The Common Services Tunnels Bill 2018 2nd Reading Speech by Minister Lawrence Wong

Mar 19, 2018

Mr Deputy Speaker Sir, I beg to move, “That the Bill be now read a second time”.

With this Bill, we are introducing new legislation to ensure the safe and efficient operation of common services tunnels, or CSTs. A CST is an underground tunnel which houses multiple utilities to serve an area. There is currently only one CST in Singapore, located under the roads at Marina Bay. The tunnel was built in 2007 by the State and continues to be owned and operated by the State, working with utility suppliers and developments in the area. It contains the electricity cables, telecommunications cables, water pipes, and district cooling pipes for the air-conditioning of buildings in the area. 

We had decided to build the CST because it offers many advantages over the conventional way utility networks are laid. Traditionally, different utility lines are laid separately under the roads. This means that the road has to be opened whenever there is a need to lay a new utility line, or to maintain and repair existing lines, for example, when there is a burst pipe. This can lead to repeated traffic disruptions and diversions, as well as nuisance to pedestrians and other users. 

Furthermore, because the utility lines are spread out in an ad hoc manner as and when they are laid, subsequent construction or road works are more likely to accidentally damage pipes and cables, and potentially disrupt utilities supply in the area.

The CST is intended to mitigate these issues. Once the tunnel is built, utility lines can be installed and maintained in the tunnel without opening up the road again, thereby eliminating lane closures and disruptive works. When there is a fault in any of the utility lines, repairs can be carried out simply by entering the tunnel.  

The tunnel also enhances the reliability of services as it provides robust protection for the utilities housed within it. By consolidating all utilities within the CST, we also optimise the use of underground space, leaving room for other infrastructure like pedestrian underpasses. The CST therefore improves the efficiency and reliability of utility services while raising the quality of our urban living environment. 

This way of planning and building infrastructure calls for new operational and administrative practices. So far, we have relied on contractual and administrative arrangements to facilitate the maintenance and operation of the CST in Marina Bay. Drawing on the experiences with the Marina Bay CST, we are introducing this new CST Bill to make the arrangements clear in the law, clarify any grey areas, and enhance our regulatory practices to ensure the safe and efficient operation of CSTs.

The Bill will apply to any gazetted “CST area”. For now, the only gazetted CST area will be Marina Bay, and the intention is to gazette the area containing all developments which receive their utilities supply from the CST. If and when we build new CSTs in the future, we will also apply the provisions of the Bill to them.

Key provisions of the CST Bill

Let me now go through the key provisions of the Bill.

Mandate the use of the CST

First, the Bill makes clear that all utilities in the CST area are to be laid within the CST, unless approval is given to do otherwise. This is already the case at Marina Bay, where utility suppliers are not allowed to lay their lines directly into the ground. 

Secure access to ancillary structures

Second, to facilitate the efficient functioning of the CST, the Bill gives authorised persons power to enter any land or premises in the CST area for the purposes of operating and maintaining the CST.

Access to the CST is provided through ancillary structures located on private land such as entrances, passageways, connecting entrances, and ventilation shafts. These entrances and ventilation shafts are integrated with buildings adjacent to the CST. This was how we planned for the CST in Marina Bay - consciously so that we would not have unsightly standalone structures spoiling the streetscape or taking up space.

To operate and maintain the CST, various persons will need access to these ancillary structures and get into the CST. These include technicians from utility companies to lay or maintain their lines, public officers to carry out inspections, and contractors to operate the facilities in the tunnel and to perform routine functions like cleaning and security checks.

Currently, access is secured administratively through agreements with individual building owners and occupiers, but these agreements will not automatically be passed on to subsequent owners and occupiers. This provision in the Bill ensures access to the CST through ancillary structures for operations and maintenance regardless of building ownership and occupiers. 

Prevent obstruction of ancillary structures

Third, to ensure that access to and functioning of the CST is not impeded, the Bill also empowers officers to require persons to remove obstructions to entrances and ventilation shafts, and to return these structures to their original condition. If the specified person fails to comply, the officer can rectify the situation and recover the costs from that person. 

Require upkeep of ancillary structures

In addition, the Bill requires building owners or their tenants to take reasonable measures to maintain the ancillary structures on their land. Officers may require such persons to carry out works reasonably deemed necessary to keep these structures in working order. If they fail to comply, officers or their contractors may carry out the required works and recover the costs. This provision is necessary because the integrated ancillary structures are physically part of the private building, built by the owner, and wear and tear generally results from the usage and occupancy of the building. It is the responsibility of the building owner to maintain the building, including the ancillary structures within it.

CST protection zone

Finally, to safeguard the CST against damage, the Bill introduces a “CST protection zone” of any land within 6 metres of the CST. Any construction works within this zone will require prior approval. This is similar to the ‘railway protection zone’ under the Rapid Transit Systems Act, which safeguards MRT tunnels against damage. This is necessary as damage to the CST could cut off the power or water supply to buildings in these areas. In key areas like Marina Bay, this could have severe economic consequences. 

In issuing their approval, officers may impose conditions deemed necessary to prevent damage or adverse impact on the operation of the CST. If works are carried out without approval, officers may order the works to be stopped or require rectification works to be carried out. 

Penalties and appeals

I have described the key provisions of the Bill. The Bill also sets out the maximum penalties for violation of these offences, which is set at $20,000, and up to $1000 a day for continuing offences. For obstructing officers in the course of duty, the penalty also includes a jail term of up to 6 months.

Conclusion

Mr Deputy Speaker Sir, this Bill provides for the operation of common services tunnels in Singapore. This is an underground infrastructure which will enable us to improve the way we lay and maintain utility networks and utility lines in Singapore. It will help us to optimise the use of space. It will enable us to build a better city, and ultimately, improve the quality of life for Singaporeans.

With that, Mr Deputy Speaker Sir, I beg to move.