Closing Speech by SPS Sun Xueling on the National Parks Board (Amendment) Bill 2019

Feb 12, 2019

Mr Deputy Speaker, I thank the Members for their very animated speeches, and for their suggestions and views. 

Let me start by addressing Members’ comments on the Bill. Mr Louis Ng expressed concerns about the limiting effect of the new definition of “animal” which replaces the present one in the National Parks Board Act. The new definition is non-exhaustive, as signified by the use of the word “includes”. The new definition in the Bill therefore allows for the inclusion of invertebrates as an animal. 

Mr Ng also asked why we split the duties of AVA’s Director-General of Agri-Food and Veterinary Services among four newly-created Director-Generals in the Animals and Birds Act, the Wild Animals and Birds Act, the Endangered Species (Import and Export) Act, and the Control of Plants Act. The administration of each of these four Acts will be transferred under the Bill from AVA to NParks. Each Act has a significant, different and distinct purpose and scope from the other. Hence, the Bill provides the flexibility to appoint separate technical experts for each role. But notwithstanding this, as Mr Ng has pointed out, the same person could be appointed as the Director-General for more than one role, if he or she has the right expertise. Regardless of the number of officers performing these roles, they will report to the same CEO who will ensure that there continues to be close coordination across the different teams.

Dr Fatimah Lateef asked about the staffing arrangements. The senior management of AVA and NParks have engaged their staff through several townhalls and engagement sessions to ensure that they are aware of their roles and reporting structure after the reorganisation. All AVA staff in its present food-related and non-food undertakings, including secondees, will be transferred to the Singapore Food Agency (SFA) and NParks respectively. The Member may wish to refer to the new Section 25(6) which is inserted by Clause 7 of the Bill for AVA’s non-food undertakings. Persons on secondment in AVA’s food-related undertakings will have been transferred to the SFA under the Singapore Food Agency Bill 2019 which this House has just passed.

Members also spoke about animal management. Dr Lee Bee Wah and Mr Gan Thiam Poh spoke about the need for us to co-exist harmoniously with animals, birds, and other types of wildlife. Indeed, in our biophilic City in a Garden, we live in close proximity to nature and should continue to try to minimise friction in human-animal interactions. The transfer of animal-related functions from AVA to NParks will put us in a better position to do so in several ways.

First, as Dr Lee suggested, we will continue to heighten public awareness regarding wildlife. Should members of the public encounter wildlife such as snakes or wild boars, they can call the existing Animal Response Centre at 1800-476-1600, which NParks will take over from AVA. This is also the hotline that Dr Fatimah enquired about. We have also put up advisories in parks where there have been previous sightings of wild boars so members of the public know how to react if they come across them. NParks will also continue to work with nature groups, Town Councils, as well as schools on public education and engagement programmes. For instance, AVA and NParks are members of the Long-tailed Macaque Working Group alongside volunteers from animal interest groups, such as the Jane Goodall Institute. The Working Group’s flagship community education project, the Monkey Guards Programme, teaches people how to respond to monkeys and to guide them away from residential areas.

Dr Lee has raised the issue about stray cat feeding. Many community cats are taken care of by regular, responsible feeders. In this regard, agencies have worked with the Cat Welfare Society (CWS) to adopt a calibrated approach to allow such feeding, while still taking action to prevent disamenities. When NEA officers encounter cat feeders, they take down their particulars. If the officers return and find that the site is not cleared after a reasonable amount of time, they will be able to carry out enforcement using the particulars collected earlier. But we take the point that Dr Lee has raised. At locations where cat feeding has exacerbated rat problems, NEA and AVA will work with the CWS to tighten the processes. For instance, feeders may be asked to clear up immediately to mitigate the problem.

Next, NParks will build on AVA’s existing partnerships with animal interest groups, animal-related businesses and other stakeholders, as it continues to refine and implement our animal and wildlife management strategy. NParks will also work closely with other public agencies in carrying out its functions. Dr Lee raised the issue of illegal fishing at Sungei Seletar. NParks and PUB will continue to monitor the situation and step up enforcement where necessary. To address Dr Fatimah’s question on how NParks will partner other agencies to safeguard public health, NParks will join MOH and NEA, as well as SFA, which currently work closely together to address public health issues. This is made an express new function of NParks in Clause 3(a) of the Bill. In particular, NParks will be contributing its expertise in veterinary health and zoonotic diseases to the group. 

NParks will also undertake a holistic review of the regulatory approach for animal-related businesses such as pet boarders, pet breeders, and veterinary centres. As part of this review, NParks will engage industry players and animal interest groups, to find the right balance across their various needs and interests. 

Third, we will continue to take a holistic science-based approach to animal management. This entails understanding the underlying drivers, putting in place appropriate public education programmes, and applying the appropriate animal-management measures for each specific case. A sustainable animal management strategy requires a holistic suite of measures. This can include removal of food sources, use of contraceptives, habitat modification, and population control.

For instance, Mr Gan and Mr Ng spoke about the management of wild birds in HDB estates. AVA has worked closely with grassroots organisations, Town Councils and NEA to educate the public about proper food waste management, as well as stepped up enforcement in problem areas where the presence of improperly disposed food waste exacerbates the situation. AVA has repeatedly highlighted in its public communications that such food sources attract birds and increases their population. This point has been carried by various media outlets, such as The Straits Times, Channel News Asia, and Today in their coverage of such issues. 

Apart from controlling food sources, AVA has trialled various measures to move the birds away from trees near residential areas such as the use of lasers, natural bird repellent and passing low electrical currents through roost trees. A variety of measures are used and there is no reliance on any one single method for a quick-fix. Taking on board the lessons that AVA has learnt in dealing with wild birds, NParks will monitor the population, occurrence, diet and movement of wild birds, so as to develop effective long-term strategies to mitigate the disamenities caused by them. For instance, NParks is replacing roost trees with other trees that still provide shade but are less attractive to the birds, to reduce the number of roosting sites. We have also found recently that with the pruning of potential roost trees, we are able to direct birds away from roosting closely to residential areas. 

I would like to assure Members that NParks will undertake a holistic and scientific approach, and also learn appropriate lessons from experiences overseas to support our efforts in wildlife and animal management. For example, by applying population studies, active tracking and modelling techniques, NParks was able to identify the various troops of macaques in the Upper Thomson area. NParks then worked with the grassroots leaders and residents to stem habits like feeding and poor handling of household trash, and to actively drive the macaques away from residential areas. Only when a macaque has acted aggressively, will NParks step in to relocate it, or if necessary, put it down for public safety reasons.

To address Dr Fatimah’s question about NParks’ budget for animal management, we are currently focusing on ensuring a smooth transition for all stakeholders and continuity for all existing programmes. Thereafter, NParks will undertake a comprehensive review of our animal management measures, including the appropriate budget required. 

Dr Fatimah also asked if there would be changes to the National Biodiversity Centre, which is currently under NParks. With the reorganisation, NParks will be able to integrate its existing expertise in biodiversity, conservation and ecology with AVA’s capabilities in animal and plant health, as well as veterinary science. This will enable NParks to add new dimensions to its Nature Conservation Masterplan, which is coordinated by National Biodiversity Centre. For example, NParks will be able to better incorporate the monitoring and management of zoonotic diseases into its wildlife management and species recovery programmes. 

Next, let me address Members’ comments on pets. I fully agree with Mr Gan that pet owners need to be responsible for the welfare of their pets. The Animals and Birds Act mandates that pet owners show a duty of care to their pets. NParks will continue AVA’s good work to remind pet owners that “A Pet is for Life”. Through the Responsible Pet Ownership programme, we hope to equip potential pet owners with knowledge on the care and responsibility that comes with owning a pet. With the Bill, NParks will take over the administration of the Animals and Birds Act, and its officers will be suitably empowered to take enforcement action against anyone who commits an act of animal cruelty or fails to provide adequate care for their pets.  

Mr Gan and Mr Yee highlighted the issue of irresponsible pet owners in HDB flats causing disamenities to their neighbours. In such cases, AVA, and in future, NParks and HDB will work with the flat owners, grassroots leaders and Animal Welfare Groups to resolve the issues, and to re-home the animals if necessary. 

Under the Housing and Development (Animals) Rules, recalcitrant owners who refuse to allow HDB officers to enter and inspect their premises may be brought to court where they can be fined up to $4,000 upon conviction. In cases where there is reasonable cause to believe that the welfare of the pets is compromised, or there is mistreatment, AVA today has powers under the Animals and Birds Act to enter the premises for investigation. The owners, if convicted in court for failing to provide adequate care for their pets, may be liable to a fine not exceeding $10,000 or imprisonment for a term not exceeding 12 months, or both. AVA can also seize the animals if there are concerns about their welfare. To answer Mr Gan, NParks officers will have these same powers even after the Bill is passed.

Mr Yee further suggested that agencies be given powers to forcibly remove pets from private homes due to disamenities arising from the pets, but added a caveat that this should only be used when all other avenues have been exhausted. Indeed, we would need to consider very carefully whether to put in place such powers for NParks officers, as the powers are very intrusive. 

Mr Deputy Speaker, Sir, I would like to conclude by thanking Members once again for their support and suggestions. NParks will continue to engage and work with stakeholders on holistic and science-based strategies to enhance animal health and welfare, as well as ensure that we co-exist harmoniously with wildlife and other animals. 

Mr Deputy Speaker, I beg to move.