THE STORY OF THE SINGAPORE PRISON SERVICE FROM CUstODIANS OF PRISONERS TO CAPTAINS OF LIFE A CASE STUDY Key Topics Discussed: SOCIETAL RESULTS AND COLLECTIVE EFFORT LENA LEONG, SENIOR RESEARCHER PGI Centre for Governance and Leadership 1 Public Governance International Singapore Civil Service College INTROductiON infrastructure and resources, and a shortage of staff due to difficulties in recruitment and retention.5 Prison staff The Singapore Prison Service (SPS) transformed itself members were overworked and morale was low. Poor from an agency focused on protecting society through public perception of the organization and its work did the safe custody of criminals to a leader in rehabilitation. not help. Between 1998 and 2009, the recidivism rate dropped significantly from 44.4 percent to 26.5 percent.2 The SPS Even though rehabilitation had always been articulated is also one of the most cost-effective prison institutions as a component of SPS work, rehabilitation efforts were in the world, with an average cost of incarceration of fragmented, ad hoc and considered to be the responsi- S$75 per day and an inmate-to-staff ratio of 7.6:1. Yet, bility of specialists, like counsellors. The role of prison security and discipline have not been compromised: officers remained mainly custodial. Rehabilitation there have been no escapes or major riots, and the as- programs for offenders (limited to work, education and sault rate has been kept low. Staff morale has also been religious counselling) were not systematically monitored high, with about 81 percent of officers indicating their and assessed for effectiveness. satisfaction with work in the organization.3 Taken together, these obstacles were hindering the SPS’s This case chronicles the change journey of the SPS: ability to deliver on its mission. how a traditional command-control agency faced with challenges of an increasing prison population, high staff NEW LEADERSHIP turnover and poor public perception, engaged its staff, stakeholders and eventually the community to create In late 1998, the SPS had a change in top leadership outcomes that changed the lives of inmates and their (see Figure 1 for a timescale of change at the SPS). Chua families. It illustrates a change that started within the Chin Kiat, who had held several key positions at the organization and cascaded outwards to the rest of the Singapore Police Force, took over as Director of Prisons. community. He felt that a mere increase in staff headcount would not address the SPS’s problems, nor would an increase The case also explores the following elements of the New be sustainable in the long term. Chua also realized that Synthesis Framework:4 he alone could not bring about change; he had first to convince his senior management team of the need. On • The roles of government as a law enforcer and behalf of the team, Chua visited a number of prisons custodian, as well as a facilitator and an enabler overseas, most of which had progressive rehabilitative of change; programs in place. The visits gave the senior team fresh perspectives on how prisons in Singapore could be man- • The possibilities that open when the focus on re- aged. sults is shifted beyond the agency to the societal level; and RE-THINKING THE PRISON’S • The possible impact when government includes REASON FOR EXISTENCE other stakeholders rather than acting alone. NEW VISION CHANGING FROM WITHIN Chua realized that the SPS’s focus had been on main- taining security and safety within the prisons: it did not have an articulated, overarching vision of its role in soci- CONTEXT FOR CHANGE ety. In 1999, more than 800 staff members and strategic partners from the Ministry of Home Affairs (SPS’s par- In 1998, the SPS was confronted by two pressing is- ent ministry) and voluntary welfare organizations were sues—an overcrowded prison that was straining existing invited to share their vision for the SPS. A variety of 2 platforms (retreats, facilitated dialogues and online in- are: honour our vision by placing it above self-interest tranet forums) were employed. The exercise challenged and inspiring others to our cause; excel in our work be- the way SPS staff saw their role and their impact. cause we care enough to want to be the best; be agile by The visioning exercise was not all smooth sailing: there being innovative and open to new possibilities, overcom- were pockets of resistance and scepticism at the ground ing adversity through continuous learning; respect our level. While some prison officers wanted to do more to fellow colleagues and the community we come into con- help inmates under their charge become contributing tact with; and foster teamwork by coaching, guiding and members of society, not everyone was receptive. It took inspiring one another in our workplace. In the process of about a year to confirm the new vision: “We aspire to be articulating its vision, SPS also re-crafted its mission.6 captains in the lives of offenders committed to our cus- tody. We will be instrumental in steering them towards being responsible citizens with the help of their families CHANGING THE WAY THE and the community. We will thus build a secure and PRISON THINKS exemplary prison system.” That vision was instrumental in giving shape and direction to many SPS strategies that would follow. The fundamental change was the shift NEW MINDSET beyond security and safety to the rehabilitation and reintegration of offenders into society. While a compelling vision may be a powerful driving force, old ways of thinking often hinder its translation Cascading from the vision, SPS also developed a set of into practice. From the outset, Chua was mindful that core values to articulate what it wanted to preserve and without significantly increasing staff numbers, he had to how it would operate as it pursued its goals. These values find new ways of freeing up staff time for the real work YeaR 1998 1999 2000 2001 2002 2003 EVENts • Chua Chin Kiat ap- • Development of • Strategic Framework intro- • Singapore Quality • Family • Strategic pointed as Director, new vision and duced (FY 2000–02). Class awarded. Friendly Framework SPS. revision of mis- • Prisons Rehabilitation Firm intro- • A new set of de- sion statement. Framework launched. Award duced (FY • Re-organization of partmental values • Kaki Bukit Centre Prison won. 2003–05). prisons and setting • Housing Unit promulgated. School established. up of Research and Management • Community • Prison Management System • Balance scorecard Planning Branch. System concep- Involvement launched. tool adopted. tualized. Framework • Community Action for the launched. Rehabilitation of Ex-offenders • Tele-visits intro- duced. • (CARE) Network established. • ISO • Home detention scheme • Public awareness 9001:2000 introduced. campaign “Rehab, achieved for • Ethics structure launched. Renew, Re-start” the Intake • Women deployed in male launched. Rehabilitation institutions. Classification. • Level of Service Inventory- Revised tool introduced. • Public Service Award won. 2004 2005 2006 2007 2008 2009 • Cluster A construc- • Awarded Singapore • Prisons’ Leadership • Named Hewitt top • Successful • Inaugural Prisons- tion completed. Service Class Award. Competency Model ten best employers. combined re- NUS Research launched. certification of Seminar launched. • Awarded Singapore • Director of Prisons • Ng Joo Hee ap- three Business Innovation Class received Public Admin- • Awarded Singapore pointed as the new • New Prisons Busi- Excellence Niche Award. istration Medal (gold). Quality Award. Director, SPS. ness Framework Standards: unveiled. • Operations philoso- • Awarded Distinguished • Awarded Top Public People Developer, phy revised. Public Service Award. Service Award for Innovation Class • Named Hewitt top Organisational and Service Class. ten Best Employers. • First Yellow Ribbon • Government amended Excellence. Project launched. the Criminal Registra- • Yellow Ribbon • Cluster B construc- tion Act to strike out Project concept tion completed. ex-offenders’ criminal exported to Fiji. records for minor offences provided ex-offenders remained crime-free for a speci- fied period of time. FIGURE 1: Milestones in the SPS Transformation Journey 3 of reforming the prison system. His habit of challenging The SPS leadership team anticipated that not all assumptions and getting staff to critically re-examine SPS officers might be ready for change. Inevitably, old ways of doing made many uneasy, but it also forced some would still hold to the lock-and-bolt mindset. them to re-think, explore new possibilities, develop new Many were likely to find balancing the multiple solutions and achieve breakthroughs. Consequently, and seemingly conflicting roles of disciplinar- many redundant processes were discarded. The SPS was ian and rehabilitation officer overwhelming. New one of the pioneers in the Singapore public service to skills were also needed before transitioning to the outsource non-core functions, such as medical services, new roles. Hence, instead of a full-scale roll-out, kitchen management and escorting lower-risk prisoners volunteers were invited to test the system. Six of to attend court and medical appointments. the 14 SPS institutions responded. In the end, the Housing Unit team leaders’ commitment and NEW ROLES hands-on approach to improving the system were pivotal to the success of the year-long pilot. In the past, prison officers were rotated periodically to avoid compromising security, but as a result, most offic- BOX 1: Implementing the Housing