what Singaporeans have to do today: to pause and reflect on the gifts we already have to offer. In fact, who we are is in itself a precious and priceless gift. Who can we bless with our skills, resources and with our presence? No one can do everything, but everyone can do something. It can be time, money or talent that we offer in service of one another. Let our goal be not only to be best in the world in our endeavours, but to be the best for the world and for each other. If we succeed, we will not need a ‘Singaporean of the Year’ award to exemplify what it means to live the good life in Singapore.
28 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Chapter Three Foundations: The Mutants of Democracy Lee Poh Wah
Lee Poh Wah, Chief Executive Officer of the Lien Foundation, joined the organisation as its first professional staff member in 2005. Prior to that, he worked in the Singapore Civil Service, where he established the Social Enterprise Fund. He has also held investment and business development positions in the private sector.
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Foundations: The Mutants of Democracy
The preschool at the void deck of Block visiting that preschool in 2012. Poverty 52, Lengkok Bahru looks like any other in is not only about education and jobs —it Singapore. Pint-sized furniture fills its is a disease; one that is invisible, classrooms, and song and chatter echo infectious and often terminal. We have off cheerily adorned walls. to find a vaccine, and I thought, the philanthropic foundation that I represent Watch closely however, and things start must find an answer. to look a little out of place. Germ theory Philanthropy Some children are tucking into pretend meals while one child lifts two fingers to Philanthropic foundations can be good his lips and starts puffing on a pretend vehicles for tackling such ill-defined cigarette. Another plays with a doll, but problems. After all, foundations’ in a strange, sexualised way. In art class, worldviews were historically shaped by a boy draws a wonderful, soaring eagle, germ theory. Conceived in the United because he wants to fly home “when States (US) at the turn of the 20th century, daddy beats mommy”. Some children are philanthropists such as Andrew Carnegie formally enrolled, but attend classes only and John Rockefeller sought to do for a handful of times a month or are society what scientists did for diseases: habitually late, arriving hungry. When to go beyond symptoms, isolate the probed, the teachers reveal with stoicism pathogen, and design a remedy. and a hint of embarrassment, the verbal abuse they sometimes endure from They had reason for their fanfaronade. parents. Foundations were the centres of plutocratic power that wielded outsized In a neighbourhood where some of the resources. They were opaque, free to nation’s priciest condominiums are intervene for the public good, with little located, 40 percent of the children in this accountability for what that meant preschool come from families with exactly. Moreover, like some universities, monthly household incomes that are less they possessed the powers of than $1,000. Preschools such as these immortality - they were structured legally exist across Singapore, especially where and financially to last in perpetuity. Housing & Development Board (HDB) Foundations were considered ‘mutants’ rental flats are located. Meritocratic and at conception, rejected by some as Primary 1 has not even begun, and these threats to democracy. children are already far behind. A century later, foundations have Singapore needs to think differently proliferated. In the United States alone, about poverty, I thought to myself after there were 86,000 foundations holding
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Foundations: The Mutants of Democracy
US$715 billion in assets as of 2012. The by S Rajaratnam, the bias towards action newest foundations are set up, not by plays squarely to the strengths of white-haired tycoons, but by tech titans foundations. At the Lien Foundation who speak of disruption, the same way (hereinafter referred to as “Foundation”), they upended the world of business. we have tried to step up to this challenge.
Yet, abundance and generosity have not Established in 1980, the Foundation has been matched by clarity of purpose. narrowed its focus over the years. Today, Those running foundations tend to be we work in just three areas – early tight-lipped about how they work and childhood education, eldercare, and what they are attempting to accomplish. water and sanitation – and within each There is insufficient industry data and area, on neuralgic and niche issues. We scrutiny by media and academia. In other typically conceptualise our own projects words, this corner of the charity sector is with partners that we choose to work shrouded in a mystery that rivals that of with. This essay shares some of our work Wall Street. Little wonder that a century in early childhood education and after their birth, foundations continue hopefully provides both a sense of our their struggle to attain legitimacy. philosophical approach and our experience with project implementation. Yet, legitimacy is well within the mutants’ reach. It rests ultimately on their ability Apartheid in Singapore to contribute to society in a way that is commensurate with their unique At Lengkok Bahru, we spent months position. As Rob Reich, political science hunkered down with the preschool team professor at Stanford University, pointed to understand the true nature of the out in a 2013 Boston Review article, problem. For these children, disruptive foundations should do more to leverage behavior was a manifestation of their freedom from the market and instability at home, caused by factors electoral accountability. As independent such as single parenthood, family funders of diverse public goods, they violence, incarceration, substance provide alternative options to the addiction, unemployment and mental solutions offered by the State, enlivening health problems. These conditions were democracy and tempering government breeding what Harvard professor Robert orthodoxy. Also, they possess the Putnam termed “incipient class unfettered ability to engage in high-risk apartheid” right here in Singapore. endeavours that impatient investors and fickle electorates shy away from. In our view, the preschool is the best place for intervention because it is a In a “democracy of deeds” as espoused naturalistic and controlled setting where
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Foundations: The Mutants of Democracy children spend hours daily. To be Two years of perseverance brought effective, however, it would require encouraging results. deploying specialists from other disciplines into the preschool to support Participation in parent-teacher the over-worked and demoralised conferences (PTCs) crept up from a teachers. It was a model that Care Corner, shocking zero to more than 50 percent the non-profit organisation that ran the as teachers waylaid parents on their way preschool, believed in, but was unable to home for impromptu PTCs in the void execute because of government funding decks. As social workers, who now guidelines. represented the preschool, knocked on door after door to introduce themselves, A grant from the Foundation provided the school attendance for chronic absentees latitude to try something different. rose from 30% to 70%, even as their Named ‘Circle Of Care’ (COC), the new families continued battling challenges programme adopted an ecological relating to health, finances, employment approach, bringing educational and housing. therapists, social workers and preschool teachers, who typically work apart, Educational therapists introduced fresh together as a unique multi-disciplinary techniques – such as talking puppets – team around the child at the preschool. into the school to kindle a love of learning The teacher-child ratio was lowered, the among children from poor homes devoid level of parental engagement was raised of books. and community resources such as artists, librarians and volunteers, were To our surprise and relief, children who mobilised. were mere months from the start of Primary One made leaps in numeracy and Not everything went smoothly. High staff literacy skills. At night, they would show turnover caused by the toxic school off their newly found reading, writing and environment resulted in starts and stops counting skills at home, to the delight of in the work. Among the professionals in their parents. the newly-assembled multi-disciplinary team, childhood poverty became the Multiplying Mutation proverbial elephant to the blind, as each interpreted its cause and remedy through In 2015, halfway through the programme, different lens. Above all, it emerged, as we decided to scale it up. Our target: at we began work, that the needs faced by least 15 new COC preschools within three the children and families were more years. Care Corner boldly relinquished its severe than what appeared on the preschool operations to focus on turning surface. COC from a project into a service offered
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Foundations: The Mutants of Democracy to other preschool operators. The higher-than-average proportion of at-risk knowledge, so painstakingly acquired on children, we will also find preschools with the ground, was institutionalised in a similar populations. In such locations, we training programme to introduce this plan to build a cluster of COC preschools emerging approach to social workers, that would feed an anchor COC primary teachers and therapists. A longitudinal school, via a structured, formalised study was commissioned to track the system of information-sharing and joint children we have worked with till they are care of the child between the primary in Primary Three. school welfare personnel and COC social workers. Working with the Ministry Of A key plank in the strategy is to involve Education machinery took patience, but primary schools in preserving the hard- two primary schools came on board. won progress made by these children in their preschool years under COC. To do Complicating the Narrative so requires skirting round the current lack of a formal system of information-sharing Schools and the education system more and collaboration between the preschool broadly, are an important part of the sector and primary schools. solution, but cannot be depended on as the great equaliser in society. Our hope Presently, at Primary One registration, is that in time, COC will not only close a many at-risk children can be identified gap in our education system, but also through the required paperwork, but change society’s views towards poverty. many others whose circumstances are Today’s dominant narrative suggests that not easily gleaned from formal kids with tough childhoods do badly documents fall through the cracks. These because of bad role models and bad children miss out on services they need, choices. Studies reveal a more complex such as pastoral care and counseling, dynamic at play. even though they are available. Only later, at the end of Primary One or in In the 1990s, the landmark Adverse Primary Two, are they identified through Childhood Experiences (ACE) Study the emergence of chronic problems such completed by Centers for Disease Control as absenteeism and misbehavior. and Prevention and Kaiser Permanente’s Precious time and opportunities will have Health Appraisal Clinic in San Diego had been wasted, and the primary schools already managed to quantify the long- spend the next few years on the back term effect of abuse and neglect on foot, helping such children level up. children. Those who experienced at least four ACEs or forms of childhood trauma, Our solution rests on the hypothesis that out of a maximum of 10, were already where we find a primary school with a twice as likely to be smokers, 12 times
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Foundations: The Mutants of Democracy more likely to have attempted suicide, not between income levels, but seven times more likely to be alcoholic, between abilities. Children with severe and 10 times more likely to be drug special needs are on the radar of the abusers. government. However, children with mild special needs stay under the radar. Another startling study by University of Their conditions, although treatable, Wisconsin-Madison neuroscientist Seth often go unidentified and deteriorate Pollak found that children from poor due to a lack of awareness and access families have smaller brains. Through to screening. magnetic resonance imaging scans, Dr Pollak discovered that the regional grey This was the reason why in 2009, the matter volumes in the brains of children Foundation partnered with the KK below the US federal poverty level Women’s and Children’s Hospital and the were eight to 10 percent below the PAP Community Foundation on the developmental norm. “Mission: I’mPossible” (MIP) programme to provide screening and intervention for Yet another study by Victor Carrion, children with mild special needs. A simple director of the Stanford Early Life Stress factor differentiated it from existing and Pediatric Anxiety Programme, found services: Location. that chronic or unresolved trauma changes a child’s levels of cortisol, the Like COC, the screening and intervention stress hormone, wrecking havoc on the of MIP was based within the naturalistic developing hippocampus, pre-frontal setting of preschools, instead of hospitals cortex and amygdala, the parts of the or clinics. A team comprising a brain that control memory, decision- paediatrician, a psychologist, a speech making, and fear. Children with childhood and language therapist, an occupational trauma struggle with learning, managing therapist and a learning support gratification and taming impulsivity in facilitator would provide therapy and their adulthood. Some are even train teachers. Senior teachers were misdiagnosed with special needs as a appointed as Learning Support Educators result. and tasked with integrating therapy goals into classroom routines. Apart to a Part It also proved to be a cost-effective Besides disabilities caused by poverty, the model. Kicking off with 25 preschools, Foundation has an advocacy programme the programme was eventually adopted on disabilities caused by genetics. We by the government, renamed the noticed in Singapore that there is another “Development Support Programme”, and silent sandwiched class that is squeezed scaled up to 400 preschools in 2015. An
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Foundations: The Mutants of Democracy additional 600 preschools are in the they create among adults and children. pipeline. Kindle Garden operates with a higher As a signatory to the United Nations’ teacher-student ratio than the norm and Convention on the Rights of Persons with counts specialists and health Disabilities that commits our country to professionals on its staff. A specially ensuring that such people enjoy full designed curriculum enables learning equality under the law, Singapore can do across abilities. The hope is that it will be even better. Unlike the children in MIP, a place where special needs children can many children with moderate to severe develop functional skills, independence special needs struggle to even find a and friendships while typically- preschool willing to accept them. developing children learn the values of respect, generosity and responsibility. A handful of exclusive preschools do offer a high-quality inclusive experience, but at Kindle Garden was an instant draw for a hefty price. This is the reason why some parents of special needs children: over parents opt for home-schooling. Others 100 queued for a place after simply but erroneously treat intervention announcement of its launch. Marketing sessions as a form of preschool efforts were therefore directed at parents education. Like the children in COC, theirs of typically-developing children, is a ghettoised childhood, spent apart highlighting the 1,100 sq m space, double from peers. the size of a typical preschool in a HDB void deck that was designed by To address the needs of this other President’s Design Award-winning segment, the Foundation partnered architects. Its fees are pegged just slightly AWWA (formerly known as Asian above the median industry fee of $900. Women’s Welfare Association) and government agency, SG Enable, in 2014 To our surprise, the parents streamed in. to develop Kindle Garden, a preschool As of February 2016, a month after with an inclusive educational model. The opening, 55 of the 75 spaces have been school caters to 75 children; 70 percent taken. To keep to our planned ratio of of them will be typically-developing typically-developing and special needs children and 30 percent will have special children, we will be able to take in more needs. It features open-concept special needs children as typically- classrooms, an outdoor treehouse developing children enrol. accessible by wheelchair, and therapy equipment disguised as play-forms to Internally, the team continues to grapple eliminate both the physical need for with tough questions, both philosophical therapy rooms and the invisible stigma and operational. With special needs
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Foundations: The Mutants of Democracy differing by category and severity, what as it provides the illusion of an alternative would be an optimal mix for each class universe where they can finally find to be fair and effective to all? Is selecting mastery over their bodies and destinies. children from the waitlist based on our idea of an optimal class mix instead of Many such stories are untold, and many their queue position inherently un- more exist. inclusive? Are our teachers truly ready to effectively manage a class comprising, That is why at the Foundation, we say, one child with Down’s Syndrome and view advocacy as a cornerstone of another with Autism, alongside other philanthropy. Done effectively, it brings naturally boisterous children? the weight of public opinion to bear on the challenge at hand, dispelling Whatever answers we arrive at, there are tendencies of complacency and ultimately only so many inclusive mediocrity, and keeping the preschools that Singapore can build. government’s hot seat, hot. The sustainable solution will be a combination of more inclusive schools An example of such advocacy was the and an expanded Development Support Starting Well Index, the first global Programme that offers on-site ranking of early childhood education that intervention for children with not only we commissioned the Economist mild, but also moderate, special needs. Intelligence Unit to conduct. Out of 45 countries analysed, Singapore came in a Advocate Adequately dismal 29th place, behind the Special Adminsitrative Region of Hong Kong and In COC, MIP and Kindle Garden, the debt-ridden Greece. common thread is early intervention. Addressing achievement gaps early reaps In a ranking-obsessed society such as dividends many times over in later years ours, the distillation of a complex for individuals, families and the economy. problem into a single number brought That is because children from low-income sudden clarity. How could a country with families and special needs children are an airport, schools and quality of life almost always haunted by life’s early ranked among the world’s best, accept setbacks, long after their fleeting sub-par preschools? The thought itself childhoods. Marriages break up; was heart-rending. caregivers burn out. Support from donors and well-wishers wanes as toddlers After the release of the Index, we become awkward teenagers and burly followed up quickly with two supporting adults. Addiction to video games is reports: “Vital Voices” which featured the emerging as a problem for such children improvements suggested by 27 leaders
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Foundations: The Mutants of Democracy from Singapore’s preschool sector, and a we are proponents of social pedagogy, survey of parents that revealed a majority the discipline that draws on core theories preference for greater government from education, sociology, psychology, involvement in preschool education. The philosophy and others in tackling social trio (the Index and the two reports) problems. In this worldview, humanistic offered the impartiality of statistics and principles are not a luxury, but essential. the diversity of views from a democratic It is the harder path to take, and the collection of voices. Foundation has had as many home runs as spectacular failures. We share our Some months later, a number of new lessons freely, not as a choice, but as a government initiatives were announced duty for the status we occupy as a to uplift the preschool sector. Many foundation in Singapore. Even mutants observers credited this to the must mutate and unlearning is just as Foundation, but to do so would be important as learning. simplistic. To be fair, the government had studied the issue at length prior to the In the final analysis, no matter how hard arrival of the Index, but perhaps the Index we try, silver bullets do not exist. brought useful clarity, urgency and greased the wheels of change. Just as we were all geared up to scale the COC, we received sobering news. A child Radically Practical whose parent was in jail, but who was nonetheless holding up well and turning At the Foundation, we favour out to be one of the brightest in class, was contribution over attribution. discovered to have been molested by a neighbour. Once the poster child of the Philanthropy should, after all, be about COC programme, she now undergoes liberating the receiver, and never about counselling at the Institute of Mental redeeming the giver. To liberate, we need Health. to encourage and give courage to the people on the front line of social change who know the ground realities best, by assuring them that it is safe to fail with us. We encourage them to take risks and think the unthinkable. Our relationship is not coloured by a belief in the simplicity of cause and effect, but by the warmth and banter of an intuitive grant-making approach that is anchored in trust, transparency and chemistry. Internally,
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 37 Chapter Four ‘Giving a Future to our Past’ - Reflections on Developing the Heritage Conservation Cause Chua Ai Lin
Chua Ai Lin has been the President of the Singapore Heritage Society since 2013, and a member of the Society since 1996. She holds a PhD in History from the University of Cambridge (UK) and was previously an Assistant Professor in the Department of History at the National University of Singapore, specialising in the social and cultural history of colonial Singapore. Currently, she serves as a member of the National Library Advisory Committee, and in the past has been on the advisory board of the National Heritage Board and on the former Singapore Sub-Commission on Culture and Information for the United Nations Educational, Scientific and Cultural Organisation better known as UNESCO. In 2012, she was the first Singapore representative on the Cultural Heritage Preservation project of the International Visitor Leadership Programme organised by the United States of America’s State Department.
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In the year 2015, on the 50th in which the Singapore Heritage Society anniversary of independence, (SHS) was founded in 1987. Singapore saw its greatest celebration of history which was impressive At that time, a group of concerned because the past is often thought of as citizens led by architect, William S W something that has held us back from Lim, formed the Singapore Heritage charging towards a better future. The Society to call for heritage conservation year of SG50 (shorthand for ‘Singapore and to fill the gap in public discourse at 50 years of independence’) saw the on heritage matters. This came soon conclusion of the National Library after URA released its very first Board’s (NLB’s) five-year Singapore Conservation Master Plan for historic Memory Project, which aimed to collect areas in 1986.3 Today, SHS’s primary role five million memories from ordinary continues to be that of an independent citizens and which funded 74 voice for heritage conservation in community projects via the Singapore, articulating principles and irememberSG fund.1 2015 was also the disseminating knowledge based on year in which the country’s first World research and international best Heritage Site, the Singapore Botanic practices. What are the issues at the Gardens, was inscribed by the United forefront of the Society’s concerns in Nations Educational, Scientific and the year 2016? What approaches can we Cultural Organization (UNESCO). There take to achieve SHS’s vision of ‘Giving a are also 71 national monuments Future to Our Past’? gazetted by the National Heritage Board (NHB) and over 7,200 buildings SHS is guided by the organisation’s gazetted for conservation by the Urban definition of ‘heritage’ as ‘the living Redevelopment Authority (URA).2 The presence of the past’. It is concerned picture for heritage at this point looks with how history bears upon the rosy, and very different from the context contemporary present and the future.
1 The Singapore Memory Project, http://www.mci.gov.sg/web/department/libraries/community-and- outreach/the-singapore-memory-project; ‘74 projects under the Singapore Memory Project to go on show in lead up to SG50’, 18 Mar 2015, Straits Times, http://www.straitstimes.com/singapore/74-projects-under- the-singapore-memory-project-to-go-on-show-in-lead-up-to-sg50. 2 ‘Singapore Botanic Gardens declared UNESCO World Heritage Site’, 15 July 2015, Channel News Asia, http://www.channelnewsasia.com/news/singapore/singapore-botanic-gardens/1960028.html; ‘Fullerton Building officially gazetted as national monument’, 7 Dec 2015, Channel News Asia, http:// www.channelnewsasia.com/news/singapore/fullerton-building/2326396.html; ‘Flats, social institutions among 75 buildings to be conserved’, 7 Jun 2014, Straits Times, http://www.straitstimes.com/singapore/ flats-social-institutions-among-75-buildings-to-be-conserved. 3 Lily Kong, Conserving the Past, Creating the Future: Urban Heritage in Singapore, Singapore: Urban Redevelopment Authority, p.39-41; ‘A Brief History of Conservation’, https://www.ura.gov.sg/uol/ conservation/vision-and-principles/brief-history.aspx.
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The key themes and concerns that SHS connection to others. These create a has championed over the last five society with ‘soul’, something that many years and continues to do so can be find lacking in Singapore. I will first discuss summarised as follows: some of our experiences and approaches in terms of government engagement, and • adocating for the use of Heritage then address the broader issue of Impact Assessments (HIA) for better changing mindsets. public policy outcome; • rediscovering forgotten histories with Engagement with the Government a focus on Bukit Brown, a potential World Heritage Site, and Tanjong In 2011, SHS faced the two largest Malang, a 200-year-old historic conservation issues the Society has landscape off Shenton Way; encountered in its history, involving the • sustaining living heritage with a focus potential destruction of two significant on Pulau Ubin, Singapore’s last historical landscapes (not just offshore island community; individual buildings) — the former • promoting cultural authenticity and Keretapi Tanah Melayu (KTM) Railway vibrancy with a focus on Chinatown, and Bukit Brown cemetery. Apart from a historic district facing modern releasing position papers,4 the Society’s challenges; and first response in both cases was to • recommending coherence of recommend a thorough documentation processes and legislation for heritage of heritage to form the basis for protection across different agencies informed decision-making. SHS was and ministries. invited by URA to participate in the committees established to discuss each For the last three decades, the Society of these issues, called the Rail Corridor has spoken up on behalf of Singaporeans Consultation Group and the Advisory in response to government policies and Committee on the Bukit Brown actions (or the lack of). While we often Documentation Project. address specific processes and proposals, what is also needed is a fundamental shift With funding from URA and NLB in mindset — a recognition of the critical respectively, SHS completed a survey of role that heritage plays in our humanity, heritage structures along the former KTM our self-identity and our sense of Railway, making the findings public in an
4 Singapore Heritage Society, Bukit Brown Position Paper, http://www.singaporeheritage.org/wp-content/ uploads/2011/11/SHS_BB_Position_Paper.pdf; For the KTM Railway, SHS’s views were incorporated into the Nature Society (Singapore)’s conservation proposal, The Green Corridor - A Proposal to Keep the Railway Lands as a Continuous Green Corridor, in the sections ‘Preserving History’ and ‘Unesco World Heritage’, p.22-23, http://www.nss.org.sg/documents/TheGreenCorridor101103.pdf.
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‘Giving a Future to our Past’ - Reflections on Developing the Heritage Conservation Cause interactive online map,5 as well as 50 oral decorative tiles, and tomb architecture; history interviews which are now epigraphic evidence of Chinese accessible as part of NLB’s Singapore migration networks across Southeast Memory Project website.6 For Bukit Asia; as well as its relevance to modern Brown, SHS introduced qualified Singapore through the pioneers buried researchers for an official documentation there – people whom well-known local project, a multidisciplinary effort led places and institutions are named after, by anthropologist, Dr Hui Yew-Foong, such as Chew Joo Chiat, Chew Boon Lay, and funded by URA, to document Lim Chong Pang and Gan Eng Seng. approximately 4,000 graves that would be affected by the construction of an In other words, there is a critical need eight-lane road cutting through the for a better decision-making process. cemetery. 7 While it was unprecedented When it comes to urban planning, doing for the government to fund a due diligence requires that all relevant documentation project of this scale, the factors be considered before decisions data was never intended to inform are made and this must include development plans. In both cases, the environmental and heritage information recorded came too late. considerations, in addition to housing, Many of the KTM Railway structures transport, and industrial needs. featured in the SHS interactive map have However, the internal process by which since been demolished as their the URA draws up its 10-yearly Concept conservation had not been factored into Plan (to set the broad urban land transfer negotiations with the redevelopment direction for 50 years) Malaysian authorities. The scope of the and the five-yearly Master Plan (for Bukit Brown documentation was limited action within 10 to 15 years) is not clear. to what would be directly affected by the Which are the ministries and agencies construction works. However, it is that contribute directly to this process? research at Bukit Brown done after the The NHB only set up its Impact road development plans were finalised, Assessment and Mitigation Unit in which has proven how significant the site July 2013, “to incorporate heritage is in different ways. This includes a unique considerations into land use and Nanyang Chinese material culture housing plans; assess the impact of expressed in sculpture and relief work, development works on heritage sites
5 Singapore Heritage Society, ‘Singapore Railway Heritage Interactive Map’, http://singaporeheritage.org/ railcorridor/. 6 Singapore Memory Project, ‘KTM Oral History Project series’, http://www.singaporememory.sg/collections/ 2?nextrecord=10&listtype=collectionMain&id=2. 7 The documentation team’s data and findings, including photographs of 4,153 graves which have since been exhumed, are available online at www.bukitbrown.info.
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‘Giving a Future to our Past’ - Reflections on Developing the Heritage Conservation Cause and structures; and develop mitigation is difficult for substantive changes to be measures for affected sites and made. For the last Draft Master Plan in structures.”8 It was in May 2015 that 2013, the public engagement that took NHB launched a nationwide survey of place is described as follows by the heritage buildings and sites “to develop URA: “Over the past five years, URA has an understanding of Singapore’s received and actively sought feedback heritage landscape for long-term on our Plans from the public through heritage planning”, to be completed in various channels. Recently, we carried a 16-month period.9 This survey is an out consultation meetings with important first step in strengthening Members of Parliament and key the capability of NHB as “the lead grassroots leaders from various agency for heritage matters”10 but also constituencies. We also conducted brings into question how much data focus group discussions on topics such NHB has been able to channel into as greenery, cycling and the Woodlands URA’s urban planning process in the Regional Centre.”11 This seems to past. While URA has a Conservation indicate an approach to consultation Department, its purview is buildings of in which constituency political architectural merit so sites like Bukit representatives are taken as the main Brown do not fall under its remit. As for channel for views from stakeholders on the former KTM Rail Corridor, it is the ground and focus groups were managed by URA’s Physical Planning limited to a small number of topics. As Group, which develops and executes the Master Plan impacts the entire land use plans, not the Conservation island, there is certainly room for Department. including a more diverse range of ideas from different sectors and varying The internal government process is levels in a structured way. The most crucial because there are limited opportunity for SHS to comment on the opportunities for public input and once Draft Master Plan came only during the plans have been drawn up in detail, it three-week public feedback window in
8 ‘New National Heritage Board unit plays mediator on heritage issues’, 26 Oct 2016, Straits Times, http://www.straitstimes.com/singapore/new-national-heritage-board-unit-plays-mediator-on-heritage- issues; National Heritage Board Annual Report 2013/2014, p.72, http://www.parliament.gov.sg/lib/sites/ default/files/paperpresented/pdf/2014/S.%20140%20of%202014.PDF. Since May 2016, NHB’s Impact Assesment and Mitigation Unit has been renamed ‘Heritage Research and Assessment’. 9 ‘NHB to launch nationwide survey on heritage buildings sites’, 6 May 2015, Channel News Asia, http://www.channelnewsasia.com/news/singapore/nhb-to-launch-nationwide/1828492.html. 10 National Heritage Board Annual Report 2013/2014, p.72, http://www.parliament.gov.sg/lib/sites/default/ files/paperpresented/pdf/2014/S.%20140%20of%202014.PDF. 11 Urban Redevelopment Authority media release, ‘Our Future, Our Home. Draft Master Plan 2013 exhibition at URA’, 20 Nov 2013, https://www.ura.gov.sg/uol/media-room/news/2013/nov/pr13-75.aspx.
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December 2013,12 and at that point, assess how proposed changes would feedback was only accepted with respect impact these values, and thirdly, to to developments that had not appeared in recommend how these effects can be the previous Master Plan in 2008. An email “avoided, reduced, rehabilitated or reply to SHS for submitted feedback was compensated”.14 A range of different received from the Ministry of National options should be comparatively Development (MND) on 5 June 2014, just evaluated. HIA is a well-established one day before the Master Plan was process in countries such as Australia, the finalised and gazetted.13 The significant United States, and even to a some extent, public dismay over development plans for in Hong Kong. Their experiences have Bukit Brown, Tanglin Halt, Dakota Crescent, shown that more often than not, HIAs do Rochor Centre and Sungei Road flea not stop development entirely, but result market have also come too late to be fed in revisions to the original proposal and into the planning process. measures to avoid or minimise impact to the heritage value of the site. In other To address these problems, SHS words, this is a process to ensure that advocates a greater and preferably development decisions are made “by a mandatory use of Heritage Impact conscious choice and not by chance or Assessments. Experts, interest groups, lack of awareness”.15 Impact assessment as well as stakeholders on the ground is a decision-making tool that is relevant would then have a more structured, pre- across different domains. In Singapore, decision manner in which to interact with we do see Environmental Impact government agencies with respect to Assessments (EIAs) sometimes applied redevelopment projects. In essence, HIA “selectively to projects that may most is a process that begins by identifying the adversely impact our protected natural important cultural, historical and spaces as well as our coastal and heritage values of the site, both tangible maritime environments”16 and there are and intangible. The second step is to local experts and companies with the
12 Singapore Heritage Society’s letter to MND on Draft Master Plan 2013, 18 Dec 2013, https://www.facebook.com/notes/singapore-heritage-society/singapore-heritage-societys-letter-to-mnd- on-draft-master-plan-2013-18-dec-2013/611710158876624. 13 Urban Redevelopment Authority media release, ‘URA gazettes Master Plan 2014’, 6 June 2014, https:// www.ura.gov.sg/uol/media-room/news/2014/jun/pr14-33.aspx. 14 ICOMOS, ‘Guidance on Heritage Impact Assessments for Cultural World Heritage Properties’, January 2011, http://www.icomos.org/world_heritage/HIA_20110201.pdf. 15 Trent Ng, ‘Striking the balance between heritage conservation and urban renewal in Singapore: Advocating for a mandatory Heritage Impact Assessment (HIA) regime’, Policy Analysis Exercise Final Report, Lee Kuan Yew School of Public Policy, National University of Singapore, 27 December 2015, p.44. 16 Tan Chuan-Jin, ‘Building Memories and Gardens Together’, Budget Debate 2013, Ministry of National Development, http://www.mnd.gov.sg/budgetdebate2013/speech_tcj.htm#speech.
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‘Giving a Future to our Past’ - Reflections on Developing the Heritage Conservation Cause skills to conduct EIAs. In contrast, HIAs also analysed in order to produce a have not been carried out even for large more meaningful report. Why does this projects, and there is also a paucity of matter? Many Singaporeans will trained professionals able to carry out remember how in 1999, the Old HIAs in a competent manner within the National Library in Stamford Road was Singapore context. There is no mandatory proposed for demolition. It was requirement for either HIA or EIA in pronounced by URA as being “not of Singapore. great architectural merit” and had to make way for the Fort Canning Tunnel As heritage and culture are location- to address an increase in traffic flow as specific and require deep background well as to allow a realignment of knowledge, local expertise is essential. In Stamford Road to provide Singapore Hong Kong, the Hong Kong University Management University (SMU) with a has been running its Architectural better-sized plot of land.18 Diverse Conservation Programme since year members of the public voiced their 2000, awarding undergraduate and affection for the Old National Library postgraduate qualifications, thus and spoke out against its demolition. providing a substantial pool of qualified Seeing this, William Lim, then President professionals “who then are capable of of SHS, stated: participating in any of the stages of HIA, whether in the position of “Memories of the people cannot be commissioning, conducting, evaluating quantified and assigned an exchange and or approving a HIA.”17 There is value. Cities have enormously currently no comparable programme complex communal histories and offered in Singapore. memories. . . . The inclusion of memories as an essential urban design Two particular dimensions of HIA are criterion can be problematic for many worth highlighting here. Sometimes, policy makers. However, it is an assessments are scoped to focus only essential condition of our existence. on the physical and architectural We must consciously elevate the value expressions of heritage, however the of visual memories in our urban SHS recommends that intangible environment beyond the criteria of aspects such as social memories are commodification.”19
17 Yeo Kang Shua & Chua Ai Lin, ‘Heritage Impact Assessment: is Singapore ready?’ in State Policy and the Cultural Politics of Heritage-Making in East and Southeast Asia, Singapore: Institute of Southeast Asian Studies, forthcoming. 18 Kwok Kian Woon, Ho Weng Hin, Tan Kar Lin (eds), ‘Memories and the National Library: Between Forgetting and Remembering’, Singapore: Singapore Heritage Society, 2000), p.66. 19 Kwok Kian Woon, Ho Weng Hin, Tan Kar Lin (eds), ‘Memories and the National Library: Between Forgetting and Remembering’, Singapore: Singapore Heritage Society, 2000, p.8.
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The second important dimension in aspirations will require trained a HIA is careful stakeholder mapping community workers and skilled to ensure that the responses of facilitators. To learn how to accurately certain groups of users or identify the full range of users stakeholders on the ground are not and stakeholders beyond officially left out. In Singapore, we face unique recognised organisations and educated, challenges with this. It is not enough articulate citizens also requires to issue a media call for the public to practice. submit feedback through written and online channels if we want to do that The public service will have to well. The elderly, the less-educated, overcome two major challenges in the non-English speaking, and those adopting deeper stakeholder without access to online channels are consultation. The first is the emphasis unable, wary or afraid of proactively on ‘efficiency’. Public consultation and giving feedback in writing, even if a policy co-creation take time and proposal might affect their own lives. effort, and plans will have to go The widespread feeling that through several rounds of iterative government plans are cast in stone feedback and revision. The process may also hold residents back from will inevitably be messy and complex, speaking to their local Members of but it will result in a more robust Parliament (MP); “ ” (“mei you solution that better meets actual yong la,”) or “It’s no use lah” is a needs, and will help to prevent a common refrain on the ground. When public outcry from arising at a late approached by grassroots leaders, stage when it is difficult to alter plans. residents can find their official status The second challenge is that heritage intimidating and it is natural that a is a complex matter involving resident’s first response may be to offer government departments across the politically correct answer rather different ministries — integrated than share their inner feelings. planning requires a level of cooperation and coherence that the public service Having lived through the early years of is not accustomed to. Singapore’s post-independence, the older generation have internalised an The government has recognised both acquiescence to changes in the these challenges and has taken landscape as a necessary patriotic concrete steps to address them. In response. To create an atmosphere of 2010, the Ministry of Communications trust and respect, and to ask the right and Information developed a Public questions that can gently coax people Consultation Toolkit which exhorts that to express their true needs and “public consultation should be a first
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‘Giving a Future to our Past’ - Reflections on Developing the Heritage Conservation Cause thought, rather than an afterthought, NHB. With a majority of FUN Network in the policy development process”20 members representing the nature sector, while the Civil Service College conducts the Singapore Heritage Society has several courses in public consultation played a key role in raising issues relating skills. To overcome the silos that to the culture, community and living individual agencies function within and heritage on the island while making improve coordination, the Municipal suggestions based on gaps observed in Services Office was set up as a the existing initiatives. Our main coordinating body under MND in August recommendation was that a thorough 2014, and after the 2015 General ethnographic study of the current Elections, the Prime Minister appointed population on the island be conducted to three Coordinating Ministers to Cabinet provide a sound basis for policy-making. to ensure a whole-of-government This resulted in a study commissioned by approach. These new directions and the the NHB of which findings were recently skills that must undergird them will take presented to the Minister and the FUN time to develop. Political will and Network in February 2016.22 The process masterful leadership at the ministerial of shaping plans for Pulau Ubin continues level are vital to put in place a new modus and the results of this more collaborative operandi for the entire public service. approach have been encouraging. There are signs that these directions are Around the time the FUN Project was seriously being tried out on the ground. launched, MND also set up a Bukit Brown In 2014, the Ministry of National working group to discuss ground level Development (MND) set up the Friends matters such as conservation of the main of Ubin Network (FUN) under The Ubin gates and salvaged artefacts from Project initiative to “retain Ubin in its exhumed graves, as well as to gather rustic state for as long as possible”.21 suggestions on enhancing the visitor Spearheaded by Senior Minister of State experience to as-yet unaffected parts of (SMS) Desmond Lee, this is a co-creation Bukit Brown. Several government approach to policy-shaping for Pulau Ubin agencies as well as SHS and the that draws views from a range of community group, All Things Bukit concerned groups and individuals, Brown, make up this working group. In educational institutions, as well as March 2015, representatives from SHS different government agencies – MND, were also invited by SMS Desmond Lee National Parks Board (NParks), URA and to join MND, URA and NHB officers on a 20 Public Consultation Toolkit, Singapore: Ministry of Communications and Information, 2010, https:// www.cscollege.gov.sg/data/CSC/9_Public_Consultation_Toolkit.pdf. 21 ‘Friends of Ubin’, Ministry of National Development, http://ubin.mnd.gov.sg/MS/PulauUbin.aspx. 22 “Living heritage’ study of Ubin wraps up’, 29 April 2016, Straits Times, http://www.straitstimes.com/ singapore/living-heritage-study-of-ubin-wraps-up.
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‘Giving a Future to our Past’ - Reflections on Developing the Heritage Conservation Cause study trip to Hong Kong, to learn from Singapore, my experience has led me to counterpart government departments realise that the greater challenge is about their experience with HIA and getting people to understand why the partnering non-profit organisations in past is important and to feel their own heritage regeneration projects. place in a long continuity from one Compared to issues such as Bukit Brown generation to the next. I have also and the Cross Island MRT Line, Pulau Ubin noticed how the Singapore psyche, is one where consensus is easier to shaped and ingrained over the last 50 achieve — the Friends of Ubin Network years has made this difficult for many members and Singaporeans are broadly people. We have been raised on mantras aligned with the goal of preserving of pragmatism, the knife-edged struggle the island’s rustic charm, and as a for survival after separation from government-initiated project, there are Malaysia, and the sacrifices necessary in resources available and support of the land-scarce Singapore. necessary government agencies. This work provides the necessary In Eng Yee Peng’s documentary, foundational steps and real experiences Diminishing Memories (2008), she filmed that political leaders, public servants as her family and former neighbours well as civil society advocates need in recalling the government’s acquisition of order to learn how to trust and work with their Lim Chu Kang farms and the each other, laying the groundwork for transition to apartments in a Housing & grappling with more contested issues Development Board (HDB) estate. In the that might arise in the future. on-screen interviews, they almost all begin by affirming that their sacrifice was Changing Mindsets, Getting in Touch necessary for the development of the with What is in our Hearts nation, but as the film progresses, their heartache starts bubbling to the surface, The practical elements of changing the reflected in downturned lips and quiet way heritage conservation works have tears. These were people who did been described above, but social change eventually adjust to high-rise living, but comes about from shifting not only they did so by deliberately pushing aside minds, but also hearts. Through the years, the pain of resettlement. Decades later, SHS has held countless public talks, for this film, they revisited the past and seminars, forums, exhibitions and found emotional wounds that had been published a long list of books. The suppressed rather than healed. audiences reached have often been those who are already heritage advocates and This is true on a nationwide scale, where history enthusiasts. However, in my years paradoxically, we are still told by of teaching at the National University of politicians that there is no room for
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‘Giving a Future to our Past’ - Reflections on Developing the Heritage Conservation Cause sentimentality in Singapore, even whilst reflect upon their personal relationship the Singapore Memory Project and SG with or responses to the historic district Heart Map (initiated by HDB) have sought of Chinatown, and take photographs as a to collect the memories of millions of means of opening up themes for citizens and map 50 places “where our discussion. It was less about the past per endearing and special moments have se than their relationship to what remains taken place”.23 Both of these projects of the past today. Through the process of echo the nostalgic theme of SG50 sharing, listening with an open heart and celebrations, but nostalgia is always rose- mind and responding to each other, tinted — the brief statements that make guided by thought-provoking questions up the bulk of submissions for both from our team of facilitators, we aimed projects never provide enough breathing to have participants delve deeper into room for deeper, more complex emotions their own thoughts and feelings and learn to emerge. When it comes to places that to articulate them. They admitted that no longer exist, such as rural kampongs, doing this was unfamiliar and difficult, but or those which are drastically changed, once they got the hang of it, their such as the historic shophouse districts accounts during the workshops became of Chinatown and Kampong Glam, these powerful and very moving. At the end, nostalgic memories have a flip side – the one participant highlighted her most trauma of loss which is barely spoken of. important takeaway: “I realised that I really do love this country.” It was not a Inspired by the national focus on memory blithe or contrived statement, but an for SG50, SHS embarked on a project authentic emotional response after called ‘Picturing Chinatown’, which was contemplating the losses and gains of funded by an irememberSG grant from Chinatown’s dramatic changes over the 24 the Singapore Memory Project. While last few decades. SG50 aimed to bond the nation together through shared memories, it seemed to If only every Singaporean could go us that merely collecting soundbites or through this facilitated experience to old photographs and archiving them was understand and articulate their own a missed opportunity to deepen thoughts and feelings. Socialised to authentic bonds between people. We accept personal sacrifices for the sake of brought together a bilingual group of 12 nation-building, expressing painful community participants aged between 18 emotions would seem unpatriotic. Over years to the late 70s, to participate in time, Singaporeans have adopted a workshops and site visits over a period deliberate apathy to avoid feeling further of four months. They were asked to pain, just as one might shy away from
23 SG Heart Map, Frequently Asked Questions, www.heartmap.sg/faq. 24 The project’s website is www.picturingchinatown.com.
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‘Giving a Future to our Past’ - Reflections on Developing the Heritage Conservation Cause romantic relationships after painful these emotions. However, without breakups in the past. Detached from its understanding how deep our feelings run original context of the immediate post- and what they mean to us as human 1965 years, this national trait emerges in beings, administrative best practices such our young millennials as an inability to as the HIA remain as mere technocratic comprehend the vital role of social tools, rather than pathways to meaning memories in our society. I have heard and community development. young people ask, “Why is it important to remember our parents’ and In closing, I would like to leave you with grandparents’ memories? We have our this insight from Professor Kwok Kian own memories,” or even more starkly, Woon, sociologist and past president of “Why should we remember the Second the SHS. In an essay entitled ‘A Brief World War? It was so long ago.” If this History of Idealism’, he said: becomes the norm, Singapore will most “In Singapore, if you want to tell certainly lose its soul, and Singapore somebody off, you can say “You are an society will lose its humanity. We often idealist! You are idealistic.”… We also hear of the fault lines in society caused tend to tell some young people, “You by racial or socio-economic tensions, are not practical, you are too but we rarely discuss how society idealistic.” What are we missing if is strengthened by strong inter- there is no idealism in our society? generational bonds, and how these have What is the cost to a society if there is been threatened by the decay of social no idealism? Idealism is an important memories and the loss of our vernacular topic to us and can actually be a very heritage languages. practical issue, because if we cannot imagine a different future, how can we Roland Silva of the International Council move towards a better future?... And of Monuments and Sites once said, “It is you don’t just imagine – you try to love and not laws that will save our work towards that reality.26 monuments”.25 The real work of caring for our heritage lies in our sentiments, So the recipe for heritage advocacy is the affection and feelings — dimensions of same for all of civil society: having the ourselves we are not usually asked to heart to love, the idealism to imagine a exercise, whether as students or as better future, and I would add, the grit adults. As a result, we may feel awkward to keep going despite years of setbacks and at a loss with what to do with and disappointments.
25 Thanks to Professor Johannes Widodo for sharing this quotation. 26 Kwok Kian Woon, ‘A Brief History of Idealism’ in Education-at-Large: Student Life and Activities in Singapore 1945–1965, edited by Teng Siao See, Chan Cheow Thia Chan and Lee Huay Leng; Singapore: World Scientific Press, 2013, p.65-66.
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 49 Chapter Five Building an Enabling Environment for Successful Ageing Susana Concordo Harding
Susana Concordo Harding is an alumnus of the National University of Singapore, having completed her Master in Public Administration at Lee Kuan Yew School of Public Policy. She is the current Director of the International Longevity Centre Singapore, an initiative of the Tsao Foundation. From the Philippines, Susana’s lived here long enough to consider Singapore her home.
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Building an Enabling Environment for Successful Ageing
Our founder, Mrs Tsao Ng Yu Shun, highly developed society. However, the established the Tsao Foundation in 1993 issue of an ageing population was still a to empower our elders and help them low-key subject and most of the enjoy the opportunities for maximising community support for our elders was personal growth, well-being and sense of provided by voluntary welfare fulfilment that longevity offers. In the organisations (VWOs). There was also early 1990s, Singapore was a very low awareness of the differential impact different place and concepts such as of ageing between men and women. It successful ageing and ageing in place was against this backdrop that Dr Tsao, were unheard of. In those days, the idea then President of the Foundation brought of home and community-based care for me into her team to lead in the advocacy elders was new and the demographic work on two issues: first, women and concept of an ageing population was a ageing, and second, the participation of relatively low-key subject. older people in community affairs.
Mrs Tsao had a very clear vision for the In 2002, the United Nations (UN) General Tsao Foundation — of elders being Assembly met in Spain and more than supported and taken care of in their own 160 UN member states debated and homes by their families and loved ones, adopted the Madrid International Plan of so that they can feel secure, surrounded Action on Ageing (MIPAA). Being sent to by their families and continue to be in Madrid to witness this momentous event control of their lives. This is also the vision and to meet renowned leaders and of her granddaughter, Dr Mary Ann Tsao, experts in the field of ageing, was an who translated and operationalised the excellent way to immerse myself in this vision by developing pioneering models sector and to start a career that has been of community-based health and social both empowering and challenging to say programmes as well as services to enable the least. ageing in place and successful ageing; to empower mature adults to master their Most of the time, the Singapore own ageing journey over the life course government takes a cautious and in terms of self-care and self-practice; prudent approach to signing and and to access the right services at the adopting international conventions and right time. agreements. This, we understand is because it wishes to take its international State and Civil Society on the Same Page commitments seriously and will only sign on Ageing on to them if it is confident that it will benefit the Singaporean population and By early 2000s, the landscape in that it can implement commitments, Singapore had changed as it became a policies and programmes effectively.
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Building an Enabling Environment for Successful Ageing
MIPAA, to a certain extent, was an community; and that older people can exception in that Singapore signed on learn about self-care through the Self- to it readily. I believe it was primarily Care on Health of Older Persons in because, as early as 1999, the Singapore (SCOPE) programme and government had accepted the proposals change their health-seeking behaviour. by the first Inter-Ministerial Committee on Ageing (IMC, 1999). It is in this By 2009, Tsao Foundation had documented policy that the vision for the conceptualised and developed a successful ageing for each and every community-wide public health planning Singaporean was stated and which the approach to building an enabling government had already committed to, environment for successful and active even before the UN General Assembly ageing in our communities - Community Meeting in Madrid took place. for Successful Ageing (ComSA). ComSA aims to enhance and rebuild the three Creating a Senior-Friendly Community systems that are critical for supporting older residents in the community to age Tsao Foundation continued to be the well and to age in place. These systems catalyst for creating change in the consist of the following: integrated and mindset of how people view and perceive comprehensive care system comprising ageing. The second decade of our work primary care, care management and in the community focused on creating care service network; community awareness of the differences between development system comprising self- men and women as they grow older and care and interest group formation, with how important it is to engage our elders focus on enhancing intergenerational and empower them so they can give solidarity; and infrastructural their views and opinions on issues. We development comprising housing or also had to ensure that we provide residential facility and transport. The appropriate platforms so that they can ComSA initiative shares the vision of the participate in developing solutions for City for All Ages (CFAA) which aims to these issues. build senior-friendly communities where seniors can live safely and confidently, It took the Foundation more than five stay healthy and active, and be fully years to demonstrate that older people integrated (MSF, 2014). can be engaged in the community through our ‘Voices for Older People’ In 2012, at the invitation of CFAA, Tsao programme; that our older adults can be Foundation decided to go to Whampoa volunteers and ambassadors of the and pilot test ComSA. By 2013, in various active ageing programmes that partnership with CFAA Whampoa, the we conduct and implement within the Ageing Planning Office of the Ministry of
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Building an Enabling Environment for Successful Ageing
Health, the National Healthcare Group, Age Successfully) will provide stronger and the Saw Swee Hock School of Public support to VWOs and clearly signal that Health, we started to build a care system there is a strong commitment within the in the community through our person- government to act upon shared goals. centred primary care clinic and care management as well as service network For the Foundation, our catalytic and amongst all health and social care thought leadership roles will continue as providers in Whampoa. By 2014, we our work in empowering our elders started implementing community through ComSA has just begun. Exciting development to facilitate successful times are ahead indeed for our elders and ageing by effecting community-wide for all of us working alongside with them change through intergenerational within the community. dialogue and increased social cohesion among community members.
ComSA is giving Tsao Foundation a good opportunity to continue to be a catalyst that facilitates solution-building in Whampoa. As we get to know the community better, it has helped us to identify other needs of the elders; provided us with ideas that we can work on together with our partners to effect change and impact how residents, especially our elders’ experience of ageing in the community.
A Brighter Future
The way ahead, I believe, is going to be slightly easier — not because we know all that there is to know on ageing successfully and maximising the potential and opportunities that greater longevity presents to Singapore, but rather because the new policies announced recently by the government (Pioneer Generation Package and the $3 billion Action Plan to Enable Singaporeans to
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 53 Chapter Six Transient Workers Count Too’s Singaporean Way with Advocacy on Migrant Workers John Gee
John Gee has lived in Singapore since 1999 and has been an active member of Transient Workers Count Too (TWC2) since it was founded. He was President of the society from 2007 to 2011 and currently heads its research sub-committee.
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Transient Workers Count Too’s Singaporean Way with Advocacy on Migrant Workers
Change Through Words and Deeds Indeed, what we called ‘direct services’ soon took up the lion’s share of our Transient Workers Count Too (TWC2) was resources and continues to do so. It did formed by people who felt stirred to mean however ensuring that we kept action by stories of the mistreatment of advocacy firmly in view, and not allowing migrant workers they had heard of or the pressures (and sometimes, read about, as well as by personally satisfaction) of providing direct assistance witnessing what one of our early to cause us to lose sight of the need for members called ‘the silent indignities’ advocacy. that these workers all too often faced. The group might have concentrated We defined TWC2’s role as promoting the solely on providing material help to rights and well-being of migrant workers workers in distressing conditions, but, through advocacy (including public right from the outset, members thought education), research and direct services. that something more was needed. Rather than being three separate parallel areas of activity, we saw them as We were determined to work for the intertwined and mutually supportive. Our elimination or alleviation, at its roots, of direct services work showed us the real the host of problems that we saw. problems that workers faced, including Advocacy, directed at changing policies workers’ own attitudes towards their and practices governing the status of kind. That, in turn, informed our research migrant workers, was to be at the heart work and both the direct services and of our work. The logic is plain: it is similar research underpinned our advocacy to the distinction that can be made in work. the sphere of aid programmes between feeding hungry people and helping them Dealing with History – Dialogue and to develop the capability to feed Trust-Building themselves. Advocacy focused on policies and practices can consume time and TWC2 began in 2003 as The Working energy without producing visible results Committee Two, taking its name from an quickly, but it has the long-term potential earlier civil society initiative. It was to benefit far more individuals than essentially planned as a nine-month emergency assistance programmes campaign to promote better conditions directed at addressing just the immediate and treatment for domestic workers. The needs of the migrant workers we wished group organised meetings and outreach to serve. efforts to the public, as well as actively engaged the media. We knew then we This did not mean ignoring the need to needed to communicate with the provide such direct assistance of course. government, but wondered if the
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Transient Workers Count Too’s Singaporean Way with Advocacy on Migrant Workers government would communicate with would be able to give more considered TWC2 in return? and informative responses to us, having had the opportunity to consult colleagues It must be remembered that the ‘Marxist before the meeting and ensure that they Conspiracy’ of 1987 had a dampening were thoroughly informed of government effect on civil society in Singapore thinking at the time. especially with regard to advocacy related to migrant workers. At the turn of the One important element in our approach millennium, supporters of various causes to advocacy has been our positivity. It was were still exploring the space for activism; evident to us from early on that the MOM cautiously testing its boundaries. Even in and other government agencies were 2003, there were those who were particularly sensitive to criticism that worried that an open initiative that appeared purely negative, and that questioned policies towards foreign appeared as accusations. Criticism was domestic workers, might encounter a better received when it was, as MOM strongly hostile official response, or officials expressed it, “constructive”, or, maybe, simply be ignored. as we saw it, were associated with proposals for positive and realistic In the event, we approached the alternatives. Ministry of Manpower (MOM), the chief government body that deals with migrant From our point of view, bringing forward workers. This resulted in a meeting such proposals was fine: it was just what between TWC2 representatives and we wanted to do. It has required a lot of senior personnel of MOM in June 2003, work by us over the years. Some ideas followed by a fuller meeting in November for reform seem common sense, but the same year. normally, there are arguments for the status quo that have weight and which Those early meetings were valuable in need a response. A proposal for a change starting a dialogue. There was wariness in law or regulations has to be firstly on both sides initially, but face-to-face underpinned by evidence that there is a conversations largely overcame that. problem that needs attention, and then, These meetings set something of a by a reasoned and factually-based pattern for dialogue in the years that argument that the alternative we followed. propose is an improvement that is not only desirable, but workable. When we wished to meet, we would set out what we wanted to discuss clearly in Besides making proposals for individual advance. This was to everyone’s reforms (such as for safe and decent advantage since MOM’s spokespeople transportation for male workers or
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Transient Workers Count Too’s Singaporean Way with Advocacy on Migrant Workers itemised pay slips for all low-paid workers having regular days off, but that workers), we have prepared carefully there were significant practical obstacles reasoned proposals for the amendment in the way. In particular, it cited the needs of the major pieces of Singapore’s of families that had children and elderly legislation affecting migrant workers, or disabled members who needed including the Employment of Foreign constant attention. Manpower Act, Employment Act and Employment Agencies Act using the We argued that this did not seem to same approach. account for over half of all domestic workers, not having any days off and that, This has been a rather Singaporean in any case, these workers who were approach to working for change. called upon to provide constant care for Internationally, many non-governmental family members were precisely the ones organisations (NGOs) argue for reform on most in need of a break. In the recent the basis of principles represented in past, we have come forward with ideas, human rights treaties and declarations, including expanded social care, a more but this can seem abstract to many flexible system of domestic worker or people and unpersuasive. Whether care worker employment, as well as an dealing with the government or public in adjustment of family arrangements and Singapore, we have found that laying responsibilities to address the roadblocks stress on practical proposals for change facing the other half of domestic workers was much more fruitful. More people who seem to be so indispensable that a listened instead of switching off. It was weekly day off would be regarded as an not that we ignored human rights impossibility by their employers. If these standards. We have instead referred to other structures and programmes could them and called for them to be observed. be put in place, they could help By giving practical form to individual employers overcome the final practical human rights standards, we have made objections to all domestic workers having more progress than if we had simply a weekly day off. reiterated demands for Singapore to sign this convention or that treaty. One problem for NGOs in dealing with a government body in any country is how Our most protracted campaign has been to balance the public and private over the question of a weekly day off for campaigning discussion which is domestic workers. The rights argument definitely a problem in the Singapore was clear to everyone from the outset — context. Perhaps from the government’s the MOM’s position (not strongly point of view, closed-door dialogues allow expressed to the public) was that, in an exchange of views in which officials principle, it was in favour of domestic can take a more nuanced and less rigid
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Transient Workers Count Too’s Singaporean Way with Advocacy on Migrant Workers stand on policy and regulation than they doors’ material has to remain that way. usually would in a public forum. They There have been frustrations on both might also take such dialogues as venues sides. The MOM officials become irritated for testing the waters: unveiling official from time to time when articles are thinking on a change or initiative that is published on our website criticising its still being discussed or refined. They do handling of a worker’s case and they feel not want anything such as the latter to that either the criticism is unwarranted, be brought to media and public attention or that TWC2 ought to have raised the before or unless they feel absolutely matter directly with the Ministry and not ready. aired it in public. From TWC2’s point of view, such articles can highlight particular NGOs that engage in advocacy, by issues in order to raise public awareness contrast, tend to have more of a culture of them whilst promoting long-term of openness. They are usually quite change. In any case, the question remains comfortable with being challenged and of how far a dynamic, ‘newsy’ website publicly responding to what they that supports the society’s advocacy believe and do. They would prefer to efforts should curtail the reports of a be able to air exchanges with the variety of writers with the stories real government on policies, regulations workers have told them — this is and their practical implementation provided that due effort has been made fairly and freely. However, they have to to fact-check the circumstances related face the challenge that dialogue with to the news item. the government usually involves a certain level of non-disclosure to the On the other hand, TWC2 has sometimes public as a pre-requisite. raised questions and received a non- response, a pretty uninformative It is probably futile to seek a complete statement that leaves us no wiser than meeting of minds on this question, so the before. Some of the questions raised on two parties will simply have to bump the website that have been a cause of along and improvise, meeting by irritation have, in fact, been raised in meeting, letter by letter. In practice, it is more general terms previously, without usually not a big problem. TWC2 has any significant progress being made found that normally, the broader towards resolving them. questions that it would wish to broach in a public context, including on its website, What is important here is that there can be raised with reference to needs to be acceptance on both sides — statements and documents that are relations between the government and already in the public domain, but NGOs that engage in advocacy are bound anything that is strictly ‘behind closed to be a bit rocky — but we can live with
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Transient Workers Count Too’s Singaporean Way with Advocacy on Migrant Workers that. If there is a will to engage and strive a government considering possible to make progress, these differences will changes in policy towards migrant not stop that. workers has to take public opinion into account. Hence, if the public becomes Activities that can positively influence more sympathetic towards these workers public opinion have been important in or concerned at particular violations of TWC2’s work. From the outset, we tried their rights, it can only work in favour of our best to be helpful to students, regulatory changes that we would regard researchers and journalists who sought as positive. information. We have often provided speakers to schools, colleges and other For new activists, advocacy work can institutions. We regularly issue media seem quite frustrating, precisely because releases and write to the press. Our it rarely yields quick and visible results. research is partially geared to putting When gains are made, they tend to be sound information into the public domain little by little and rarely result in an NGO and promoting a better understanding of winning 100 percent of what it set out to migrant workers. achieve. That has certainly been the case in Singapore: when we see progress, it is The interaction of a steady stream of generally a small move here or an citizens with migrant workers is a by- adjustment there that do not seem at all product of some of our programmes. radical, but their cumulative impact can These include: The Cuff Road Project, that be considerable. Activists also have to provides food daily for destitute workers; reconcile themselves to the fact that Discover Singapore, which provides a day government bodies in any country are not out to somewhere interesting for normally forthcoming about what did destitute workers awaiting settlement of bring about a desired change — though their cases; and others where many it might be something that an NGO has volunteers engage with migrant workers devoted a lot of effort to achieving, it can for the first time in their lives, giving them feel, to the NGO’s supporters that their a new personal outlook towards migrant efforts are unrecognised. While this can workers in general. They take their be frustrating, it is the bigger picture that experiences away with them into counts: the change did happen! whatever walk of life they are in, wherever they are, influencing others as Sustaining TWC2’s Success they go. So, with that caveat, it is possible to look Overall, such initiatives have value in back on TWC2’s years of advocacy, themselves and they also contribute research and public education tied to our towards our advocacy goals — after all, direct services, and see that there have
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Transient Workers Count Too’s Singaporean Way with Advocacy on Migrant Workers been successes however incomplete gained respect. some have been: a mandatory day off At the same time, we must admit that our policy that has significantly increased long-haul approach has not been without the percentage of domestic workers its difficulties. Early on, when our direct having a rest day; raised standards of services work had only just started but protection against accidents and the when we were already engaging in elements for workers travelling to and advocacy, there were some who thought from worksites; raised safety standards that TWC2 was ‘all talk’. Volunteers have for domestic workers employed in high- tended to be drawn towards work that rise buildings; faster resolution of cases they see as of direct assistance to workers for workers with complaints against in need. Their contributions have been of their employers; stiffer penalties in the immense value and allowed us to do far Employment Act against the demands more than would otherwise have been of kickbacks from workers; the possible with our slender resources of impending introduction of itemised paid staff and money. payslips for workers on low salaries; and an anti-trafficking act. These However, we also need to maintain an and more were goals for which TWC2 organisation and sustain the other worked, and on which our views aspects of our work. We have had were presented to MOM and other difficulties in building a core group of governmental institutions. members to sustain our information services and advocacy. The main In our earlier years, we used to meet NGO difference, in this respect, between our activists from other countries and hear position in our earlier years and now, is about their activities. Some organised that we can look back on a record of demonstrations and rallies, and they achievement that shows that our overall issued strong public declarations approach has worked. That ought to be demanding action from their persuasive enough in helping us to renew governments. We would explain that we and revitalise the society in years to come were working in an environment where — though not for too many years, as our this was either not possible or was likely ultimate goal is to be so successful that to be counter-productive. Then we would our work will no longer be necessary! tell them how we operated. TWC2’s efforts often seemed very tame alongside theirs — we wrote a letter; we published an article; we issued a report or we had a closed-door meeting. Yet, it has turned out that we could have an impact and the work that we have done has
60 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Chapter Seven Developing the Singapore Soul: ACRES and Animal Welfare Louis Ng
Louis Ng is the Founder and Chief Executive Officer of the Animal Concerns Research & Education Society (ACRES) and first-term Member of Parliament of Nee Soon GRC. Ng received his first degree in Biology from the National University of Singapore and a Master’s degree in Primate Conservation from the Oxford Brooks University (United Kingdom).
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ACRES was set up after a young Louis Ng witnessed at the Singapore Zoo. A was appalled to discover a baby chimpanzee named Ramba hugged me chimpanzee bleeding after being and she was checking whether lips were punished for misbehaving during chimp bleeding after she had been punched. I photography sessions and spoke up will always be ashamed to say that it took about it. There were no organisations in a second incident before I decided it was Singapore willing to speak up against this time to speak up. cruelty at the time, so he started his own. Today, ACRES is an 18,000 member-strong I shared my concerns with many of the organisation focused on eradicating fellow volunteers at the zoo and everyone illegal wildlife trade and raising said, “Yes, it is wrong, but we cannot awareness on animal cruelty. It rescues, speak up, because this one involves the treats, rehabilitates, and returns to the government, you know?” natural habitat where possible, injured native wild animals or animals that have Hearing that remark was disappointing as been found to be part of an illegal trade. I felt that the biggest crime is to know It runs a Rescue Centre that provides a something is happening, and yet do permanent sanctuary to the animals that nothing about it. cannot be returned to their country of origin. Commentary: Was this incident after university? In this special interview, Ng tells us what motivated him to care about animal LN: I was in the first year of university welfare and rights, and it turns out that then. I realised that if I did not speak up, it is not only for the sake of the creatures nothing would change. I approached the themselves but for the deeper mission to zoo management and said that we should develop in Singaporeans the instinct to put an end to chimp photography. I put right what has gone wrong. remember what the curator said — we are good friends now — “Louis, you are Commentary: Firstly, while many care just a small boy; you will never win.” about animal welfare, what transformed you from someone who was personally With that, they took my badge and interested in animals into a change agent ‘fired me’ for speaking up. I approached aiming to affect broader society in the a number of Singaporeans, non- area of animal welfare? government organisations and got the same response: “The Zoo is government, Louis Ng [LN]: My interest in animals don’t speak up against it.” began when I was fourteen years old, but the turning point came after what I Eventually, I got the support of World
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Society for the Protection of Animals Commentary: This is quite an unusual (WSPA), a British group and IPPL approach because in pragmatic (International Primate Protection Singapore, one would ask: ‘Why stick League), an American group, to help me. your neck out? And this is not even for The Straits Times (ST) also published a people but animals’. Has it been just number of articles on the matter and we about animals for you or is there more eventually won the campaign. to this?
It seemed like I was this little boy trying LN: Firstly, I did it for the three chimps. to effect change in Singapore, but needed The other concern I had was that when I the help of Western groups — that again was taking the photos at the Zoo, only was embarrassing. one couple ever asked, “So, where are their parents?” This is why ACRES focuses I decided that I would set up my own so much on raising public awareness — group and ACRES was born. The first we need people to start asking questions. board member was Eunice Lau, the ST My mother, who is a civil servant, asked reporter who covered the story. She me if I really wanted to keep sticking my stuck her neck out for this campaign neck out like that. Another ST article got and ST was amazing to have believed my parents very worried. The headline in the cause and me. They published a was “Who does Louis Ng think he is? The piece in prime news with a strong 500 dollars-a-month activist”. headline: ‘Zoo takes flak for chimp photography’. Commentary: However, you were not just sticking your head out in a local Commentary: So you had to be context, but broadening it with courageous and had to find partners at international reach? the same time? LN: I simply wrote to the international LN: Yes. When the zoo finally stopped non-governmental organisations (NGOs). chimp photography and released the My skin is very thick — that was how chimps back to the rest of the troop, ACRES was set up as well. The first source Ramba ran to her mother and they of support, I will always remember, hugged in happy reunion. Eunice asked was from the Lee Foundation. I wrote to me for a quote and I told her that it was Mr Lee Seng Gee, who was the key the best thing I had done in my life. I told decision-maker at the Foundation, saying her that if I had to spend three years just I wanted to start a group to help animals. to help three chimps, I would devote my I asked, “can we get some money?” and life to such work — which is why we he gave me eight thousand dollars, our started ACRES. first cheque. I will always salute Mr Lee
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Developing the Singapore Soul: ACRES and Animal Welfare as I had no credentials and ACRES was rooms, ran other campaigns such as the zero back then, but he still supported us one against consuming sharks fin. We and it was a big encouragement to us. gathered ten members and officially There were others who stepped forward registered — ACRES’ first office was my to help too: NUSS member and then bedroom. Nominated Member of Parliament (NMP), Mr Chandra Mohan helped, and Commentary: It’s been quite a journey so did Ms Braema Mathi when she was — what are ACRES key campaigns or an NMP. milestones?
Interviewer: So you were still at LN: There were many. In 2004, we started university? working on a rescue centre because I realised that while I was going around LN: This was in 2001, my second year at rescuing animals, I would pass them to university — ACRES was essentially born the Agri-Food & Veterinary Authority of in National University of Singapore (NUS). Singapore (AVA) and that they were I will always recall some professors telling eventually euthanised. AVA did that me, “you cannot do both - mix science primarily because it did not have with activism.” I said in response that anywhere to house the animals nor extra there must be a purpose to science — resources to take care of them. A lot of that If we can use it to change the world, gibbons which were confiscated from the why not? But you know, advocacy fifteen wildlife trade, were eventually years ago was very different from what it euthanised for instance. We decided to is today. However,I had one professor, attempt to work with the government, Professor Benito Tan. He taught me about get a piece of land for these rescued bryophytes and he kept a keen, yet quiet animals. The first response to this from a watch on me. One day, he told me he civil servant was, “Louis, if we can get this nominated me for the HSBC NYAA Youth piece of land for you, pigs will fly. In such Environment Award — it was a big a land-scarce country, why would the encouragement to me. government give you a piece of land for activities with no economic value?” That Commentary: What happened after was a decade ago — we persevered. It that? took five years, but this explains why we have a model of a flying pig at the front LN: When we were successful with our of our Rescue Centre. Pigs can fly! chimp campaign, a number of people at that point wrote me letters saying “nice”, Commentary: What was a clincher then? or “good job”. That was when we started to mobilise people, moved into chat LN: You just keep fighting — we went to
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Developing the Singapore Soul: ACRES and Animal Welfare the media. Member of Parliament (MP) other stakeholders and aim to amend Dr Amy Khor and NMP Geh Min helped. legislation. We worked with government, We pushed till AVA said to us one day in MPs and ministers and got the first 2007, as if in passing, “And, by the way, amendment to legislation — the you got the piece of land.” We were asked Endangered Species (Import and Export) for a deposit which we did not have. Act in 2008. Through collaboration, we Seven thousand, five hundred dollars was achieved a lot more. the monthly rent and we needed three months’ worth of rent in deposit. We The Rescue Centre is another example of asked ourselves if we should proceed, but collaboration. We realised that the police the only way to find out whether you will was not equipped to manage wild drown, is to jump in and fight. My dad animals. There was the case of the stepped forward to pay the deposit. We policemen who ran over a python with built the place, purely by going out there their patrol car found at Singapore to beg for the money and raised about General Hospital because they did not $750,000 within half a year to get the know what else to do. whole place going. We could criticise the police and the Commentary: What has been one of your police would probably back off as they greatest challenges? might not want to work with someone who is so adversarial. Instead, we met the LN: I was pretty radical. In our first police and some office holders, and we ‘Suffering, not Smiling’ dolphin campaign, said, “Look, actually, officers are not I drove to Haw Par Corporation Limited’s trained. This really is not a crime in office [the Corporation owns and progress, so why would you want to operates Underwater World Singapore], waste resources by sending a patrol car parked near the car park entrance and down? Why not outsource the work to had a chained dolphin model on top of ACRES?” We have since rescued an my car. We entered the office to hand estimated 7,000 animals. over our petition and had media coverage for the campaign. Commentary: What happens to the animals you have rescued? However, I asked the team if we were helping to bring about fundamental LN: We rehabilitate them and release change to policies, and we realised that them back into the wild. We have a no- we were not really getting anywhere. kill policy. Most important is that the arrangement was accepted because we So we decided to take a different adopted a win-win collaborative approach, which was to collaborate with approach rather than name-and-shame.
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The name-and-shame tactic works in tone by reminding the public that there Western advocacy. Activists go out, is an alternative — that there are protest on the streets, make people look dolphins in the wild, off Singapore waters, bad; you barricade the entrance or chain and that we are studying them. yourself to the gate till things change — this might backfire in an Asian setting. Commentary: As for working with the government, how would you describe Commentary: You have run several that experience? different campaigns — the dolphin campaign seemed more strident and the LN: In advocacy, I think that when we go one on sharks fin, more soft sell. Is it into negotiation, activists tend to always different strategies for different issues? be very one-sided. We say, “this is what we want and this is the only thing we will LN: The key thing is that people need to accept.” However, if we start to negotiate know that you mean business. So a bit and strive to find that win-win through those early eight years of solution, then I think we can get adopting a confrontational approach, somewhere. people came to understand that we really mean business. If I say we want to work We did that with Minister of Home together, I mean it, but I can be their best Affairs and Law, MP for Nee Soon East, friend or worst enemy — it is their choice. K Shanmugam. When he was asked why he was involved in the animal welfare With the dolphins at Resorts World, we space, he said it was because I contacted engaged them right from the start to him and asked him for help. We must persuade them not to hold such wild approach and ask to move things along. creatures in captivity, but the turning So with the Chong Pang ‘Love Cats’ point came when we realised through programme, we know that the media reports that they went ahead to government has been culling cats. We buy the dolphins. We did not find out conducted a survey among Chong Pang from them. Even then, I hoped we could residents and over 90 percent said they still work together. However, when we were against culling cats and were learnt from the media reports that two okay with having them in the dolphins they were preparing to bring to neighbourhood if they were sterilised Singapore died in Langkawi, we issued an and managed. We shared this with the ultimatum, but they decided to proceed. Mr Shanmugum who was MP of the That was when we started our advocacy area. We didn’t say, “I don’t care, it is against the dolphin park at Resorts World. inhumane to kill cats so you have to stop the killing.” If we go with anger, We are still trying to strike a more positive any MP will take a step back at such an
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Developing the Singapore Soul: ACRES and Animal Welfare approach and ask, “Who is this and why the mood in the room was much better are you attacking me?” But if you go and people offered feedback that was with an ‘open arms’ approach and say, more constructive. “Look, I have taken the initiative and I have taken the survey — the residents That was when we realised that a lot of are supportive so let us trial this for two people were seeking legislative change. years. If it works, it works. If it doesn’t, We announced the establishment of the scrap it. But, give it a chance.” This way Animal Welfare Legislative Review of speaking is very different. Committee shortly after that.
We presented the Minister with the That for me, has been the best committee proposal in a closed-door setting and I have ever been part of because people let him agree to it before letting the from different sectors with different media know. Often, advocates will jump interests joined together to draft the gun — they will go to the media first legislation. So you had representatives of after which, they alert the authorities. several animal welfare groups, the MPs, Then, it becomes slightly more town council, grassroots organisations adversarial. and even the Pet Enterprise and Traders Association – the latter, people who do Commentary: The larger issue is not usually see eye-to-eye with the regarding the review of the Animal animal advocates. We did an amazing Welfare Bill and dealing with pets, amount of public consultation and came which resulted in the tightening of the to a compromise — a win-win solution. regulation in November 2014 — how Former MP Yeo Guat Kwang chaired the did that evolve? committee and managed to bring everyone together rather well. LN: It started with a Chong Pang Public Forum on Animal Welfare Policies Commentary: How did you convince held in June 2011 when Minister your strongest opponents — the traders Shanmugam was in attendance. At that — as changes would have represented an first forum, the mood was negative as increase in business costs to them? the people who attended it felt that more needed to be done in this area of LN: With many of them, they realised it animal welfare. We took in all the made long-term business sense to feedback, worked with the AVA and promote animal welfare. If their business Ministry of National Development is viewed as being progressive, they get (MND) to show people that if the further business. It is not easy — to send feedback was constructive, we acted on all their staff members for training now it. Subsequently, at the second forum, — as the new law would require that and
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Developing the Singapore Soul: ACRES and Animal Welfare it is business cost. However, we managed tortoise, one at a time. We have to work to push the changes through. That bill with India to see how we can increase the took two years to pass. It was a Private enforcement on anti-poaching rules. We Member’s Bill, which is rare but is still must convince individuals not to buy represented as a ground-up initiative. I them. Our border checkpoints have to be really liked the process and that is why I strengthened too. This way, we will solve said that in order to move forward in our it so that one day, we will have zero star society, we need to form more of such tortoises at the Rescue Centre. That is our committees. The AVA was a Secretariat ultimate goal. with their officers at the meetings — it was really a discussion with the people Commentary: What precisely is this on the ground and MPs. mindset change that is your end goal?
Commentary: What are the present and LN: We are not trying to develop a nation future directions now? of animal lovers. However, we must develop a nation of people who have a LN: I am moving from doing all the hands- sense of injustice when they see on work to the task of mobilising people. wrongdoing and take action. That is the I see that as my biggest role now — to biggest hurdle we need to cross next. It get as many people on board as possible. is not just to call the AVA or having the I told the ACRES team that we are not government do something about a here to rescue animals and that if by the problem — we need to move away from time I die, we still have the ACRES Wildlife this “government has to do everything” Rescue Centre, we would have failed. I mindset. It is easier and more instinctive do not want us to announce that this year to say: “the government should run our we have rescued a thousand animals and rescue centre so why should we bear the next year, a thousand and two — that cost of doing that?”; “the government extra two hundred means that we have should rescue the python, why should I failed two hundred times. do that?” If we continue to have this attitude, we will get nowhere. We have Instead, I want the mindset that we are to find ways for both to happen – not running an organisation, but that we government taking the necessary action are running a movement. And, to get a and members of the public finding that movement going, we have to change they too have a part to play. Only then I mindsets. We need to mobilise people. think, we can progress far more quickly. We need to stop addressing just the symptoms of the problem and try to address the root of it. So with the wildlife crimes, it is not about rescuing a star
68 COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING Chapter Eight A Sustainable Future through Purposeful Making Veerappan Swaminathan
Veerappan Swaminathan is the Co-Founder of Sustainable Living Lab (SL2), which is a social innovation lab that harnesses the energy of the Maker Movement to build a sustainable future. SL2 won the youth category of the President’s Challenge Social Enterprise Award in 2015. He is concurrently the Chief Executive Officer of OneMaker Group (OMG), which brings together Makers, Designers and Entrepreneurs from all over Asia and amplifies their collective brilliance through educational programmes, prototyping services and organising maker events. He graduated from the National University of Singapore (Class of 2011), majoring in Mechanical Engineering. He participated in the NUS Overseas Colleges Program (Silicon Valley) and was a member of the University Scholars Programme (USP).
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Ensuring the sustainability of our society social enterprise in 2011. and species is perhaps the biggest challenge of our times. The science about Sustainability is often viewed within the the adverse impact of mankind’s scope of the environment, but we took a activities on the environment has been broader view as we felt that a sustainable clear since the seventies. Yet no future can only be achieved if we significant action, beyond numerous considered the interconnectedness of the ineffective global meetings, has been environment, society and the economy - taken to mitigate, much less reverse the commonly referred to as the ‘Three Pillars decline. Model of Sustainability’ by experts and practitioners in this field. Today, we can see clear evidence of the Economy environmental effects — fast receding Society polar ice caps, declining fish stocks and erratic weather patterns which are Environment leading to socio-economic issues such as lack of access to clean water, worsening land and air pollution, and increasing rural-urban income inequality.
Having been born into the generation that will likely bear the brunt of these effects, the options before me as I In this model, the environment thought about it while I was at university, represents a finite boundary within which was either to be a driver of change or be human society and the economy exist. a passenger of fate. The economy is viewed as a subset of society with the reasoning that it is Three Pillars of Sustainability derived from society or created by it to efficiently exchange value within most, It was in response to these global although not with all elements of society. challenges that a group of my course Those that create social value without mates at the National University of going through the market are, for Singapore (NUS) and I founded the example, stay-at-home mums and other Sustainable Living Lab (SL2) with the caregivers. vision of building a sustainable future through practical action. However, the reality is that we tend to give outsized attention and dedicate We started out as a student club at NUS immense resources to the economy, with in 2009 and then transitioned into a society being deemed as being of
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A Sustainable Future through Purposeful Making secondary importance and the from Malaysia, Indonesia and Vietnam environment; often, relegated to an with accusations of environmental occasional concern. degradation coming from Cambodia- and Myanmar-based environmental Building a sustainable future means organisations. The financing and growth taking into consideration all three pillars of the palm oil and paper pulp industry - environmental, social and economic by Singapore-linked companies, that sustainability - because they are some evidence suggests, are culpable interconnected and cannot be through their supply chains for forest meaningfully separated. fires, massive deforestation and habitat loss for indigenous animal species in Ultimately, a sustainable future is one in Indonesia. The yearly transboundary which we can continue to thrive as a haze serves as an annual reminder of species without negatively impacting the our complicity in the environmental opportunities for our future generations degradation of our neighbours. to flourish. On the social front, we have an increasing Coming Home to Roost income divide, leading to reduced social mobility which threatens the belief in In Singapore, our national leaders have, meritocracy as a key organising principle since Independence, prioritised the in our governance system. attainment of economic sustainability as the primary strategy for achieving On the economic front, our continuing national progress. They were careful to heavy reliance on the oil refining industry incorporate positive environmental for jobs and economic growth also makes practices such as banning or regulating it difficult to truly commit to a shift polluting industries, enforcing the towards renewable energy. While what installation of catalytic converters in was primarily an ‘economy-first’ strategy motorcars and embarking on a national may have worked for Singapore in its tree planting programme. These early years, it is clear that if we are to look practices ensured that Singapore itself forward to continued progress as a remained liveable as we made rapid nation, environmental and social economic progress. However, we have to concerns will have to take on greater recognise this has still come at a cost prominence. which we may soon have to pay. We recognise though, that the On the environmental front, our sustainability challenge has every extensive land reclamation policies feature of a classic ‘wicked problem’, have resulted in sand export bans with multiple interconnected causes
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A Sustainable Future through Purposeful Making that interact with each other. To make punch above its weight on the world matters even more challenging, the stage. This would not have been possible transboundary nature of sustainability if our society then had not possessed the issues puts any solution out of reach of never-say-die attitude and gumption to any single state actor. Any nation tackle challenges head-on. choosing to take unilateral action rightfully fears that if others do not follow The Maker Mindset their lead, their actions will be pointless or worse still, may end up backfiring if Similar doggedness, resolve and their country becomes side-lined in the creativity are required by all of us today. community of nations. For a country such At SL2, we feel that sustainability as Singapore, which is heavily dependent challenges are among the issues that are on other nations but also relatively small beyond the scope and capacity of in its ability to significantly change any national governments to address. In an situation, taking unilateral action is era where the influence of multinational understandably viewed as a non-option. corporations is growing, with the Pragmatic thinking suggests that we are economic value they generate and will remain a ‘price-taker’ and not a sometimes even surpassing that of ‘price-setter’ at the international stage in nation-states, a strategy of addressing so many respects. Judging by how the sustainability challenges through socially- international community has actually driven enterprises could offer better been ‘setting the price’ over the last few dividends. Setting up social enterprises decades, it will be unwise to expect only solves one part of the problem; that any major global reform regarding is, providing an engine to drive us towards sustainability in the near term. sustainability. As a society, we also need to internalise the interconnectedness of Interestingly, this is not the first time our environmental, social and economic in our national history that we systems and develop a global culture of have encountered similarly bleak sharing and collaboration. circumstances which seemed beyond our control. At the birth of our nation The Maker Movement came into in 1965, in response to the hostile prominence globally in 2006 as result of neighbourhood we found ourselves in, several intersecting driving forces — our leaders used every ounce of ingenuity widespread Internet access; low-cost they could muster to engage in a dual Chinese manufacturing; popularity of policy of shoring up our defence open source hardware designs; expiry capabilities (by instituting National of key technology patents; a trend Service for instance,) and engaging in towards self-actualisation amongst intense diplomacy to allow Singapore to young people; and a yearning for tactile
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A Sustainable Future through Purposeful Making experiences by a generation who are depends less on formal training, more great at using technology but very poor on peer-sharing and the heavy in understanding how it is made. investment of one’s time and effort. Makers put in that effort due to the While the Maker Movement is often intrinsic motivation of wanting to associated with technological advances, produce one’s best work independent what is far less obvious is that it promotes of any reward or praise. That is not all. a unique mindset - the Maker Mindset - If the acquisition of mastery is not which indicates a common set of tempered with humility and grace, it behaviours observed amongst Makers. can easily result in pride. The practice Allow me to explain. of ‘open sharing’ in the Maker community grounds the Maker and Makers come in all shapes and sizes with reflects a realisation that humanity some being hobbyists and others stands taller on the shoulder of giants operating as professionals, but all of them — that ideas multiply and not diminish utilising technology and ingenuity, in through sharing. equal parts, to engage in developing new products and services. Makers, Given the complex nature of regardless of where they hail from, sustainability issues, seeking and tend to possess a ‘growth mindset’, assimilating knowledge in cooperation practice craftsmanship values and believe with many others is par for the course in ‘open sharing’. The ‘growth mindset’, to make any sort of dent. In our a concept popularised by Carol Dweck, opinion, these traits exhibited by refers to the personal belief that Makers are exactly the sort we need intelligence is not fixed and that one can people to develop if society is to learn any new subject matter. As you can successfully address and overcome imagine, this is a particularly empowering complex sustainability challenges. belief system and explains why Makers are so comfortable working with Purposeful Making ambiguity as they explore new technologies and methods. As an organisation, we adopted the ethos of the Maker Movement and Any skilled person has to go through focused our work on inspiring and years of careful practice to improve directing the creative energy of Makers their craft and that is the same with towards building a sustainable future. Makers. Bear in mind that in Singapore, at the time of writing, there is no Our work involves generating positive diploma offered for being a Maker, so social capital through friendships and the process of attaining mastery peer-sharing, protecting the natural
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A Sustainable Future through Purposeful Making environment and creating economic highly collaborative, action-biased activity that is conducive for dynamic through a culture of mutual peer sustainable human development. We support, advice and assistance. call this ‘Purposeful Making’. In our case, this conducive environment Let me illustrate what I have said by was our first step in giving the public a sharing with you several projects that platform to engage in purposeful making SL2 has engaged in and the impact that and it allowed the team to develop other has resulted from these. programmes and products such as ‘Future Fridays’, ‘Repair Kopitiam’ and the Social Sustainability invention of the ‘iBam’, all of which I elaborate upon later. In our view, the first order of business in tackling the complex issues of In 2014, we were also fortunate to be part sustainability is to identify like-minded of a consortium that successfully won the individuals, develop their potential and bid to develop a Prototyping Centre - a build a community of practice around Makerspace to promote tinkering and them. Every community needs a physical hardware entrepreneurship - at the space to do that in, hence we pioneered National Design Centre. Having learned the development of ‘makerspaces’ in from our experience which we have Singapore, starting the first such facility shared widely in the mass media and in 2011 at the former Bottle Tree Park in through hosting numerous local and Yishun. foreign visitors, many educational institutions and private makerspaces Makerspaces are zones of self-directed have subsequently been set up in learning, which are equipped with the Singapore and the region by other latest in technology, other resources and parties. creative tools such as 3D printers, laser cutters, computerised milling machines, Interestingly, many Southeast Asian sewing stations and circuit board printers, makerspaces have subsequently been along with the educational resources for organised around the aim of addressing users of the space to gain familiarity with local social issues or sustainability the various tools. challenges which is very unlike the makerspaces that can be found in the They serve as a node or a magnet United States or Europe. We would like (depending on how you look at it) for a to think that we had a hand in influencing community of Makers to gather around that change! a common intent (in our case, addressing sustainability challenges) to foster a However, having a physical facility alone
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A Sustainable Future through Purposeful Making is not enough. A shift towards sustainable affect their sectors. For example, several thinking is only possible when people are local food sustainability groups interested in thinking and acting for the collaborated after participating in a long term, so the next order of business, Future Fridays session. They organised a it was clear to us, was to create a mindset huge ‘meetup’ of the different players in change around sustainability. It was with the food ecosystem to address the that intention that we initiated ‘Future sustainability of food supply in Singapore. Fridays’. Seeding change in mindset around The premise of Future Fridays is simple: sustainability takes time, but we believe it is to equip working professionals with it is already paying dividends as we see the knowledge and practice of futures- the nature of strategic conversations thinking tools, so that they can influence change to accommodate long-term change towards sustainable practices thinking on the issue even among smaller within their own organisations. organisations.
These sessions which take place regularly Environmental Sustainability on Friday evenings focus on a wide range of topics - from the Future of Work to the Where the first two initiatives - Future of Transport and even the Future Makerspaces and Future Fridays - dealt of Food in an effort to demonstrate the primarily with the development of interconnectedness of nearly any issue positive social capital as well as a mindset with the larger issue of sustainability. The change around sustainability, the ‘Repair sessions help participants to think Kopitiam’ project dealt with the systematically of scenarios of the future widespread environmental issue of waste around the selected topic. The sessions generation in Singapore. end with participants manifesting their ideas for a preferred sustainable future Despite decades of awareness-building in the form of physical artefacts that they and educational efforts, the amount of create. These artefacts are exhibited at waste that is generated keeps increasing the makerspace or other prominent largely due to the ‘buy-and-throw-away’ locations to activate public conversations culture - an outcome of consumer around the issue of sustainability. affluence in Singapore.
It is heartening to note that we have had Inspired by the Repair Cafes of Europe, many corporate partners and civil society we devised the Repair Kopitiam organisations get involved in thinking programme as an effort to tackle this buy- through their current strategies in the and-throw-away culture in a way that context of long-term trends that might seeks to prevent waste in the first place
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A Sustainable Future through Purposeful Making and revolves around practical action. environmentally-friendly habits - never First, we teach volunteers how to repair mind what their primary intention was. electrical home appliances, furniture and fabrics. We then have our newly-minted Today, many corporate and educational ‘Repair Coaches’ conduct public repair institutions have started to adopt programmes at high traffic void decks of repair activities into their basket of public housing flats to teach members of environmental corporate social the public how to repair their own broken responsibility programmes alongside the items. These public sessions, which usual recycling programmes and litter- attract up to 300 members of the public picking activities. each time, are conducted every last Sunday of the month through our roster We have also expanded the Repair of over 60 repair coaches. We estimate Kopitiam programme to include that our participants now repair about 60 performing repair activities at several percent of all items that are broken and voluntary welfare organisations that are therefore saved from the trash typically have many wheelchairs and heap. At the sessions, participants or geriatric equipment that require those who are just gawking often just maintenance but might otherwise be mingle around with their neighbours set aside for the waste dump due to the and enjoy a cup of coffee on us — lack of professional repair services. Our hence we call it Repair Kopitiam. ultimate aim is for people to always consider if an item can be repaired and Participants, most of whom are below restored before sending it off to the 20 years of age and above 40, often trash. share that they were attracted to the Repair Kopitiam sessions not because Economic Sustainability of environmental reasons but because it seemed like a fun and social way to The final pillar of sustainability has to spend a Sunday morning. This concept do with building an economy that is of ‘incidental environmentalism’ is conducive for, and not at the expense something that we seek to manifest in of, human development. When it all our programmes as we want to comes to addressing sustainability reach an audience that is traditionally issues, many companies view it from a indifferent to environmental compliance perspective or from a messaging. Oftentimes, it is not corporate social responsibility necessary for people to be fully aware perspective. We feel that there is a that they are engaging in an third way — sustainability can be seen environmental practice. What is more as an impetus for innovation; a way to important is that they actually practise unlock or create new economic value.
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When we created our popular bamboo context of the massive sustainability sound amplifiers for iPhones and the like challenges we are facing. - called iBam - we took great care to ensure that the process of harvesting, Conclusion manufacturing and packaging was done in a manner that reduced harm on the The initiatives of SL2 that have been environment and created opportunities mentioned are just some of the ways we for vulnerable communities to remain manifest the concept of purposeful employed. Traditional craftsmen from the making in daily practice. declining angklung (a traditional Indonesian musical instrument) sector Clearly much more work is needed on all were re-employed to use their specialist levels of society if we are to be able to skills in manufacturing the iBams and the overcome the tough times ahead for our packaging was stitched from raw society and even Planet Earth. There are unbleached cotton by stay-at-home positive signs and reasons for optimism single mothers in Singapore. out there though. I am continually surprised at how much young people When it comes to traditional economic know about sustainability issues and by activity, much of it operates on a linear their efforts to engage in meaningful model which starts from raw material work in this area. I have also been extraction and at the end of its useful encouraged by the actions taken by some shelf-life, ends up in the dump. Today, prominent ‘mainstream’ organisations to new models of sharing spare capacity fundamentally change the way they have have greatly impacted the hotel industry been going about their business and (AirBnB), transport industry (Uber, Grab, operating in ways that more in tune with GoGoVan etc.) and the commercial the resource-constrained world we are a property sector in the form of shared co- part of. working offices. As Mahatma Gandhi once said, “The All of these trends are part of a move world has enough for everyone’s need, towards an economy that is more circular but not enough for everyone’s greed”. in nature - a product can be shared as a service, be easily repaired, remanufactured as good as new or is extremely easy to separate so as to recover valuable constituent materials. In fact it could be said that the ‘circular economy’ is perhaps the new model of an economy that can take-off in the
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 77 Chapter Nine The Challenges and Promise of Ground-Up Social Innovation The Story of The Thought Collective Kuik Shiao-Yin
Kuik Shiao-Yin is Co-founder and Director of The Thought Collective. Together with her founding partner/directors Tong Yee and Elizabeth Kon, Shiao-Yin runs this group of social businesses whose mission is to build up the social and emotional capital of Singapore. They work with sector partners to design strategic civic-oriented media, events and programmes that explore new possibilities for helping communities become braver, stronger and kinder. Outside the Collective, she served as a Nominated Member of Parliament in the 12th Parliament of Singapore, continues to do so in the 13th Parliament, and is a member of the Founder’s Memorial Committee. She also serves on the boards of OnePeople.sg and SCAPE.
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The Challenges and Promise of Ground-Up Social Innovation
2002 to 2007: How It All Began preferred to focus on offering tuition aimed at a more ‘teachable’ younger In 2002, I was a 25-year-old creative customer bracket (Primary and director at a digital design studio start- Secondary School) where a scalable up when an old friend asked if I would ‘repeat-rinse-drill’ style of teaching could help him develop an idea to bridge a still generate decent results. social gap as well as a market gap he had identified. He pitched an intriguing proposal my way: Could we deal with both problems As a rookie General Paper (GP) tutor, he through one solution? What if we started was excited about the great potential an experimental tuition group that in the subject to help broaden the developed innovative new approaches to perspectives of youths. However, he teaching GP not just for the short-term noticed a concurrent social problem: purpose of conquering an exam but for many young Singaporeans were the longer and larger purpose of graduating from the education system conquering societal apathy? generally well-read but surprisingly self- centred and apathetic. Many believed the It was the sort of ridiculously senseless whole point of their education was to suggestion that makes most sense when prepare them for individual success but you are young and idealistic. I bought in. it had nothing to do with enabling them to help others in the community find We began with 20 students but by the success collectively. end of the first year of the venture, we managed to raise that number to a 100. He also observed that GP tuition was not That was sufficient feedback for us to put widely offered by the market. It was $40,000 down to officially start the School certainly not for lack of demand: good GP of Thought. grades are a prerequisite for university admission so students have vested 2007 - 2012: Our Formulative Years — interest to be as good as they can at it. Too Fast, Too Furious? The market gap was largely due to two factors. First, a common assumption Between 2003 to 2007, we were tutoring among youths that GP was ‘unteachable’, 200-300 youths a year. We were a too thick with knowledge to learn so moderate success but there was still attending tuition seemed pointless; something dissatisfying about what we second, commercial tuition centres were were doing. disinterested in offering GP tuition in a big way because it was difficult to When people asked, “What do you do?” guarantee one’s ability to ace it. They they would be perplexed when I said our
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The Challenges and Promise of Ground-Up Social Innovation goals were — “broadening perspectives” In 2007, with equal parts of calculated and “creating empathy”. So the answer I instinct and youthful bravado again, we eventually settled on was, “We are launched two experimental platforms for something like a tuition centre - but not public education. really.” It was frustrating not having the right words to describe the fullness of our First, we started publishing Broader intentions. Perspectives, a current affairs magazine pitched at 17-to 30-year-olds. This was a The turning point in how I saw our work response to another market gap. Time came from my involvement in the 2004 and Newsweek were popular magazines “Creating our Future” youth consultation that students subscribed to but were exercise that was launched when usually left unread for three reasons: the Mr Lee Hsien Loong became Prime weekly magazines were issued too often Minister. Taken by his call for all youths to digest; they were too oriented towards to step forward to contribute their views Western issues; and they were not on Singapore, I signed up to be in the immediately relevant to the exams. National Identity workgroup and for the Broader Perspectives’ addressed those first time, I got to hear the views of a concerns by being monthly, it discussed range of citizens of different ages and both national and global current affairs backgrounds. and it made a clearer connection with students’ exam needs. What struck me most was the number of people who ended their grouses about Second, we started up a socially conscious youth apathy with that complaint that cafe called Food For Thought. The “education is not doing its job”. They experiment was about creating a safe, spoke with a mood of apathy; resigned neutral space for the general public to get that there was no solution. I shared my a taste of what broadening perspectives take on the situation, saying that there and empathising with others looked like were possibilities of moving forward from in community. The restaurants provided the ground up, citing our budding work three simple entry-points for the public at the School of Thought. The older adults to ‘do good’: first, we served tap water listened politely but did not take me for free but requested that customers seriously nor did I feel insulted: our work voluntarily donate to a fund to build wells definitely still sounded more like a so that someone else could enjoy the charming ideal than practical reality. Still, same luxury; second, every dollar spent what I took home was a deeper at our restaurants helped us contribute conviction that our work to address youth towards poverty alleviation projects apathy was needed because few wanted across Asia; third and most significantly, to do anything significant about it. the restaurants ran free empathy-
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The Challenges and Promise of Ground-Up Social Innovation building community events open for consistent pipeline of publicity simply anyone to attend. These events ranged because at that time, alternative brunch from those requiring low vulnerability cafes were not the norm. We were still topics (for example, ‘Connect with others considered a first mover in a growing cafe on Cellphone-Free Tuesday!’) to high scene and were thus newsworthy for a vulnerability one (for example, ‘Tonight, period. Till this date, Food For Thought hear a couple share about surviving still has the highest brand recognition adultery’) from participants. among all our other companies.
Both ventures were huge risks - especially We grew rapidly. We went from six the restaurant. Given that there is a 80- employees in 2008 to 64 in 2011. At the 90 percent failure rate in the Food and peak, we added 44 people to our staff Beverage (F & B) industry, we were - and within a year. From one magazine, we still are - putting ourselves at great went to three. From one 30-seater cafe, financial risk. Whether this will turn out we went on to three restaurants: an 80- to be a wise or unwise move on our seater at 8Q Art Museum, a 250-seater part, is still up for debate. Also, we were at Singapore Botanic Gardens and a 150- - and still are - a small, young and seater at National Museum of Singapore. inexperienced team relative to our That amount of growth and public profile outsized ambitions so going into very translated into some level of ‘street cred’ different industries is a serious stretch of especially when we had to engage in our abilities and resources. discussions with far larger private and public organisations later. However, if we had just stayed as a tuition school for youths, no matter how 2012 to 2016: Our Years of Reckoning successful we became, we would always and Refinement be pigeon-holed. We would never gain the breadth of experience to become a My father had a piece of folk business game-changer in shaping social wisdom: entrepreneurs will always conscience and societal attitudes at a encounter trouble just before Years 1, 3, broader level. Diversifying our 5, 10, 15 and 20. Any business that can experiences and offerings would help us survive Year 20 will have a chance at a diversify our insights and gain relevance long legacy. with a broader range of stakeholders too. It was in 2012, our 10th year mark in Between 2007 to 2012, both bets did business, when we received two serious appear to have paid off. The magazines wake-up calls. provided a decent alternative pipeline of income. As for the restaurants, we got a The first blow was the sinking realisation
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The Challenges and Promise of Ground-Up Social Innovation that running a 250-seater restaurant was By 2013, we had become a small and a completely different ball-game from a medium-sized enterprise (SME) of 90 30 or 80-seater. Our outlet at Singapore employees. Honestly, that took some Botanic Gardens was taking too long to time to sink in. We, the three founders gain traction and every month that went were consumed with just staying on top by, burnt five-figure holes in the accounts. of a never-ending stream of daily We had neither the deep pockets of demands. Mistakes happened because money, resources nor experience to win we had not set aside time to consider at the big restaurant game. together what was really happening beneath the appearance of growth. The second fist in the face was to have two of our leaders - one a founding Still, alongside all the unhappy partner - in our secondary school developments, something oddly positive department leave with a significant was brewing. number of our secondary school student cohort to set up their own The pain of 2012 forced us to ask hard commercial tuition centre. They left questions: If we were going to go through because they felt fundamentally so much suffering, what were we misaligned with where our organisation suffering for? was going. Managing the fallout from angry parents, confused students and From 2012 onwards, we began the slow earnest teachers torn between loyalties work of refocusing our mission, refining was rough. Having to arrange a our strategy and rebuilding our house. sufficiently generous buyout of the exiting partner and fill the huge We started to identity ourselves more as financial hole they left behind was a The Thought Collective - an ecosystem of lesson in emotional resilience. social businesses that found innovative ways to build up the social and emotional Perhaps the best achievement of that capital of Singapore. Our three core season for us was that no relational businesses were repositioned as the bitterness was allowed to take root. three specific strategies for making that Through everything, we focused on happen. School of Thought concentrated solutions instead of ‘blame-shifting’. Till on creating and delivering innovative today, there might be some sorrow but civic education, and developing thought we bear no resentment towards our leadership among youths. Think Tank friends. We may disagree with their Studios went beyond publishing to actions but we empathise that they become a creative agency helping believed that those were right choices organisations communicate complex for them. issues through thoughtful content
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The Challenges and Promise of Ground-Up Social Innovation curation and sense-making design. Food entrepreneurs are so focused on building For Thought provided safe and attractive their business that they often avoid public spaces to test-bed community thinking about exiting their company outreach events, exploring potentially until market disruptions, hostile thorny social issues. takeovers, health issues of their leaders force them to. Finish Big was his attempt As a result of our own peculiar journey, to fill “an enormous gap in business The Thought Collective itself also began literature”, collecting principles gleaned to develop a unique capacity to train and from stories of ‘good’ and ‘bad’ exits. It is advise private, public and people sector a sobering reminder to anybody who partners on how to design media, events wants the legacy of their creations to be and programmes for greater social and about pride rather than regret. emotional impact with the communities they wanted to reach. The problem for organisations that sit at the grey intersections of government, Whether we are engaged by a youth business or charity is: which stakeholder development organisation to restrategise is going to help you sustain, scale and their corporate story-telling or run a exit? And why would they do so? bespoke training programme for a public healthcare corporation to address Unlike profit-centric entrepreneurs growing cynicism within the ranks, we are whose aim is to create ‘built to flip’ able to design with empathy because we organisations, the socially-oriented are not just trainers or consultants leader in the public, private or people working from a playbook of other sector aims to build ‘built to last’ people’s reported experiences. We come organisations. The former thinks about alongside as fellow practitioners and how to exit early, selling out at the highest partners who have been there, done that price possible at the peak of their promise and are still trying. rather than the valley of their reality. The latter thinks about how to exit well, 2016 and beyond: Reflections on future handing over their organisation and challenges and opportunities mission to a new generation.
In the midst of our short-term troubles We did not create The Thought Collective in 2014, I read Bo Burlingham’s Finish Big. out of any desire to start ‘a social It helped me see the biggest long-term enterprise’. That phrase did not even exist challenge ahead for us. in popular parlance back then. We were just a group of young adults who wanted A longtime editor of Inc. magazine, to fix a social problem and find a way Burlingham was struck by how to get paid to do so as a full-time
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The Challenges and Promise of Ground-Up Social Innovation occupation, not a hobby. Yet, since social government itself, but if that bizarre motivations mattered more to us than scenario actually happened, would we be profit-maximisation, we charged able to maintain independence of agenda accessible mid-market prices. In the and agility to evolve? case of the School Of Thought, we even provided subsidies to ensure In some ways, we have become a victim underprivileged students had access to of our own ‘success’. We also joke about our programmes. how another exit strategy is to work ourselves out of a job. We might get what For the longest time, we were proud to we asked for. Back in 2002, nobody be independents who bootstrapped offered GP tuition because many believed our own way forward. We did not it was unteachable. In 2007, nobody take in any public funding or private offered local current affairs magazines to investments and relied on a youths because many believed Time and combination of revenue and loans to Newsweek were enough. Also, there cope. That allowed us to move with were few casual brunch cafes with speed and flexibility. If we took external interesting events because F&B money tied to external agendas at the entrepreneurship was not trendy then. early stages, we may not have evolved Today, all that has changed. In some as dynamically or innovatively. instances, we may have even inspired our own copy-cat competition. We recognise Currently, we do not have a great answer it in similarly named products and for how to find investment to scale or exit services, in similarly pitched proposals sustainably. Traditional business investors and even in similarly named social would not want to buy us out nor would enterprises. It is both a good and bad we want to sell to them either because thing. our social motivation stymies profit- maximisation. Social impact investors are Ultimately, we are willing to help grow a possibility but many are primarily the social innovation space and mentor interested in investing in what they start-ups on the scene. From a mindset perceive as far more urgent issues such of scarcity, that is career suicide. From as global poverty and climate change. Our a mindset of abundance, it is just doing work is also still centred in Singapore what needs to be done. We are happy (though I foresee future cross-cultural to inspire, and see meaningful work applications) which puts off some impact take root everywhere. Our end-goal is investors who would rather invest in less not personal success but the collective developed economies. We joke that given success of Singapore even at the cost our mission, our best impact investor of shrinking our market share when the might actually well be the Singapore competitors we help, prosper. We also
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The Challenges and Promise of Ground-Up Social Innovation face the usual SME woes of rising manpower and real estate costs, social enterprise or not.
I choose to close this essay with hope.
To me, Singapore is the bootstrapping start-up nation that startled the world. Her founders left behind a cultural legacy of innovation even in scarcity. They set a historical precedent of courageously and creatively tackling of societal problems which is worth living up to.
My ambition is to see Singapore positioned as a leader in the global social innovation scene. My hope is that someday, more Singaporeans will become known internationally for their thought leadership in solving the world’s most complex, intractable problems through a combination of not just intelligence and grit - but empathy too.
It is a crazy dream, but we will do what we can to help her get there.
COMMENTARY VOLUME 25, 2016 SINGAPORE: A DEMOCRACY OF DEEDS AND PROBLEM-SOLVING 85 Chapter Ten *Five Hunches about the Future of Public Policy Design Bernise Ang
Bernise Ang is Principal and Methodology Lead at Zeroth Labs, an experimental lab which brings together behavioural insights and systems analysis, and applies them to social policy issues, creating new forms of services, products, and innovating new business models. *A version of this essay was first published in IPS Commons in January 2016, as part of its Young Singaporeans Series.
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Five Hunches about the Future of Public Policy Design
In the past five years, there have been a objectives; and the trade-offs between number of developments across the desired outcomes and the resources world in the public sector space, allocated for them. particularly with regard to innovation. In Singapore, public policy-making and As we look to the future, the interesting services have traditionally been the developments and trends that are domain of a small number of elite emerging lead us to a number of hunches technocrats. As with many other about the future of public sector countries, the greater the strategic innovation in Singapore. These hunches import, the smaller that number of are also implicitly questions about the technocrats involved. However, as future of cities and populations, the digital and social media become potential of technology, and the nature ubiquitous in Singapore, the nature of of the human condition. information treatment — in particular the consumption, creation, and Hunch #1: Behavioural Insights will be dissemination of information — Increasingly Important in Designing inadvertently creates a shift in the social Policy for Citizens contract as we know it. As populations become more varied and With a small group of like-minded textured, it becomes more difficult to colleagues, I have been working in the create policy in a number of domains that area of public sector innovation, related are premised on generalisations or to the urbanisation process in developing assumptions we might have of the countries as well as public sector issues various groups these policies seek to in the urban context. This experience has serve. This, of course, applies more to been a varied one: from re-imagining policy for targeted groups, or groups on municipal public service models in the margins, rather than policy for the Bangladesh and informing Bhutan’s mainstream population. employment policy, to healthcare and hospital design in Singapore. Along the In a project we conducted on way, we have learnt many lessons about urban poverty and neighbourhood public policy, public services and the transformation in Singapore, one of the nature of public sector innovation. One relevant demographic groups which of these is the challenge of silos among surfaced through field research was government bodies; the tension between single mothers. Many of them were politics and administration as well as experiencing financial difficulty and conservative cultures that may not struggled to provide healthy food for their support the change and accompanying children as whole, fresh foods cost more risk-taking needed to meet stated than processed foods. We saw single
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Five Hunches about the Future of Public Policy Design mothers forgoing jobs and employment It was through the ethnography that we income, prioritising being at home with gained a deeper understanding of how, their children so as to keep them away on an employment-related problem, from what they alluded to as negative many blue-collar workers found it influences in the neighbourhood. To challenging to find employment after an emphasise again, the mothers did this injury. We found this was because their even at nutritional cost. This tells us existing financial situation made it the importance of understanding the difficult for them to receive the behaviours behind how one need is appropriate treatment and recover fully prioritised over another: that getting low- to be fit for work. income mothers to take up regular jobs by offering incentives for successful job On the quantitative end, by running the placements may not have nearly been as data, we were able to uncover an effective as, for example, a programme interesting correlation between seeking to enable mums to work employment status and incidence of independently, at home, from laptops or domestic violence: social workers had in their kitchens. previously shared their understanding that, for cases of families in crisis many Hunch #2: Blending Disciplines and of which involved domestic violence, Methods for Public Policy is Powerful, what mattered in bringing them out of but the Blending will Increasingly the situation was not the amount of Require People who can Serve as financial assistance they were offered, Translators but the consistency of it. In the data set, there were four types of employment In the urban poverty project mentioned status: full-time, part-time, contract above, we applied three different work, and unemployed. If this hypothesis approaches to understanding urban were to hold, we should have seen a poverty at the neighbourhood level: statistically significant inverse correlation Ethnography (a method from between employment and domestic anthropology) which involved violence for both full-time and part-time interviews and observation; data employment; however, it proved to be analysis of aggregated case file data of significant only for full-time employment. social assistance recipients; and a basic This led to new lines of inquiry which had form of system dynamics mapping not been uncovered previously. (for example, how the environment that a family might find itself in can Conversely, system dynamics mapping impact educational attainment, and in surfaced a very different type of insight: turn, employability, income, health that within the factors relating to family outcomes, et cetera). environment, it was parental attitudes
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Five Hunches about the Future of Public Policy Design towards a child’s education that had the (or urbanising) context, cities or emerging largest impact on his or her success at cities are perfect examples of a “complex school. adaptive system”. As none of these examples represent a closed system, it is These stories have come about from difficult to ensure certainty of all the highly different research methods. The variables we may want to map out. So next step, however, is this: how do we how can we create a model like so many piece them together to form a fuller consultants do? understanding of the problem area? “Translators” who understand enough Well, beyond the fact that we would from anthropology, for example, could need to develop many, many say that a certain finding – such as the assumptions, it also means that the choice of single mothers to prioritise solutions that are generated be being physically present with their young evidence-based, as opposed to using children over working to increase their data mainly during the research phase. financial resources – is a signal to dig Quantitative data is but one form of deeper in that line of inquiry; or that we evidence. It does, however, require should use an urban planner’s lens to look suspending one’s reliance on frameworks into a geospatial mapping to explore or models — as uncomfortable as that spatial connections to the problem, such may be – to simply allow multiple data as the access to services or jobs by low- points out there, quantitative and income households, or access to public otherwise, to surface a pattern. We say transport by frail elderly. then that such properties — whatever form they may take — are emergent. To Hunch #3: Complexity Means we Need use an anecdote to illustrate what I to Allow for ‘Emergence’ mean, it has been said that a university in California, in its first year of If we accept the complexity of the socio- infrastructural planning did not put economic issues we face, this tells us we concrete footpaths in its campus. cannot be sure that A causes B. It may be Instead, administrators laid out grass all happening as a function of the millions across the campus and had students of events that take place at any given and faculty walk however they wished time; or the interaction of several factors to, to get to where they wanted. By the at the same time; or that different factors end of the year, trails had been formed can enter the system and become by the natural paths used, which were relevant at different times. As such, it is also known as desire lines. It was over not possible to create a 100 percent these desire lines — the emergent accurate model of how a particular property from use and desire — that the system functions. In the case of the urban concrete footpaths were laid.
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Image source: http://www.welshgeek.com/tag/desire-line/
Hunch #4: Public Service Design May approach of quickly developing simple Become More Experimental — and Risk- hypotheses — about the ‘customer’ or taking ‘user’, on what the problem or need is, and what the solution might be. These As the world becomes more complex and are then tested in the field with real we start to deal with more diversity in ‘potential customers’ in small, rapid our population on different fronts, there cycles in succession, helping the solution are more competing needs and interests provider or startup founder(s) than before. Resources, on the other understand better what their target hand, remain finite. As I commented customer needs and what solution they while presenting at a United Nations should build. On the other end of the conference on Urban Asian Futures: How spectrum, there are the more rigorous can one even design policy for massive (and typically more resource-intensive) groups of people anymore? randomised control trials (RCTs), which form the basis of many study findings in We can go back to empirical evidence. psychology and behavioural economics. We can design policy based on evidence Once the domain of pharmacology and of what works. We can conduct psychology labs in universities, RCTs are experiments or pilot programmes. These now a powerful way to understand the can be ‘quick and dirty’, such as effect of policy or service intervention prototyping in Lean Startup Method with a sample group of people by (LSM) which has become de rigeur with contrasting the condition of a similar Silicon Valley startups. LSM takes an group of people who did not receive the
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Five Hunches about the Future of Public Policy Design intervention with a group that did, before of the very blocks of flats where the a decision to roll-out that intervention on residents we spoke with lived, we also a larger scale is made, based on the ended up having even more residents evidence of efficacy. than hipsters participate in the project. This made it possible for all participants These approaches come from two very to exercise a key principle of LSM: testing different worlds, but we have a(nother) your ‘product’ with your user. During this hunch: what if we combined these? process, many residents were able to Before we implement any sort of point out early flaws in the product or programme in a full-scale manner, we service idea, enabling teams to quickly conduct an LSM experiment to get the iterate to something much more effective biggest kinks out of the way, that is, we and more importantly, ensure that we deal with the riskiest assumptions by were addressing an actual need. either validating or invalidating them through it. With a clearer idea on the Hunch #5: Problem Definition will be parameters that are most relevant, we Increasingly Key to Avoid Chasing Down then conduct a more refined version of it the Wrong Problem through an RCT to look at the size of effect we are hoping to achieve; to As Einstein was memorably quoted as understand the conditions under which saying, “If I had an hour to solve a that effect can be achieved. In deciding problem, I’d spend 55 minutes thinking to go on to this second stage with the about the problem and 5 minutes RCT, we would have had to examine thinking about solutions.” The clarity and the resource availability relative to sensibility of this quote seems obvious the stakes involved in the decision, once articulated — which is why it was specifically the sort of impact we are ironic for us to realise that, as a team of hoping to achieve in the proposed policy, behavioural researchers, data geeks and programme or service. designers, this wisdom is not as widely applied in practice as it could or indeed In Singapore, we used LSM in a very small should be. way, in the final component of the above- mentioned urban poverty project: a Let me use a fictitious scenario: You are hackathon. In most social hackathons in a leader of an emerging neighbourhood Singapore, you would typically see 20- in a future, expanded Singapore, called and 30-something hipsters gathering in Ekatmatara. You are trying to tackle an swanky downtown offices and locations ’urban ghetto’ area that is expanding in to build something for users they have Ekatmatara, which has seen better days never met. In contrast, our project not but is now struggling with drug-related only sited the hackathon in the void decks crimes, primary school delinquency,
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Five Hunches about the Future of Public Policy Design access to affordable healthcare in a possibly uncover some behavioural [hospital] bed crunch, and a whole slew insights that might be key to the problem of other issues. And let us say, there were and ultimately, the solution. But how five-year (even 10-year) plans created, at would one articulate and scope the issue the group representation constituency at hand? Maybe the field of design could level, that were not realised after offer a way to frame the challenge, and multiple election cycles. Previous leaders could even guide these innovation efforts have tried and failed at addressing the on when to ‘diverge’ and when to problems as they were ‘so difficult’ and ’converge’. And of course, because these ‘complicated’. You are embattled by issues are inherently operating at a competing priorities set against very systems level, perhaps you build a system finite resources — and worse, the civil dynamics map (which could end up servants and your other local grassroots looking like a very messy spider web). leaders are getting disillusioned. Perhaps the first thought you have is, “Let’s In closing: problem definition is key. Good set up a job creation programme.” problem definition guides public servants Completely valid. But, perhaps, what you so they do not plan, execute and evaluate really needed to know and to do first is the wrong solutions. It helps avoid to get a hold of the gang crime that is the situation of youth engagement fueled by drugs and which has its clutches programmes – perhaps like in the case of on the local residents, in order to create our fictional Ekatmatara – inadvertently the stability needed for people living enabling delinquent youth to meet other there to even imagine wanting or being at-risk youth and build their own able to take on full-time employment. distributed drug networks. Finally, it Without in-depth investigation of the enables the creation of things that can community, how would you have known continue to be built upon by locals, with that? You may even have taken a local materials — and most importantly, completely different path to try to to serve the citizens they are meant for solve it. in the first place.
For problems with such complexity, where does one begin? Perhaps one should look at data and pick out strange correlations that you examine deeply. But these are just data points. Alternatively, one should also see actual realities on the ground, and take a leaf from anthropology and conduct some ethnography on the streets. These may
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Johannis Auri Bin Abdul Aziz
Johannis Bin Abdul Aziz is a former Research Fellow of the Institute of Policy Studies. He has a BA(Hons) in Politics, Philosophy and Economics from Oxford University and was awarded a PhD in Political Science by the University of California Berkeley in 2014. His doctoral dissertation was entitled ‘The Influence of Ludwig Wittgenstein in Political Theory’. His research interests include contemporary intellectual history, the philosophy of social science, agonistic pluralism theory and Singaporean civil society and politics.
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Since the birth of our nation in 1965, 2016, I will attempt to show that Singapore and its leaders have thought Singaporeans and the society we live in very seriously about how to design and have sufficiently changed again for us to articulate the kind of political society we consider a way of re-conceiving our desire or should have. It is one thing for democracy. the Constitution of Singapore to provide for democratic institutions; it is quite The Evolution of the Singapore Polity another entirely to fill in the content of the sort of political culture this fledgeling After the Second World War, the spread democracy was to have. of mass democracies throughout the non-Western world raised questions Leaders such as the late former Deputy about the ability of these post-colonial Prime Minister, S Rajaratnam, were countries, with their so-called non- against copying Western norms of democratic cultures, to build and liberal democracy. Rajaratnam felt that stabilise their own democratic systems. it was vital that the People’s Action The ‘aggregative’ model was often Party (PAP) government should be promoted as the answer. In this model, allowed to concentrate on the difficult governmental decisions are made task of implementing economic and primarily by aggregating the preferences social development policies without of the masses. In Singapore, the the distraction of non-constructive PAP government took its one-party adversarial politics aimed at scoring parliamentary dominance as a mandate political points and empty of substance. to rule according to what it believed was Singapore at that time faced many the objective common good. practical challenges that required a clear- eyed pursuit of practical solutions. Nevertheless, this was an era when Additionally, he believed that a public- cultural and religious sensitivities were spirited pursuit of the common good still considered potentially explosive. would also help build a common sense Add to this the unstable post-colonial of purpose to unite a country still divided politics of the region and Singapore was by race and religion. experiencing existential threats from both within and without. The PAP Nevertheless, political landscapes change recognised the need for a strong hand to and these changes make new demands navigate the country through those on the polity. In the 1980s, the PAP circumstances and used its parliamentary government responded to the aspirations dominance to develop a form of of a new generation of cosmopolitan democracy that entrenched a Singaporeans by tempering its top-down ‘monological’, that is to say, top-down utilitarian governance. Fast-forward to form of government.
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That model of democracy promoted the way the country was governed. stability and order at the expense of citizen participation. Apart from voting The PAP government subsequently and localised grassroots activities, attempted a cautious transition to few citizens took an active part in deliberative democracy. The government governance. As a consequence, even as focused on establishing a democratic socio-economic development took place, consensus through public consultation, and harmony and peace reigned in the albeit within formal institutions. A good face of multicultural, multiracial and example of this was the formation of the multireligious pluralism, politics came to Feedback Unit in 1985, which allowed be viewed from an exclusively ordinary citizens to voice their concerns instrumentalist standpoint. Thus, the era over government policies. In a similar of pragmatic and technocratic rule in vein, the Institute of Policy Studies was Singapore was established. formed in 1988 to provide, at arm’s length, direct research on the material The 1980s and 1990s however, saw the effects of and public opinion on rise of opposition parties as well as a government policy. It was during this perceived increase in the general period of softening its top-down rule unhappiness of citizens with the PAP’s that this new deliberative model, top-down governance. As the PAP saw an characterised by ‘dialogical’ or two-way erosion of its popular vote in the general communication between the state and elections and at one point (after the 1991 citizens, was initiated. The objective general election) had to concede four common good was no longer to be seats in parliament to the opposition decided solely from the top, but by having parties, it also began to recognise the some amount of formal consultation with evolving needs of the Singaporean citizens. populace. Where once the population was happy enough to be led without This era culminated in the formation of much questioning, as long as concrete the Singapore 21 Committee in 1997. material progress was being made, this Over the next two years, the Singapore was starting to change. As the population 21 Committee and its five sub- became better-educated and better- committees would consult with some travelled, it became more cosmopolitan 6000 Singaporeans from all walks of life and adopted the middle-class aspirations in search of a new vision for Singapore in of their counterparts in other developed the 21st Century. countries. These changes, however, were not limited to cultural and social needs Hence, one can already see a progression and wants. The newly cosmopolitan in Singaporean politics, away from populace also demanded a bigger say in bread and butter issues and towards
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A Democracy of Words post-materialist issues regarding self- “We will let others take the lead, we will fulfilment, civic participation and stay one step behind the front line of identity. This is not to say, of course, change; watch how things work out that Singapore did not have identity elsewhere before we make any politics from the start. The nation’s racial irrevocable moves”. This speech has since and religious cleavages in the 1950s and often been taken by social commentators 1960s are well documented. However, and activists alike as de facto permission an obliging populace, a heavy-handed for interested parties to expand their administration and well-regulated public advocacy for cultural and moral mainstream media made it possible to causes. effectively suppress the antagonistic pluralism of early identity politics. None Finally, as for the third factor, the well- of the above-mentioned three factors, regulated mainstream media is no longer however, are still operative today. We the gatekeeper of public information it have already seen how we, as used to be and is therefore less effective Singaporeans, have grown in the in controlling public speech and direction of post-materialist values, and tempering the political heat that may have become more politicised and result from public controversies. With the assertive of our views as well — this trend advent of social media platforms since continues today. the early 2000s, Singaporeans can publish their views on matters of public interest, The second factor, the ‘heavy hand’ of the bypassing traditional media as well as state, has been operating with a lighter mobilise mass groups of the like-minded touch since Goh Chok Tong became with diminishingly low marginal Prime Minister (PM) and has continued transaction costs. in that regard with Singapore’s third and current PM, Mr Lee Hsien Loong. Of Consequently, since the turn of the particular note was a 2007 parliamentary new millennium, Singaporeans have speech by PM Lee commenting on a bill witnessed the emergence of a new kind calling for the repeal of Section 377A of of political phenomena in their public the Singapore Penal Code that outlaws space. Civic groups are now bolder than sexual acts between consenting adult they have been in decades at lobbying men. PM Lee noted, “When it comes to the public and politicians. Perhaps the issues such as the economy, technology, most prominent controversial events education, we better stay ahead of the have been the public conflicts game, watch where people are moving surrounding Lesbian, Gay, Bisexual and and adapt faster than others, ahead of Transgender (LGBT) rights after the failed the curve, leading the pack.” However, on 2007 bid to repeal Section 377A. In March issues concerning moral values, he said, 2009, the traditionally liberal women’s
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A Democracy of Words rights group, Association of Women for women) in schools, the issue cropped up Action and Research (AWARE) witnessed again in September 2013 — some an attempted takeover of its leadership members of the Muslim community by people affiliated with a Christian questioned the ban on Muslims from church community, the Church of Our wearing it in certain professions, notably Saviour. Another prominent public in nursing. This time, there was an online controversy happened in June 2014, petition and a Facebook group created in when Pink Dot SG, an annual event held order to share and mobilise public at Hong Lim Park in support of the local opinion. Notably, the situation was LGBT community, raised the ire of some inflamed when there was abusive in the Muslim and Christian communities. treatment of both the current and In opposition, the Wear White movement former Mufti (the highest ranking was started by a local Muslim religious authority on Islam in Singapore) by teacher, Ustaz Noor Deros, to reaffirm online commentators supporting the Islamic family values on what happened movement. A similar case surrounded also to be the first day of the Muslim holy the public debate and an online petition month of Ramadan that same year. The over the reinstatement of Thaipusam as LoveSingapore Network, a coalition of a a public holiday as well as a call to lift the large number of Christian churches ban on music played during processions. followed suit with their Wear White initiative. However, a TOUCH Family Generally, what is new about this new era Services Centre application to hold a pro- of Singaporean politics is not only that family event at the Padang on the same there has been an upsurge in citizen and day was controversially rejected by civic group participation in national the Ministry of Social and Family cultural and moral issues, but also that Development. the prominence of the public conflicts they have brought about has been The LGBT rights issue is, however, not the unprecedented. only prominent public conflict seen in the past fifteen years. Religious This is, at least, in part the result of the accommodation has always been an issue advent of social media. The anonymity, in multireligious Singapore, but while speed and ubiquity of social media have advocacy for accommodations had provided a conflictual backdrop of largely been kept behind closed doors in anonymous supporters who are full of previous years between community invectives and are quick to vilify. Social leaders and politicians, more recently, media has also provided the focus around they have involved lobbying the general which like-minded individuals with strong public. After 2002’s spirited public debate views on all sides of the arguments can about the hijab (a veil worn by Muslim very easily and quickly find each other.
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This exacerbates a public polarisation in argued, for example, that the policy speed and numbers that Singapore’s impinges on a certain group’s freedom of society has not seen before. Mainstream religious practice or is an affront to its media observers such as journalists Lydia religious beliefs? Lim and Tham Yuen-C, have expressed worry about a possible ‘culture war’. This In an attempt to square the circle, terminology underlines a fear that deliberative democracy theorists have American-style political antagonism and attempted to reconcile these opposing even violence are not far from our shores. thoughts by creating neutral procedures of deliberation that they hope will Living with the ‘Paradox of Democracy’ foster a rational consensus even on controversial value laden issues. Clearly, Whatever it is that one might be tempted that seems impossible to do without to say about PM Lee’s speech referred to stripping away the most subjective parts earlier, the distinction it made between of our social identities: social and power material and value issues cannot be relations, non-rational emotional ignored. The problem with addressing attachments, linguistic and cultural ‘culture war’ issues with current practices and so on. However, the deliberative democracy models is that problem is that the plurality of these they tend to bring out the inherent things is really part of what makes up our tension in democratic theory — what individual identities. Hence, while the political theorist Chantal Mouffe has deliberative democracy model is called “the Paradox of Democracy”. On extremely useful for debates on material the one hand, the democratic tradition issues, it is less effective for issues that defends the ideals of popular sovereignty represent fundamentally opposing moral (i.e. majoritarian rule), and equality. On views or identities, both of which make the other hand, many democratic ideals these conflicts hopelessly subjective come from the classical liberal tradition under its rubric. that defend the values of individual liberty and human rights. Thus, Unfortunately, as discussed above, these democracy attempts to protect sorts of issues are increasingly common majorities and minorities simultaneously. in Singapore and attempting to relegate Hence, would a proposed solution to a value pluralism and its passions to a non- “culture war” issue be the right one to public domain is increasingly impossible take because it protects, for example, a in the age of social media. At best, value certain group’s equal access to education, pluralism is suppressed only to re-erupt even if the majority of the people voted at a later date. Trying to channel that in against it? What if the majority votes for more benign ways is a better alternative. a certain policy solution but it can be However, in order to give value plurality
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A Democracy of Words its political due, it will require us to respect for real differences and allows view democratic citizenship in a very everyone to take part and feel that different way. they have a stake in the process of governance. Firstly, if we are to take our pluralism seriously in the political context, then we At the end of the day, as citizens, we have have to give up the idea of a true rational to learn how to bargain, compromise, consensus and accept the salience of agree to disagree, and be ready to do it passions in the democratic process. all over again when the time comes. Morever, because our political Accustomed to the finality of a heavy- agreements will not be based then on handed top-down government, we will pure rational consensus, they should have to learn how to live with the always be seen as provisional democratic ambiguity of what political theorist James outcomes. Even the smoothest Tully termed a “stable irresolution” in this agreements, with the largest of new age. majorities, will have to remain potentially open to reasonable disagreements and Secondly, if we are to take our pluralism dissent. This gives hope to claimant seriously in the political context, we must groups that their participation in also commit ourselves to dealing with democratic governance matters, even if different social identities in their full form. things do not go their way at this time. This means accepting that relations of While it is only fair that issue majorities power and the antagonism which they get their way in policy decisions, the create cannot be eradicated from politics. danger is that perennial issue minorities, Subsequently, coming to terms with that should they develop, might feel implies relinquishing the ideal of a sufficiently alienated enough from the democratic society as the realisation of system to either attempt to press their perfect harmony. One of the limitations agenda in non-democratic ways or to of ‘a democracy of deeds’ therefore is leave the country altogether. Neither is a that it insists on consensus in the face of healthy outcome for a democratic polity irreducible pluralism and asymmetrical that calls itself ‘a nation’. relations of power. For the sake of certainty or efficiency, it tends to gloss For us to be a true nation, for this country over the fact that reasonable people can to be for all of us not just some of us, we reasonably disagree about policy. must allow all issue minorities to be heard and given the opportunity to convince The central question for democratic others through legitimate public politics then is not how to create discussion. This does not guarantee any consensus without exclusion, but how to group favourable outcomes, but it shows create unity in the context of diversity.
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For both Tully and Mouffe, the answer is speak and discuss directly with all sides in creating a new and shared identity of any policy issue. for democratic citizenship, based on a set of democratic values compatible Having a dialogue with the government with pluralism such as ‘democratic alone no longer spares you the burden provisionality’ covered above. of convincing your fellow Singaporeans on an issue. It is the burden of each This new democratic identity allows claimant group to speak to the masses, groups to construct their opponents as as well as opponent groups, in order to ‘adversaries’, who have a right to be change minds and institute new policies. listened to rather than as ‘enemies’ who must be annihilated. Hopefully, this This agonistic pluralist politics will reconstruction will help transmute certainly be messier than we are used to; antagonism (hostility) into agonism it will certainly be louder than we are (legitimate contest). All of this does not comfortable with right now. However, it mean, of course, that antagonism is will also bring with it hope, that in all our entirely eradicated; there will always be diversity, there is indeed a way to unite potential for hostility, but it does mean us all. that by and large, our public space will be reserved for civil contestation.
There is much to be lamented about the confrontational and adversarial nature of Western liberal democratic politics. S Rajaratnam’s call for a ‘democracy of deeds’ resonates with a culture that values action and result over words. Nevertheless, the price of democracy is that everyone has the right to be heard. Morever, in an increasingly diverse society, this means more words than ever.
As Singaporeans grow more independent-minded, more politicised and more concerned with post-material issues, it is time that the national conversation over our future becomes more multilogical; that it allows us to
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