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Colony of Singapore — Annual Report 1957
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COLONY OF SINGAPORE ANNUAL REPORT 1957
Digitized by Google
COLONY OF SINGAPORE ANNUAL REPORT 1957
Published by Authority GOVERNMENT PRINTING OFFICE, SINGAPORE
Runners with burning torches (Singapore of 1837) —Straits Times
Printed by
A. G. Banfield Government Printer Singapore 1959 ¢ Tre 73? C ‘4 1] | | Set’ in. the
Times Roman Series
Published in Great Britain by HER Magsesty’s STATIONERY OFFICE, LONDON
1959 PRICE 12s. 6d. NET
This report is included in the series of Colonial Reports published for the Colonial Office
S.O. Code No. 58-1-49-57
ACKNOWLEDGMENTS
Grateful acknowledgments are hereby made to everyone who has contributed in any way towards the production of this Report and especially to the following for providing photographs:
“STRAITS TIMES” PRESS CENTRAL OFFICE OF INFORMATION, LONDON TONG PHOTO SERVICE
Chapter I II
CONTENTS
Page
GENERAL REVIEW - - - - - - 1 POPULATION - - - - - ° - 23 OCCUPATIONS, WAGES AND LABOUR ORGANISATIONS 38 PUBLIC FINANCE AND TAXATION - - - - 64 CURRENCY AND BANKING” - - . - - 9 TRADE - - - - - - - - 94 PRODUCTION - - - - - - - 110 PLANNING AND HOUSING~ - - - - - 126 EDUCATION - - - - - - - 135 HEALTH~ - - - - - - - - 150 WELFARE SERVICES~ - - - - - - 167 LEGISLATION - - - - - - - 179 LAW AND ORDER - - - - - - - 186 PUBLIC UTILITIES AND PUBLIC WORKS - - - 206 COMMUNICATIONS - - - - - - 219 INFORMATION SERVICES, PRESS, PRINTING, BROAD-
CASTING, FILMS - - - - - - 255 DEFENCE - - - - - - - - 271 CONSTITUTION AND ADMINISTRATION’ - - - 285 THE ARTS - - - - - - - - 297 SPORT - - - - - - - - 307 PHYSICAL FEATURES AND NATURAL HISTORY - - 316 HISTORY OF SINGAPORE - - - - - 330 BIBLIOGRAPHY - - - - - - - 338 INDEX - - - - - - ° - 345
ILLUSTRATIONS
Page SINGAPORE PANORAMA FROM STAMFORD BRIDGE - Book Jacket RUNNERS WITH BURNING TORCHES - - - Frontispiece INSTALLATION OF GOVERNOR~ - - ° - facing 4 DISTINGUISHED VISITORS - - - - - 4 8, 9, 20 CITIZENSHIP REGISTRATION - - - a ns 21 SATIN EVENING COAT - - - - og 32 KEBAYA BEAUTY - - - : - sf 36 PEOPLES AND PROFESSIONS - - - - 5 40, 41 TRADE - - - - - - - ae 92, 93 PRODUCTION” - - ° - - - - 5 100, 101 THE MAKING OF STEEL - - - - - 4, 121 TEMPLE OF HEAVENLY HAPPINESS) - - - 455 128 AERIAL VIEWS - - - - - - 455 132, 133 EDUCATION - - - - - - - 5; 142, 143 THE YOUNGER GENERATION - - - - 4, 148, 149 HEALTH - - - - - - - So tags 156, 157 YOUTH WELFARE - - - - - = lg 174 SULTAN MOSQUE - - - - - eos 175 SUPREME COURT AND LEGAL TENDER - - so og 180 HIGH CouRT JUDGES - - - - - 45 181 CUSTOMS AND POLICE - - - - gs 196 WELFARE SERVICES - - - - - - 5 197 MEDIUM IN A TRANCE - - - - - 45 213 CLIFFORD PIER AND COLLYER QUAY - - - 45 216 RURAL DEVELOPMENT - - - - ec S 217 POSTAGE STAMPS - - - - - S is 228 PoRT COMMISSION” - - - - - ee 229 OuR POSTMEN - - - - - - a 254 TELLING THE PEOPLE - - ° . a 255, 270 DEFENCE - - - - . - - 4 271, 276 ASSEMBLY HOUSE - - - - ° - 55 277 RURAL SCENES - - - - - - - oss 292 MOON FESTIVAL SEASON - - - - - oy 293 YOUNG MAN BETWEEN Two RIVALS - - ee 297 IN THE THEATRE - - - - - Se gs 300, 301 Criry SCENES - ° - - - - oes 316, 317 FLOWERS - - - - - - - 4, 325, 329
EARLY SINGAPORE~ - - - - - Bi! gy 333
MAPS
Inside front-cover—Singapore (showing main places of interest)
Inside back-cover—Singapore in South-East Asia
I
General Review
INETEEN FIFTY-SEVEN was a year of calm and consolida-
tion after the stresses which followed the failure of the constitutional talks of 1956, and its exploitation by blatant Communist-front activity culminating in the riots of October 1956. In April mutually satisfactory agreement was reached with the Colonial Office on the broad outlines of the constitution and powers of a State of Singapore with full internal self-government. In the registration of citizens under the new Citizenship Law, in the legis- lation for the new system of local government and in the holding of the first elections for a fully-elected City Council, the groundwork of the new constitution was firmly laid. With the new legislation on education and its administrative application, the political fever was largely removed from the issue of the Chinese schools, but administrative difficulties remained to be overcome by negotiation in the light of experience. In contrast to 1956, there was little industrial unrest. Communist activity however continued in accord- ance with its policy of penetrating political parties and Trade Unions and Chinese schools for the purpose of subverting their political, industrial and educational activities. In the economic sphere, the level of trade remained high, although the secondary industries increasingly felt the impact of the tariff policy of the Federation of Malaya.
Early in January the Chief Minister reported to the Legislative Assembly on his preliminary talks with the Colonial Office the previous month, on the resumption of constitutional negotiations. These talks would begin from the agreed points of the 1956 talks and proceed to the questions of internal security, external relations and defence, the designation of the Queen’s representative in Singapore, the date of coming into force of the new constitution, and the position of civilian employees in the Armed Forces. He emphasised the need for unity and the damage which would be.
2 SINGAPORE ANNUAL REPORT 1957
the outcome of another failure. Talks between the parties in the Assembly who formed the All-Party Conference began early in February and continued until the Constitutional Mission left for London in March.
The position of Malays received the special attention of the Conference. The Singapore State branch of U.M.N.O. presented six demands to the All-Party Conference: that the Governor- General should be a Malay; that Malay should be the official language within ten years; that Islam should be the official religion of Singapore; that five-eighths of all government posts should be reserved to Malays; that only those born in the Federation, the British Borneo territories and Singapore should have citizenship rights; and finally that fluency in Malay should be a requirement of citizenship. A ‘Malay National Congress’ was formed to urge that Singapore was a Malay land, and that the Malays should inherit its independence. Two Malay parties in the Federation— the Party Ra’ayat and the Pan-Malaya Islamic Association—both formed branches in Singapore at this time. The Singapore Malay Union on the other hand opposed special privileges for Malays..
The demands of U.M.N.O. were placed before the All-Party Conference which had begun its meetings on 7th February to prepare the way for the constitutional talks in London. When they were not fully accepted, U.M.N.O. decided not to take part in any further discussions, expressing its ‘deepest regret that the All-Party Conference was unable to see eye-to-eye with the legi- timate aspirations of the Malays in Singapore.’ The Chief Minister replied on behalf of the Conference saying that only one proposal had been completely rejected, namely, that the first Governor- General must be a Malay, on the ground that it would accentuate communalism. The Conference on the other hand agreed to ‘recognise the special position of the Malays, who are the in- digenous people of the island and are in most need of assistance’ and to safeguard and promote the interests of the Malays and their language, adding however, the proviso, inserted with the agreement of U.M.N.O. in the demands of the 1956 Constitutional talks— ‘within the framework of the general good of Singapore’. The question of a state religion, of the adoption of Malay as the official language, and of the limitation of the rights of citizenship, were considered domestic matters on which agreement need not be reached before the Mission left for the Constitutional talks in London. In his letter setting out these views the Chief Minister asked for a meeting with U.M.N.O. to ensure that they were fully
GENERAL REVIEW 3
understood. The U.M.N.O. representative accepted the assurances of the Chief Minister, and agreed that the following paragraph should be added to the draft constitutional agreement :
“That it shall be the duty of the Government of Singapore at all times to protect the political, economic, social and cultural interests of Malays, and other minorities domiciled in Singapore. It shall be the deliberate and conscious policy of the Government of Singapore at all times to recognise the special position of the Malays, who are the indigenous people of the island and are in most need of assistance, and it shall be the responsibility of the Government of Singapore to protect, safeguard, support, foster and promote their political, educa-. tional, religious, economic, social and cultural interests and the Malay Language.” | |
The All-Party Conference prepared a unanimous report which was published, and endorsed by the Legislative Assembly on Sth March. The Assembly Motion ‘instructed’ the All-Party Mission to ‘secure from Her Majesty’s Government for the people of Singapore the status of a self-governing state with all the rights, powers and privileges thereto appurtenant in all internal affairs and the control of trade, commerce and cultural relations in external affairs.’
In his speech supporting the motion, the Chief Minister emphasised that, while accepting the agreed points of the previous talks, the Mission would accept nothing less than had already been offered by the United Kingdom Government. They would ask in addition for the transfer of responsibility for Singapore from the Colonial Office to the Commonwealth Relations Office, for a Malayan Governor-General at the head of the new State, and an Internal Security Council with equal membership for the Singapore and United Kingdom Government with a Minister of the Federation Government as seventh member with in effect the decisive vote. While the Singapore Government would have full responsibility for internal security, where matters of internal security affected the powers of the U.K. Government in relation to external affairs or defence, they could be referred by either party to the Internal Security Council whose vote would be binding on both parties. To this the Federation Chief Minister had agreed in principle.
As elections had been promised for August 1957, the Chief Minister asked for the views of the Assembly on whether the elections to the new Assembly under the new constitution should be postponed to allow the new Singapore citizenship, accepted in principle by Her Majesty’s Government, to be brought into force by the Singapore Government, so that the new citizens could use their new rights and responsibilities equally with, and at the same
4 SINGAPORE ANNUAL REPORT 1957
time as, the present citizens in shaping Singapore’s course under the new constitution.
The motion was unanimously passed with the three ex-officio members abstaining and three members being absent, and postpone- ment of the elections was agreed.
The All-Party Delegation, in contrast to the 13-man delegation for the 1956 talks, consisted of five delegates—the Chief Minister with Che Abdul Hamid bin Haji Jumat, Deputy Chief Minister and leader of the U.M.N.O.-M.C.A. group, Mr. Chew Swee Kee, Minister for Education and newly-elected Chairman of the Labour Front, Mr. Lim Choon Mong, leader of the Liberal Socialist Party in the Assembly, and Mr. Lee Kuan Yew, Secretary-General and leader of the Assembly group of the People’s Action Party.
The delegation left Singapore on 7th March. The talks opened in London on 11th March. After 15 sessions in an atmosphere which the Chief Minister described in his final speech as ‘one of friendliness and understanding’, the Report was signed on II!th April by Mr. Alan Lennox-Boyd, the Secretary of State for the Colonies and Mr. Lim Yew Hock and the four members of the All-Party Delegation. The essentials of the Constitutional proposals of the All-Party Conference were incorporated in the agreement, which incorporated the creation of a Singapore citizenship by legislative action in the U.K. Parliament and the Singapore Legis- lative Assembly, and a paragraph on the need to safeguard the rights of Malays and other minorities. It was also agreed that the new constitution would only comme into being after an election in which the newly-registered citizens had taken part. The position of civilian employees of the armed services was discussed separately from the agenda of the Constitutional Conference.
The Secretary of State for the Colonies had insisted that there must be provision, as a condition precedent to the new constitution, that those known to have been engaged in subversive activity should not be eligible for election to the first Legislative Assembly of the new State of Singapore. ‘It was the view of Her Majesty’s Govern- ment that some temporary restriction of this kind was essential to safeguard the orderly development of democratic Government in Singapore against the danger of Communist subversion.’ After the first elections it would be for the Singapore legislature to define its own policy. The Singapore delegation ‘took note with regret’ of this stipulation.
On their return on 14th April the All-Party Delegation were welcomed by 10,000 people who lined the route to the Padang
‘Buoy BUOY JO JOUIBAOH pojuiodde sem oym youl Weqoy JIS s1odesulsg JO joryo-Ul-JopurwwoD pue IOUISAOL) Se poj[ejsuUI SCM SpOCch Wey]
Suipasoons ‘LG6] ‘Joquisseq, WITT UO
“WILL INdy 0} Yi] ] Your WO UOpUO’] UL S¥je} [BUOINNINSUOD [NJssaddns dy} 0} Jo1Id 2dUdJoJuod Ajied-j[e-dy) Jo SuNsow VY
GENERAL REVIEW 5
where they addressed a further crowd of 6,000 from a platform on the City Hall steps. With them, as representative of the Federation Government, was Mr. Ong Yoke Lin, the Federation Minister of ‘Transport, who in his speech said that the Federation was honoured by being represented on the Internal Security Council. The unanimity was broken by Mr. Marshall who, though still a member of the Labour Front, opposed both the agreement and the post- ponement of elections till the new citizens were registered; but supported the ban on subversive elements, though he thought that the Singapore Government should impose it by its own action. He announced his intention to force the dissolution of the Assembly and a new election with the constitution as the main issue. In this he was supported by certain Left-wing Unions normally asso- ciated with the Trade Union leaders in detention.
The debate on the agreement opened in the Assembly on 26th April and lasted for 34 days, one of which was fully occupied by Mr. Marshall. The All-Party motion proposed by Government asked the Assembly to ‘take note’ of the report of the Constitutional Conference, to ‘approve the points in which agreement has been reached’, and to ‘approve the stand of the All-Party Delegation in not accepting’ the ban on participation of subversive detainees. The Chief Minister claimed that, because of the unity of the delega- tion and their clearly-defined, realistic claim they had succeeded, on all points, except on the transfer of responsibility from the Colonial Office, which they had previously agreed should not be made an issue on which to break negotiation, and on the position of civilian employees of the Services, which was not basically a constitutional issue. The All-Party Delegation had agreed to take note of the Secretary of State’s unilateral condition on the participation of sub- versive detainees in the elections but all had opposed it. He con- cluded that if the motion was approved, the drafting of the constitution would begin immediately in London, the Citizenship Bill would be introduced into the Singapore Legislative Assembly and the Secretary of State would be asked to reconsider his unilateral condition concerning those detained for subversion.
Mr. Marshall argued that the agreement gave less power over internal security than he had been offered in 1956 and leaving the power of final decision outside Singapore. While ‘regretfully taking note’ of the Report, he called for an immediate general election on a register expanded by giving the vote to those of 10 years residence without waiting for citizenship rights. Mr. Lee Kuan Yew announced his resignation in order to fight a bye-election in
6 SINGAPORE ANNUAL REPORT 1957
his constituency on the issue of the constitutional proposals. This was not what Mr. Marshall had expected. Instead of the general election he had hoped to force, he faced an individual bye-election with a high personal as well as a political factor. He asked the Chief Minister whether he would agree to postpone the vote on the motion and the amendment until after the bye-election, but the Chief Minister, after consulting the other party leaders, refused.
After a bitter debate on personality and recrimination as well as on the principles of the agreement, Mr. Marshall’s motion was defeated by 22 votes to 2 (with the three ex-officio members and three others abstaining, and two absentees) and the original motion in favour of the agreement was passed by 23 votes to 2 (with again the three ex-officio members, and two other members abstaining, and two members absent). At the end of the session Mr. Lee Kuan Yew and Mr. Marshall both resigned, Mr. Marshall announcing that he was retiring from politics.
The Writs of election were issued on 10th May for Nomination Day on 18th May and an election on 29th June. In the Cairnhill Division which Mr. Marshall had represented, five candidates were nominated, one by the Liberal Socialists, one by the Labour Front, one by the Singapore Malay Union and two Independents, one of whom had very recently resigned from the Labour Front. In the Tanjong Pagar constituency, Mr. Lee Kuan Yew was opposed by a Liberal Socialist candidate and an Independent who had been a founder member of the Labour Front. In neither election was public interest great, or tension generated. In the Tanjang Pagar consti- tuency, Mr. Lee Kuan Yew kept the constitutional issue to the fore, while in the Cairnhill constituency, no major issue arose and personalities became of greater importance. At the poll on 29th June, Mr. Lee Kuan Yew was returned with 67.8 per cent of the votes on a 47 per cent poll, though in 1955 he had won 78 per cent of a 57 per cent poll. In Cairnhill, the Liberal Socialist was returned with 39 per cent of the votes in a 39 per cent poll, compared with the 51 per cent poll in 1955. With this bye-election, the state of the parties in the Assembly became: Labour Front 7; U.M.N.O.- M.C.A. 3; Liberal Socialists 7; P.A.P. 4; Independents 4. With the 3 ex-officio members, and two Nominated Members the Coalition Government controlled 15 votes.
At the July meeting of the Assembly after these bye-elections, serious allegations of electoral corruption were made during a debate on a motion tabled by Mr. Lee Kuan Yew, asking that the recently appointed commission on allegations of corruption in the
GENERAL REVIEW 7
Public Service should have its terms of reference extended to allow them to investigate electoral corruption. The motion was accepted on the understanding that the allegations would be investigated by a separate tribunal. This was set up on 3rd September under the chairmanship of Mr. S. H. D. Elias to enquire into the allegations of corrupt, illegal and undesirable practices during the bye-elections and to examine the election laws in order to make them more effective in preventing such practices.
The policy on Malayanisation laid down in 1956 was put into effect. Of the 408 expatriates who had in 1956 been offered periods of retention of a minimum of one year or more, 263 (or 64 per cent) had accepted the offer of retirement at the beginning of 1957. In January the new Public Service Commission with execu- tive powers was appointed under the chairmanship of Mr. Chew Hock Leong. Their first task was the selection of Malayans to take over the posts of Deputy Chief Secretary and of eight Permanent Secretaries vacated by expatriates. These appointments were made on 5th March. Two further Malayan judges were appointed to the Bench. In order to open Government appointments to Chinese Mid- dle School students, it was decided to accept a pass in the examina- tion after the third year of the Senior Middle Schools as equivalent to the Cambridge School Certificate for 14 categories of appoint- ment. They would also be eligible to sit the qualifying examination for the Executive Service.
A start was made in the raising of local forces in preparation for the acceptance by Singapore of the responsibilities of self-govern- ment. In March, on the eve of the departure of the All-Party Delegation, recruiting was opened for the Ist Battalion of the Singapore Infantry Regiment with overwhelming success. The first group were recruited within 11 days; 1,420 applied, 800 passed the tests and 237 were accepted—60 per cent being Chinese, and 35 per cent Malays. In September, the first unit passed out after com- pleting its basic training. The possible formation of a second battalion, after the transfer of the Royal Malayan Navy to the Federation, was announced in the Budget Session of the Assembly. This new regular unit did not replace the volunteer unit, which carried the tradition of the Singapore Volunteer Forces in un- diminished strength into the Singapore Military Forces. 18,485 men registered in November for National Service. A new headquarters was provided for the M.A.A.F. The R.M.N. continued its training of Malayans and during 1957 twenty officer cadets were under
8 SINGAPORE ANNUAL REPORT 1957
training in the U.K. and nine were selected to follow them. There were 1,600 applicants on the waiting list of the R.M.N.
Two further steps of direct constitutional importance were taken. On 19th June a Delimitation Committee was set up to draw the boundaries of the 51 one-member constituencies for the fully- elected Legislative Assembly, and the Citizenship Bill was given its First Reading on 2nd August. It was debated on the Second Read- ing on 11th September and, after consideration by a Select Com- mittee, passed its Third Reading on 16th October. The Bill pro- vided that citizenship, for those of ‘full age and capacity’, could be acquired by birth, descent, registration or naturalisation. Birth in Singapore conferred citizenship automatically. Citizenship could be acquired by registration after two years residence immediately prior to the date of application, by those born in the Federation of Malaya, by citizens of the U.K. and the Colonies, and by citizens of Commonwealth countries giving reciprocal recognition to Singapore citizenship. The Bill also provided that all aliens possessing the 8- year residential qualification and of good character, could, on tak- ing the Oath of Allegiance and Loyalty to Singapore and an ‘Oath of Renunciation’ of all other loyalties and rights, be registered as Singapore Citizens.
Citizenship Registration opened for an initial 3-month period on lst November; 1,300 registered on the first day, 21,000 on the first ten days, 90,000 by the end of November and 307,554 by the end of the year. In a broadcast to inaugurate the registration, the Chief Minister said:
“All of us who have worked for the creation of this new citizen- ship of Singapore have believed that there are many among us who are citizens in fact, 1f not in name. They have the legal status of aliens which does not express their feeling for Singapore, their wishes for the future, or the fact that this is the focus of their family and their business life, They are long-term residents and to all intents and
purposes are citizens but they have neither the status nor the rights nor the duties of citizenship.
“The purpose of the Citizenship Bill has therefore been to give these people the opportunity to become friendly citizens, or to remain friendly but alien. The door is open. They are free to enter and
become full members but we will neither push nor pull them through the door...”
In anticipation of this move, the Information Department was expanded to allow the inauguration of Civic Courses, the first of which was held in June, to teach the implications and practice of citizenship.
‘aI04 Jny Aleyixny uekejyew ay) jo siodeguig ur dwed jenuue oy) je ajnyes 94) aye) ‘ueMYyeY [npqy nyuny ‘eAvjepy jO UOHelIaps-{ 94) JO (Jo}sSIUIY SWIG MOU) Ja}sIUIPY JoIyD oy) pue ‘yOOR, MOXA WIT “IJ “otodesuig Jo sas jayD o4L
‘Std
Top—Lord Kilmuir, Lord Chancellor of Great Britain visited Singapore after attending the Merdeka Celebration in Kuala Lum- pur. He was met at the Airport by the Governor Sir Robert Black.
Below—His Excellency the
Prime Minister of Japan,
Mr. Nobusuke Kishi visited
Singapore on Nov. 25th
and was met by the Chief
Minister, Mr. Lim Yew Hock.
GENERAL REVIEW 9
Another important step was the passing of Local Government legislation along the lines proposed by the McNeice Commission in January 1956 and adopted in a Government White Paper on 6th June. This provided that a fully-elected City Council and three District Councils, each with an elected majority, rather than the City and Island Council proposed by the Rendel Commission in 1954, would replace the existing City Council with an elected majority, a nominated Rural Board and 7 nominated Rural Dis- trict Committees. The new law provided for a City Council with 32 elected members presided over by a Mayor elected from among themselves, and organised on the Committee System according to the U.K. pattern of local government. Outside the City Council area, the rural area was divided into four districts, Katong, Serangoon, Bukit Panjang and Jurong. Immediately, however, pending the building of two new townships in their areas, the latter two were to be combined. In each of the three Districts, a District Council would be established consisting of 16 members, 12 elected from single-member constituencies, 3 nominated members, and an official chairman. The Southern Islands were to form a separate local government unit.
The City Council Elections were held on 22nd December, 1957. On Nomination Day, 18th November, 81 candidates were nomin- ated for the 32 single-member constituencies—16 by the Labour Front, 3 by U.M.N.O., 32 by the Liberal Socialists, 14 by the P.A.P. and 5 by the Workers’ Party, newly formed from Trade Union elements under Mr. Marshall’s leadership. There were also 11 Independents. Three women were nominated. Only 3 members of the former City Council were nominated. In 18 of the constituencies there were straight contests, but in 3 constituencies, 4 candidates were nominated. The electorate numbered 504,294 compared with the 50,000 of the previous City Council elections in 1953. During the campaign there was intense party activity, particularly in the crowded central city area. Attacks were concentrated on the former City administration. The average percentage of polling was 32.7 per cent: varying from over 40 per cent in 4 constituencies to 15.7 per cent in one constituency. The result brought 13 seats to the P.A.P., 7 to the Liberal Socialists, 4 to the Labour Front, 4 to the Workers’ Party and 2 to U.M.N.O. There were 2 Independents. All 3 women candidates were elected but only 2 of the 3 former members of the City Council who stood. At its first meeting on 24th December, Mr. Ong Eng Guan, Treasurer of the P.A.P., was elected Mayor. The only other business at that meeting was the
10 SINGAPORE ANNUAL REPORT 1957
removal of the Mace as a ‘relic of Colonialism’ for which 26 voted in favour while 6 abstained. The business of this first meeting was carried on in four languages, introducing the long-heralded policy of multilingualism laid down by the Legislative Assembly.
Although 1957 was a year of calm compared with 1956, and subversive activity was held in check, the attempts to penetrate schools, trade unions and political parties continued, and the Government was compelled to use its powers of detention under the Preservation of Public Security Ordinance of 1955. In February, 42 of those arrested after the riots of October 1956 were banished. This action was followed by the dissolution of the Factory and Shop Workers Union which, under the leadership of Mr. Lim Chin Siong, had been in the forefront of the events leading up to the riots. The Union was dissolved because it could satisfac- torily explain neither the relationship of its activities before and during the riots to the purposes of a Trade Union, nor the disposal of $120,000 drawn from Union funds during the riots. Certain Unions under the leadership of the Singapore General Employees Union attempted to revive the political and trade union activities of the dissolved Union.
Further action taken in August 1957 was preceded by the attempt of the extremist wing to capture control of the P.A.P. from the more moderate group. Following the bye-elections, the P.A.P. on 4th August held its Annual General Meeting to re-define its policy and elect a new executive. The extremist attempt to pack the meet- ing was frustrated by rigid checking of membership cards and the use of the secret ballot. The moderate group secured support for their policy of an ‘independent, democratic, non-Communist, Socialist Malaya’ and of constitutional party activity in contrast to the permanent party dictatorship of the Communist idiom. But they secured the election of only 5 of the 8 members they had proposed for the executive. The Treasurer, Mr. Ong Eng Guan, was defeated, while 3 of the 4 new members were of the extremist wing, promin- ent, through the Culture and Educational Committee of the party, in reviving the type of ‘Communist Cultural’ propaganda which had preceded the riots of 1956. The moderates, who included the 3 active members of the Assembly, were in a minority.
On the night of 21/22nd August, there were 35 arrests under the Preservation of Public Security Ordinance. 5 were members of the newly-elected executive of the P.A.P.; 11 were other officials of P.A.P. Branches; 15 were officials of certain trade unions; and 4 were on the staff of a political news-sheet published four times a
GENERAL REVIEW 11
week in Chinese. They were arrested not because of the positions they held, but because of their individual acts in using their posi- tions for purposes other than those of the organisation. The Chief Minister made it clear immediately that the police action was taken with the full support of Government and that it was not taken because of any immediate threat of riots, or any fear of dis- turbances in connection with the Merdeka celebrations in the Federation. Action was taken because these persons’ subversive activities had become more frequent and more blatant, and it was considered better to head them off before they could gain the momentum which they gathered with fatal consequences in 1956. In his Press Conference after the arrests, Mr. Lim Yew Hock said, ‘Government will take action at any time if there is a threat to the security of the country ... We have arrested those Communists of whose activities we have clear knowledge .. . This is not an attack on genuine democratic Trade Union leaders who need have no alarm . . . If the Communists penetrate any other political party, even the Labour Front, I would take similar action . . . The Com- munist menace is always there . . . The Government has to show the people that there is a better way of life than Communism.’
On the day following the arrests, the Government published a White Paper in explanation of its action. Its introduction included a general statement on the technique of peaceful penetration and exploitation of democratic opportunities which the Communists had followed since the introduction of the Rendel Constitution, and which were ‘particularly dangerous at a time of rapid political change and social adjustment, when national ambitions for self- government are being achieved.’ The Paper quoted examples of the revival of this technique in spite of the arrests of October 1956. A captured Malayan Communist Party document written in April 1957 had thus defined their policy: ‘Our fundamental policy is to remain under cover and act with dexterity and cautiousness while we conserve our strength. Our basic strategy is to expand and consolidate the patriotic National United Front in order to mobilise the strength of the whole people.’ It explained that they had chosen to penetrate the P.A.P. because it was the most ‘pro- gressive’ party, and that they must accept differences rather than split with the P.A.P. An earlier document had said that it was only because of lack of organisation that they had not ‘resorted to armed struggle’ after the failure of the constitutional talks in 1956. The chief form of activity had been in the organisation of picnics for Communist indoctrination through songs and games and
12 SINGAPORE ANNUAL REPORT 1957
lectures. Even the games had been given Communist associations. The report gave evidence of ‘known connection between under- ground elements of the M.C.P. and the groups now openly forming.’ For example, ‘no less than 11 identified members of the secret Communist organisation were active in the trade union and politi- cal fields. These Communist Front groups, if allowed to develop and consolidate unchecked, would very shortly become a most serious threat to security which could not be removed without a very strong risk of violence and bloodshed.’
In the detailed analysis of penetration of the Trade Unions, the White Paper showed how the Singapore General Employees Union had attempted to take over the role and the tactics of the Singapore Factory and Shop Workers Union. The Singapore Trade Union Working Committee, a loosely knit organisation, was set up again under the same name as the similar organisation which had been the cover for wide penetration in 1956. Former members of the S.F. & S.W.U. had taken over the S.G.E.U.; had formed satellite groups of Unions; had brought the Unions into use as political instruments; had again tried to ally with the T.U.C. in order to control its activities and policies; and, latterly, had been organising the Communist indoctrination picnics and concerts of Communist content and association.
Similar tactics had been used in the P.A.P. The same group had worked through the so-called ‘Cultural and Education’ Committee of the P.A.P. They had published a paper independent of the Party newspaper; had established their own committees in the branches; and had organised picnics and concerts for propaganda purposes. In July 1957, they had published an issue of their paper in defiance of the Central Committee, and adopted as their slogan ‘Intensify our Hsueh-Hsih’, the ‘study for action’ slogan which had domi- nated the Chinese Middle Schools in 1956.
The White Paper concluded that “once again a serious threat is developing. Communists and their agents are back in key posi- tions, daily increasing their propaganda and their power, and steadily strengthening the extent of their control and thus again building up a united Communist Front’. To meet this threat, “The Government stand for ‘Operation Liberation’ which seeks to liberate Singapore from those who would risk the peace and security of the people of Singapore in order to speed their path to power, and force an alien and unwelcome ideology on a practical- minded community . . . If at this stage in Singapore’s political development, there has not been time for a strong public opinion to develop against the enticements and intimidations of Communists
GENERAL REVIEW 13
and their fellow travellers, the elected government in the interests of the people have an inescapable duty to step in and frustrate the attempts to create an essentially dictatorial Communist state.’
Four more persons were later arrested, bringing the total to 39.
Government’s action was challenged by Mr. Lee Kuan Yew in the Legislative Assembly on 12th September when he invited mem- bers to ‘deplore the inaccuracies’ of the White Paper. He admitted penetration of his party by a ‘dissident faction’ but denied its domination. He claimed that there was penetration of all parties and that the P.A.P. was mastering its own problem when Govern- ment intervened and that the Government were losing their battle against the same elements in the T.U.C. The Chief Minister replied that, as the P.A.P. had acted too late against their Communist elements, the Government was forced to act to ‘preserve security rather than restore order after riots’. Mr. Lee Kuan Yew’s motion was lost by 22 votes to 3 with 7 absentees.
On 25th September, 48 students, mainly from two Chinese Middle Schools, were arrested under the Preservation of Public Security Ordinance. The great majority were 18 or 19 years of age. Explaining the action, the Chief Minister Mr. Lim Yew Hock said: ‘A study of the documents seized confirmed the Police in- formation that an underground organisation, with an overall plan to subvert young students of the Chinese Middle Schools and ex- ploit Chinese education for political purpose, has continued since the banning of the Singapore Chinese Middle School Students Union. This organisation is another sector of the overall M.C.P. plan which was revealed in the Government White Paper issued last month. Their activity has been increasingly bold and blatant. We had to take this action before this group got the deadly strangle- hold on the Chinese Middle Schools which they held last year.’
Describing their activities he said that they had reverted to the former S.C.M.S.S.U. type of organisation and to the Hsueh Hsih (Study for Action) Communist indoctrination, under the guise of picnics to evade suspicion. At one of these picnics, one of their speakers had said that after the action against them last October, the ‘progressive parties’ had begun to build themselves up again. They were adjured to carry on the ‘struggle’ and ‘sacrifice them- selves for the masses’. They sang Communist songs, some of Chinese and Russian origin, and one specially written to com- memorate the disturbances at the former Kallang Airport during the Merdeka Rally of 1956. These were followed by three plays in glorification of Communist activities in Malaya and in support
14 SINGAPORE ANNUAL REPORT 1957
of the anti-Japanese and anti-American themes of the Chinese Communist Party. They revived the theme of opposition to ‘Yellow’ (i.e. non-Communist) culture of 1956.
Copies of M.C.P. documents such as Freedom News were also seized. By assisting Trade Unions on strike, they had been restoring the explosive link of students and trade unions which had reached its climax in the Hock Lee Riots of 1955 and the October riots of 1956. The Chief Minister commented: ‘Last year we were not so fast. They know the attitude of Government now. We are firm. We will not tolerate any nonsense.’ While the situation in Chinese Middle Schools had improved, the other side ‘would be losing their grip if they don’t start reorganisation again. That is the cause of the reorganisation.’
On 26th September, the Headmaster of the Chung Cheng High School was arrested on a Banishment Warrant. The order of Banishment was confirmed by the Council of Ministers on 12th October. This school, with 4,252 students, was subsequently re- organised to ensure greater educational efficiency and discipline.
There were no demonstrations in the schools against the arrests, and during this period, the Chief Minister received 321 letters from Chinese Middle School students—in the main from the schools attended by the majority of those arrested—supporting his policy of creating an atmosphere of study in the schools and confirming the attempts by Communist groups to dominate the schools. Sub- sequently, after investigations had shown that they were ‘genuine students misled by subversive elements’ and after the Chief Minis- ter had interviewed their parents, 29 of the detained students were released, while the detention of the remaining 19 was confirmed.
Relations with the Federation were a recurrent topic of import- ance, not only because of the decisions taken on the constitutional future of Singapore and of the achievement of Merdeka by the Federation in August 1957, but also because of the practical signi- ficance of economic policies and control of movement between the two territories. On his return from his Mission, the Chief Minister had paid tribute to the importance of the Federation’s participation in the Internal Security Council for the success of the Mission. On 21st August the Legislative Assembly approved the following message to the Federation on the achievement of its independent international status as a member of the Commonwealth:
“On the occasion of the attainment of Independence by the Federa- tion of Malaya within the Commonwealth of Nations on Saturday, 31st August, 1957, the Singapore Legislative Assembly, on behalf of the people of Singapore, sends to the Federal Legislative Council and
GENERAL REVIEW 15
the people of the Federation of Malaya greeting and congratulations at this historic time—the emergence of a new nation, taking its right- ful place among the freedom-loving nations of the world; and good wishes for the future in which the peoples and Governments of both our territories are inextricably bound, a future which therefore holds a challenge to good sense and tolerance which can only be success- fully met by constant and unstinted goodwill, and by the closest of co-operation in realising the ardent desire of the people of both our territories; for it is the prime interest of both peoples to merge into a single political unit within which, as one people with one outlook and purpose, all may share the joy and fruits of that happy state of Merdeka.
We of Singapore look forward to that day when our strength will be added to your strength and our separation will be ended; and we can proudly go forward together to make our joint contribution in human welfare, economic prosperity and political strength to the great and distinctive service of Asia to the modern world—MERDEKA.”
August 31, ‘Merdeka Day’ for the Federation of Malaya, was celebrated as a public holiday in Singapore and a salute of guns was fired on 2nd September to mark the installation of the Yang di-Pertuan Agong as Head of the new State. The Assembly agreed to provide the furniture for a committee room in the Federation’s new Parliament House when it was built, and meanwhile to send a grandfather clock immediately.
The attitude of the Federation Government was expressed by H.M. the Yang di-Pertuan Agong of the Federation of Malaya in his speech from the throne on 3rd September to the first meeting of the Parliament of an independent Federation of Malaya. ‘My Gov- ernment will enter into discussions with sympathy towards the special problems of Singapore and with understanding of the difficulties which face the Government.’ Inevitably many of the affairs of the. two territories were the subject of consultation be- tween the two Governments. The Singapore Government agreed to the transfer of the Royal Malayan Navy to the Federation while the Prime Minister of the Federation sent a message of congratula- tions to the Chief Minister on his action against the students.
On 4th December, Sir Robert Black left Singapore to take up his new post as Governor of Hong Kong. On 11th December, Sir William Goode, formerly Chief Secretary of Singapore, was in- stalled as his successor.
1957 was a year of continued economic prosperity with a high level of trade and buoyant revenue. For the fourth successive year Singapore’s trade increased in value. The overall figure for 1957 was $6,050.5 million, $219.4 million greater than the figure for
16 SINGAPORE ANNUAL REPORT 1957
1956. Half of this increase came from trade with Indonesia, a quarter from trade with China, and the final quarter from trade with Japan, India, North Borneo and Formosa. Although trade with the Federation dropped by $38 million, 71.8 per cent of the trade of the Federation was carried by Singapore. In spite of the increase in the value of Singapore’s trade, there was an adverse trade balance of $504 million. The volume of shipping in 1957 increased to a record figure of over 66 million tons. Food produc- tion continued to increase rapidly, making Singapore virtually self- sufficient in pigs and poultry, with surpluses for export.
The practical effect of this continued prosperity was set out in the Economic Survey prepared by Dr. F. C. Benham, the Economic Adviser to the Chief Minister and published in June 1957. He estimated Singapore’s National Income as being over $1,800 mil- lion, or $1,200 per head and ‘several times greater than that of most Asian countries’. He recorded ‘continuous increase in levels of consumption over the last two or three years.’
Dr. Benham summarised the situation as follows:
“The last three years have been years of prosperity. There has been a marked increase in standards of living, and fairly full employment. Earnings have risen since 1954 by 12 per cent and hours of work
have been considerably reduced. The share of workers in the national income has risen; nevertheless profits and share values have increased.”
Consideration was given to means of improving its port facilities and developing other sources of revenue. In February the establish- ment of an Industrial Promotion Board was approved by the Legislative Assembly. The Board was established in March and was allotted a capital of $1,000,000 as a revolving fund to finance new industrial undertakings, or schemes for the modernisation and improvement of existing undertakings, or for research into indust- rial potentialities. In July the Minister for Commerce and Industry announced the decision of Government to appoint a Director of Tourism to develop the work inaugurated by the Information De- partment and to allot $300,000 for tourist promotion. Meanwhile, a Tourist Advisory Board, representing official and commercial agencies concerned with tourism, was set up to advise the govern- ment On tourist promotion and to stimulate tourist traffic until a director was appointed.
A commission was appointed in August 1957 under the Chair- manship of Sir Eric Millbourn, Honorary Adviser on Ports to the British Ministry of Transport, to examine the port and landing
GENERAL REVIEW 17
facilities of Singapore and make recommendations for their future administration, co-ordination and development, labour organisa- tion, and financing. The report, published in November, re- emphasised the importance, to world trade generally and to the economy of Singapore, of Singapore’s future as a ‘communication and trading centre’. In a passage which echoes Raffles’ conception of Singapore as an emporium, the report says:
Its importance as a communications centre is clear, not only from its impressive shipping activities, but also from the fact that it now possesses a very fine international airport. As a trading centre its vigorously thriving commercial life stems not from any natural agri- cultural or industrial resources, but from proper development of its position as a communications centre. This development has brought
to the island all the facilities of modern commerce, with its banks, trading houses, insurance companies and marketing arrangements.
But in face of new rivals in port facilities and the coming con- stitutional changes, the Commission recommended that the port must be ‘essentially a commercial enterprise directed and operated on business lines’ and ‘brought into line with established inter- national practice’.
Labour conditions in 1957 were steady. The level of employ- ment of manual labour remained stable at approximately 123,000 while the number of man-hours lost in strikes and lock-outs was the lowest ever recorded. Only 109,349 man-hours were lost as a result of strikes; the significance of this figure can be judged in contrast to the 946,354 man-hours lost in 1955 and 454,455 in 1956. 57,433 workers were involved in strikes in 1955 compared with the 8,233 in 1957. Two of the major strikes in 1957 involved no serious economic issue, but the prestige issue of a pass for a paid Union Secretary not employed in the industry. A Survey con- ducted by the Labour Department showed an increase of 2 per cent in average weekly earnings in 1957, compared with 1956, and a slight fall in the average hours worked per week. Two new ordin- ances passed during the year added Shop Assistants and Clerks to those grades of employees whose conditions of work are defined by law, making the 44-hour week apply to more than half of Singa- pore’s workers.
The major achievement of 1957 in the sphere of social services was the passing of the new Education Bill and the establishment of a unified national multilingual system of education along the lines recommended by the All-Party Committee on Chinese Educa- tion set up in 1955 after the large-scale participation of students
18 SINGAPORE ANNUAL REPORT 1957
of Chinese Middle Schools in support of the Trade Union in the Hock Lee Bus dispute which led up to the rioting in May 1955. Early in 1957 there was criticism and even talk of crisis by the Chinese Schools’ Management Committees when the new educa- tion regulations and the new system of grants were under discus- sion; but by the end of the year the advantages of the new scheme were seen and accepted.
The Education Bill passed its Second Reading on 24th April and, after long discussion in Select Committee, its Third Reading on 18th November.
The Minister in introducing the Second Reading defined its aim as being ‘to ensure as far as possible that pupils are given an education in conformity with the Government’s education policy to fit them to become responsible citizens of this territory; under the care of teachers of good education, professional training and personal integrity; and in premises which conform to the highest standards the community can reasonably afford.” Under the new system, all schools without discrimination or communal bias, are equal parts of a multilingual education system with a Singapore focus of loyalty. All schools are administered according to the same regulations passed on the advice of an Educational Advisory Board with a right of appeal to an Appeals Board against the decision of the Director of Education in applying or interpreting them. All receive the same financial grants, and are staffed by teachers on similar rates of pay and conditions of service. The Chinese schools became an integral and equal part of the educa- tonal system of the State.
The Bill shaped the pattern of expansion of the education system for which $57,146,928, or nearly 25 per cent of the total budget, was voted for current expenditure and capital cost in 1957, com- pared with $40,277,961 in 1955 and $46,125,074 in 1956. This reflects an increase in the school population from 204,000 in 1955 to 277,692 at the end of 1957. In 1957 the number of teachers had grown to 9,531 and 2,180 potential teachers were in training at the Teachers’ Training College, 545 of them training as teachers in the Chinese language. 19 new primary schools and 2 secondary schools were built and 5 primary schools were extended.
Following the internal difficulties which came to a head over the appointment of a successor to Sir Sydney Caine as Vice- Chancellor and the wish of the Federation Government for Univer- sity institutions in its own territory, a Commission under the chair- manship of Professor R. Aitken of Birmingham University was set
GENERAL REVIEW 19
up to review the constitution, working and finances of the Univer- sity of Malaya. The Report described the rapid growth of the University student population to 1,700 in its 9th year in contrast to the forecast, at its foundation, of 1,000 students in its 10th year. It had ‘achieved a place of respect and distinction’ and had justified the ‘boldness’ of the Carr-Saunders Commission in recommending an independent University rather than a University College. The Report also referred to the ‘disturbing antagonism between the Council and the Senate’ mainly due ‘to the fully understandable impatience among Council members to achieve national independ- ence’ and to ‘rigidity and insensitiveness in the Senate towards the problems and opportunities of developing a modern University in a Malayan setting,’ all aggravated by the rapid growth and the sheer burden of administrative work which was the result. The Commission however recognised the delicacy and complexity of the problems of the University, and also the ability and goodwill at its command for their solution. The First Year’s Arts Course was transferred to Kuala Lumpur, where Engineering, and Agri- cultural Faculties were being instituted, while the Muslim College at Klang was recognised as an ‘Autonomous Authority’ of the University.
The Nanyang University began its second year in 1957 with 900 students, one-fifth of them being women. The three Faculties of Arts, Commerce and Science were fully established. Only 20 per cent of the students entered the University under 21 years of age.
During 1957, the first evening classes of the Polytechnic were opened for 715 students in school premises, while the building of its new premises continued rapidly.
During 1957, the first full year under its new constitution, the Council for Adult Education provided further education, mainly in language classes, for 12,892 students in 504 Basic Education Classes and for 900 students in 46 Further Education Classes. The Council’s new Cultural Centre built from funds provided from Colonial Development and Welfare funds was opened by the Deputy Chief Minister on 21st June and proved a well-equipped centre for cultural activities. In August the foundation stone of the new Raffles National Library Building was laid on a site adjacent to the present Raffles Museum by Mr. Lee Kong Chian, who had donated $375,000 towards the total cost of $2,500,000. The new building will be a lending library for books in the four languages of Singapore. It will house the Government archives,
20 SINGAPORE ANNUAL REPORT 1957
and will be the centre for a Mobile Library scheme for the rural areas in line with the development of the District Councils and the extension of Adult Education in the rural areas.
A further cultural development was approved when, in the Budget session, $100,000 was voted for the establishment of a Fine Arts and Cultural Section in the Ministry of Education. The Minister in making the announcement said that he planned to set up a Cultural Advisory Council ‘to stimulate the development of Singapore’s varied cultures, to co-ordinate and encourage private efforts, and to educate citizens to a more active appreciation of the arts.’
Housing progress after a slackening of activity due to the difficulties of transferring squatters from sites, reached a record level of activity at the end of the year. In January, $44,000,000 was loaned by Government to the Singapore Improvement Trust for the construction of 5,817 houses and shops. The main develop- ment scheme was for a part of the former Kallang Airport, and a quarter of these houses were to re-house those moving from slum areas. In 1957 1,274 houses and 70 shops were completed and, at the end of the year, $20.1 millions had been spent on housing, and 4,971 houses and 124 shops were under construction, which is double the number under construction at the end of 1956.
The health services were expanded to meet the growing demand for medical services. Out-patient attendance increased in 1957 to the record figure of 1,239,281, compared with 881,742 in 1956. The Rural Maternity and Child Welfare Service opened 6 centres, making a total of 51 centres. In June the foundation stone was laid for a new hospital for the Chronic Sick estimated to cost $4.5 millions, and a new out-patient clinic was opened in the City area. The effect of these measures was illustrated by the general death rate, which fell to 7.3 per 1,000 of the population, and the infant mortality rate, which fell to 39.7 per 1,000 live-births, both the lowest recorded figures for Singapore. Although the ‘Asian flu’ epidemic affected 50,000 people in Singapore, and schools were closed for one week, special measures were successfully taken by the Ministry of Health and there were only 4 deaths which might be attributed to its effects.
Outstanding among the ceremonies of the year was the unveiling in March of the Commonwealth War Memorial at Kranji by the Governor. The memorial, in the shape of the swept-back wings of an aeroplane, surmounts a slope on which are set out the crosses
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GENERAL REVIEW 71
facing across the Straits of Johore. It commemorates the comrade- ship of the Commonwealth at its fullest and the services of 24,000 men of the Commonwealth Forces killed in the Malayan areas between 1939 and 1945, for as the legend says in six languages—
“THEY DIED FOR ALL FREE MEN” The inscription reads— 1939 -1945
“On the walls of this Memorial are recorded the names of 24.000 Soldiers and Airmen of many races united in service to the British Crown who gave their lives in Malaya and neighbouring lands and seas and in the air over Southern and Eastern Asia and the Pacific, but to whom the fortune of war denied the customary rites accorded to their comrade in death’’,
Singapore had many distinguished visitors during 1957. In May Mr. H. S. Suhrawardy, the Prime Minister of Pakistan, visited Singapore in response to an invitation from the Chief Minister whom he had entertained in Karachi on his return journey from the constitutional talks in London. He was particularly appreciative of the housing projects of the S.1.T. During August and September there were many visitors on their way to and from the Merdeka celebrations in Kuala Lumpur. Those who stayed for some days included the Lord Chancellor, Lord Kilmuir, and the Minister of State for Colonial Affairs, Lord Perth. Lord Kilmuir gave an address at the Faculty of Law of the University of Malaya, and addressed a formal session of the Supreme Court. His theme in both lectures was the importance of the Common Law which ‘continues to govern more than a third of the world today’, and the hope that it would ‘continue to be not only a strong tie between England and the countries of the Commonwealth and beyond, but, by the way it is administered and developed, always be deemed a worthy and voluntary bond between all free men.’
Lord Perth made an intensive round of visits to schools, hospitals, the housing estates and the Airport. He said that Singapore should be proud of the housing estates of the Singapore Improvement Trust which showed ‘some of the most remarkable layouts in development I have ever seen’.
In September, Mr. Duncan Sandys, Minister for Defence, visited Singapore, a visit of direct interest because of speculation on the future of Singapore as a Base under the U.K. Defence Scheme. On his departure, he said that Britain had no intention of moving its Far East Base from Singapore and would continue to station large
22 SINGAPORE ANNUAL REPORT 1957
conventional forces in Singapore. During his visit, he saw the cen- tenary parade of the Gurkhas in honour of their battle honours won in Delhi in 1857.
In November, Mr. Nobusuke Kishi, the Prime Minister of Japan, visited Singapore during his Goodwill Tour, which also included Malaya, Australia, New Zealand and the Philippines. Mr. Kishi left an impression of courage and sincerity, while re-establishing official relationships between heads of governments. In all his statements he emphasised that his prime purpose was one of goodwill. He repeated offers of technical assistance under his project of an Asian Development Fund.
In December, Mr. Hugh Gaitskell, leader of the Opposition in the Parliament of the U.K., visited Singapore, after attending the Conference of the Commonwealth Parliamentary Association in New Delhi.
In September, the Government was host to a seminar organised by the International Labour Office on the training of supervisors in industry in Asian countries. A party of Laotian and Cambodian students came for two months to study English at the University of Malaya on a course organised by the British Government under the Colombo Plan. In September too a Philippine Cultural Mission produced a programme of Philippine songs and dances. They de- fined their purpose as being to open a window through which others could see the folk creations of the Philippines. It was an unforced and undramatised production which for that reason carried all the greater conviction.
II
Population
CENSUS of population was taken in June 1957. Pending
publication of the full census report, information available confirmed that the population of the Colony of Singapore was much higher than was formerly estimated. The preliminary census figures gave a total population of 1,474,063 for Singapore and 2,620 for Christmas Island, as compared with 938,144 for Singapore and 866 for Christmas Island enumerated in the 1947 Census. The increase in the population of Singapore during this ten year period was therefore 535,919 or 57.1 per cent. This remarkable growth was caused by a natural increase of 397,327 and a migrational increase of 140,592. The latter phenomenon reflected the net migration of people into Singapore from the Federation of Malaya rather than from other countries, and also provided an explanation of the rather low figures of the previous intercensual estimates which, owing to lack of comprehensive data, did not take into account migration between Singapore and the Federation.
BIRTHS
The registration of births in Singapore is compulsory and may be effected at a number of registration centres established for the purpose or at any Police Station outside the City limits. There is now a greater incentive for people to register births of their children since the possession of a birth certificate as a legal docu- ment has come to be appreciated in connection with entry into Government schools and into Government service, and with appli- cations for passport, citizenship, and so on. There is indirect evidence to support the claim that the registration of births 1s nowadays virtually complete.
24 SINGAPORE ANNUAL REPORT 1957
SINGAPORE (EXCLUDING CHRISTMAS ISLAND) BIRTHS AND CRUDE BIRTH RATES 1947 1957 Births Crude Births Crude
Race Registered a Occurred a Chinese ... eee .. 33,629 46.10 46,263 , Malaysians - .. 5,473 48.09 9,317 = Indians and Pakistanis ... 3,087 44.76 5,020 * Europeans ae sas 312 33.62 1,140 > Eurasians ‘bie aes 359 39.41 360 * Others... on vad 185 24.63 585 : Total ... 43,045 45.88 62,685 42.91 Male... ee ... 22,152 — 32,280 — Female ... ces ... 20,893 — 30,400 —_
Total ... 43,045 — 62,685f —
* Not yet available. t Includes 5 of unknown sex.
Notes:—The 1957 figures are of births by year of occurrence whereas the 1947 figures were for births by year of registration. The law allows 42 days from the date the birth occurs in which to register. During the year there were 51 male and 49 female bi on Christmas Island.
The crude birth rate for 1957, calculated from births by year of occurrence, was 42.91 per thousand population of the preliminary 1957 Census figures, as compared with 45.88 in 1947, which gives a significant decrease of 2.97 per thousand population. A factor tending to reduce the crude birth rate is the increasing proportion of the population who have not reached the reproduction age. However the crude birth rate has remained at a high level for the past two decades—45.81 in 1937, 45.88 in 1947 and 44.24 in 1957 and the relatively small proportion of females in the population a few decades ago has been largely rectified by immi- gration and natural increase. There were 62,685 births in 1957 as compared with 60,892 in 1956 and, with a young and healthy population rapidly reaching maturity, it may be expected that more and more babies will be born each year.
The 1957 crude birth rate based on the preliminary census figures confirmed the belief that the previous high crude birth rates calculated for the intercensual years were due to the fact that the estimates of the population based were considerably under-estimated.
POPULATION 25
SINGAPORE (EXCLUDING CHRISTMAS ISLAND) LIVE-BIRTHS WHICH OCCURRED Mother’s Age in Years Total Chinese. Malaysians Mand MF M. F.C M. F.
12 years mee wee 1 — 1 — 1— —
13 years aes wok 2 — 2 — — — 1 14 years ne oa 17 13 4 — — 6 1 15 years oes ae 0 59 53 10 - 6 32 33 16 years as .. 372 186 186 46 61 93 88 17 years ce ... 948% 492 455 210 179 191 175 18 years ae ... 1,679 881 798 430 381 310 285 19 years ee ... 1,979¢ 1,011 967 578 531 276 264 20 years ue ... 2,800 1,431 1,369 789 786 433 381 21 years ae .. 3,535 1,773 1,762 1,194 1,195 345 361 22 years Sis ... 3,781 1,937 1,844 1,324 1,293 407 339 23 years eae .. 3,664 1,941 1,723 1,418 1,265 320 271 24 years ae .. 3,769 1,897 1,872 1,408 1,442 255 236 25 years bis ... 3,889 2,030 1,859 1,469 1,330 323 328 26 years — ... 3,878f 1,987 1,890 1,539 1,403 247 271 27 years mile ... 3,841 1,996 1,845 1,537 1,413 253 250 28 years eats ... 3,680 1,954 1,726 1,484 1,318 287 251 29 years eee ... 3,129¢ 1,633 1,495 1,326 1,173 190 185 30 years ss ... 3,2604F 1,639 1,624 1,247 1,231 257 246 31 years sae ... 2,163 1,148 1,015 936 852. 117 84 32 years eae .. 2,313 1,212 1,101 977 903 127 112 33 years... .. 1907 981 926 792 765 88 74 34 years — ... 1,866 956 910 776 728 109 112 35 years sek wwe Wedd 904 871 710 672 113 122 36 years wad ... 1,567 830 737 711 639 60 45 37 years aye ... 1,424 711 713 617 616 39 60 38 years mee ... 1,259 663 596 580 494 45 60 39 years sue ... 1,026 525 501 452 447 48 36 40 years soe ... 878 403 475 358 415 26 35 41 years ot .. 656 318 338 289 307 15 14 42 years se .. S71 281 290 262 273 10 9 43 years see .. 370 209 161 196 155 9 6 44 years... .. 223 105 118 96 108 5 8 45 years ... 182 94 88 83 83 8 5 Over 45 years sv «159 75 84 68 74 6 10 Unknown _... se 6 5 1 — — i |
Total... 62,685 32,280 30,400 23,912 22,539 5,051 4,759
* Includes 1 of unknown sex (Indians and Pabaniey: + Includes 1 of unknown sex (Chinese).
26 SINGAPORE ANNUAL REPORT 1957
DURING 1957 BY RACIAL GROUP AND AGE OF MOTHER AND BY SEX OF CHILD.
sorb Europeans Eurasians Others M. F. M. F. M. F. M. F. eae j = a as 25, — ae 7 3 = as one 25 a ees 17 13 =o a ae | nae _ 44 35 = = ans i 3 l 83 92 3 a 3 1 2 8 121 117 4 | 3 4 13 10 129 136 6 10 8 9 14 17 156 167 23 13 10 6 20 16 180 151 36 30 5 9 13 16 138 139 41 43 15 14 12 16 141 126 30 29 15 15 17 17 156 130 43 33 15 15 20 16 156 137 48 37 13 8 21 19 136 146 33 31 14 19 18 20 134 122 39 36 17 8 16 16 118 99 35 39 9 9 21 10 84 30 26 8 11 13 16 97 95 19 30 10 11 9 11 51 42 31 26 9 3 4 8 71 56 24 18 8 2 5 10 55 60 27 20 8 5 11 2 41 39 18 24 5 4 7 3 47 53 19 20 8 3 7 i 40 28 13 15 4 7 2 3 29 17 17 14 6 4 3 2 24 33 3 5 6 2 5 2 17 11 3 5 3 2 2 — 11 16 6 4 | 3 1 2 9 11 3 4 1 2 1 — 6 3 3 2 — 1 — 2
4 =) an ane = = = a
3 2 1 ars == se a on
3 oes ne at Bee _ = =
1 ees fare eS = aoe =—_ 5 —_ = 1 ae a = 3 =z 2,291 2,164 559 515 204 179 263 244
DEATHS
The registration of deaths is compulsory and may be effected at the same registration centres and Police Stations as births. Since a burial permit may be obtained only after death has been registered, this procedure ensures virtual completeness of death registration. Coroner’s enquiries are required whenever a suspicion arises that a death has not been due to natural causes. (See Chapter XIII.)
POPULATION 27
SINGAPORE (EXCLUDING CHRISTMAS ISLAND)
DEATHS AND CRUDE DEATH RATES
1947 1957 Race Pe Pele D cath Peta D cath 8 Rate Buster Rate Chinesc ... in re 9,368 12.84 7,696 * Malaysians wie a 2,029 17.83 1,967 * Indians and Pakistani . ‘hs 878 12.73 791 * Europeans oi er 74 7.93 95 > Eurasians aes a 84 9.22 75 ad Others... nig ue 78 10.38 86 * Total ... 12,511 13.34 10,710 7.32 Male ack re ve 7,428 — 6,257 = Female ... cate iow 5,081 — 4,449 a Total ... 12,511fF sa 10,710t es
* Not yet available. ¢t Includes 2 of unknown sex. t Includes 4 of unknown sex.
Note:—During the year there were 11 male and 6 female deaths on Christmas Island.
The crude death rate for 1957 reached the low level of 7.32 per thousand population of the preliminary 1957 Census figures. This proved that the crude death rates calculated for the inter- censual year were slightly higher than they ought to be because of the considerable underestimates of the population base of the intercensual years. The general trend shown by the crude death rate (apart from the Japanese occupation period of 1941-45 and its aftermath) has been a steady decline from 21.96 in 1937 to 13.34 in 1947 and further to 7.32 in 1957. The progressive and steady reduction over the years in the average age of the population has not been the only factor contributing to the decline in the death rate. Other factors are to be found in the stringent public health mea- sures which have been enforced, the increasing popularity of modern medicine and better general standards of living, especially of housing—all making Singapore an exceptionally healthy place by tropical standards. (See Chapters VIII and X.)
Infant mortality and maternal mortality are discussed in Chapter X.
28 SINGAPORE ANNUAL REPORT 1957
SINGAPORE (EXCLUDING CHRISTMAS ISLAND)
DEATHS REGISTERED DURING 1957 BY AGE, SEX AND RACIAL GROUP
Indians Age Group Total Chinese sh acl and Pak- pani pie: Others M. and M. F. M. F. M. F. M. F. M. F. M. FE. M. F. F. Under | day -- 3i7® 184 131122 81 40 33 16 114 2 1 #4 #2 #3 «3 1 day and under « days 162 101 61 71 41 15 10 10 9 2 — tf! £ 2 — eda ane iisiee 3 days 97 06 6 5340 Ss 443 38 «27 18 130 4 O35 OO 3 days and under 4 days 98 62 36 42 20 12 14 6 2 41 — 1 — — — 4 dave: aia under 5 days ... 71 35 36 21 20 10 10 2 6 f — — — 1 — S days and under 6 days ... 42t 26 I$ 146 11 8 3 1 — — 1 1 — — — 6 days ane under 7 days 28 =o! 1 WS, So ae. 2D: ee ee ee ee. ee ee 7 days nad under 4 days ... . 134 71 63 46 35 19 18 4 7 141 2 — — 1 1 14 days and under 21 days ... 101 $2 49 34 29 17 18 — 2%i1-—-—-—_— — 21 days and under 28 days ... 63 36 27 21 #14 13 8 «&2s2— f — — ft 2 Neo-Natal Deaths 1,113 642 468 426 283 149 129 46 42 8 $ 4 3 9 6
28 days and under 2
months 261 138 2 months and under 3 months 221 8128 3 months and under 4 months 175 95 4 months and under $5 months 148 91 $5 months and under 6 months 114 62 6 months and Side 7 months -. 130 72 7 months and er 8 months 106 54 3 months and snaed 9 months --. 94 $2 9 months and uadst 10 months 80 40 10 months and under I months 77 48 11 months and under 1 year “i 58 32
123 93 80 57 52 58 52 42
40
26
20
46
63
23 14
13
39
Infant Mortality§ 2,577t 1,454 1,120 864 654 451 354 109 90 12 8 S$ §
* Includes 2 of unknown sex. t Includes 1 of unknown sex. ~ Includes 3 of unknown sex. § Includes neo-natal deaths.
DEATHS REGISTERED DURING 1957 BY AGE, SEX AND RACIAL GROUP
Age Group
and F.
Under 1 year 2,577* 1,454 1,120
1 year and
under2 yrs. 439 2 years and under 3 yrs. 275 3 years and under4yrs. 135 4 years and under Syrs. 108 5—9 years 305 10—14 years 122 15—19 years 133 20—24 years 165 25—29 years 183 30—34 years 223 35—39 years 302 40—44 years 435 45—49 years 627 50—54 years 745 55—59 years 840 60—64 years 870 65—69 years 770 70—74 years 590 75—T9 years 441 80—84 years 241 85 years and over “~ bas Unknown Total
POPULATION
SINGAPORE (EXCLUDING CHRISTMAS ISLAND)
Total
M.
Chinese
F. M. F. 864 654 215 133 137 142 97 §@6101 61 $2 44 $1 42 38 138 114 106 $1 56 39 52 62 28 70 64 42 92 66 $5 90 79 54 124 103 77 178 178 140 211 #315 148 227 383 = =8=178 269 444 195 271 $02 222 291 406 246 277 261 245 237 166 8 203 151 81 135 130 29 =106 1 4 _—
* Includes 3 of unknown sex. ¢ Includes 1 of unknown sex. t Includes 4 of unknown sex.
crude birth rate and the crude death rate. This increasing rate of
451 354 109 90
66 18 32. «9
NATURAL INCREASE
The excess of births over deaths was 51,975 in 1957 compared with 47,239 last year. The rate of natural mcrease for Singapore in 1957 was 35.59 per thousand population of the preliminary 1957 Census figures—the rate being defined as the difference between the
Indians Malay: and Pak- istanis M. F. M. F.
| ee fom Nw = AU WIAOOWWNOWUhaAN LN 17%) = om
--- 10,710$ 6,257 4,449 4,501 3,193 1,048 919 560 230
Euro- peans M. F. 12 8
2 1 ee — 1 1 1 — 1 ; 9. (1 {: 23 2 1 § 4 2 6 3 7 6! — 2 2 2 3 #1 5 1 a — 2 — if 63 32
Eura- sians
M. F.
5 5
|. si. tl
lulaarsavlel lili le wwranwrsnel| el] lil |
we > & —
29
Others M. F. 13. — f — +! ek {i ioe — 1] i 2 2 1 3 3 Y en 3 1 4 f 6 — 1 1 1 2 4 2 2 3 3. 2 — ~4j 1 eT 1 ef 51 34
natural increase during the last two decades has been due to the decline in death rate rather than to the increase in birth rate, as can be seen by the following figures:
Year
1937 1947 1957
Crude
Birth Rate
45.81 45.88 42.91
Crude Rate of Death Rate Natural Increase 21.96 23.85 13.34 32.54 7.32
35.59
30 SINGAPORE ANNUAL REPORT 1957
MIGRATION
The attainment of independence by the Federation of Malaya on 3lst August, 1957, did not affect immigration control which has continued on a pan-Malayan basis. This meant that permission to enter Singapore included permission to enter the Federation of Malaya, and movement between the two territories was unrestricted. Since there are two separate Governments, each territory has its own Immigration Department but the two Departments work in close co-operation with each other.
The following Table shows the migratory movements by race during 1957:
MIGRATION 1957
Migrational Arrivals Departures Surplus (4+-) or Pan- Malayan Pan-Malayan Deficit (—)
Pan- Malayan Male Female Male Female Male Female
Chinese... ... 66,445 34,700 66,967 33,017 — 522 + 1,683 Malaysians 87,946 90,005 90,833 84,725 — 2,887 + 5,280 Indians and Pakistanis... 50,249 8,494 49,017 10,277 + 1,232 — 1,783 Buropeans ... ... 36,664 21,305 38,043 20,704 — 1,379 +. 601 Eurasians ... oe 409 208 353 186 + S6+ 22 Others ar ... 21,814 10,961 20,438 10,080 + 1,376 + 881
Total ... 263,527 165,673 265,651 158,989 — 2,124 + 6,684
Note:—{a) Of all the arrivals, 142,265 took place through Singapore and of all the departures 148,812 ‘took place through Singapore.
(6) As the population of Singapore by Race and Sex according to the 1957 Census is not yet available, it is not possible ‘to estimate the migrational balance of Singapore by Race and Scx.
(c) The total migrational surplus for Singapore in 1957 is estimated as 860.
Prior to the Aliens Ordinance, 1933, immigration into Malaya was unrestricted. The development of the rubber and tin industries absorbed a considerable labour force, and the number of immi- grants who came and went fluctuated therefore according to the local economic conditions as dictated by the world prices for these two commodities. The slump from 1928 to 1933 brought about a great deal of unemployment and made it necessary that some sort of control should be enforced. The Aliens Ordinance, 1933, instituted a quota system for the entry of aliens. This system, though enabling the quota to be varied from time to time to suit the changing circumstances, was never really effective as a means of admitting only those types of immigrants required by Malaya.
POPULATION 31
Most of the immigrants who entered the country both before and after the Aliens Ordinance, 1933, were men who came to work and return to their homeland after accumulating sufficient wealth. There was little stability amongst this immigrant population with- out family ties. The character of the immigrant population was changed when conditions in China brought about by the Sino- Japanese War led to wives and children and a large number of unmarried women joining their relatives in Malaya. The sex ratio in the immigrant population as a result became more balanced. Whilst in 1931 the sex ratio of females to males in Singapore was 583 to 1,000, in the census of 1947 it was 821 to 1,000.
To prepare the Colony for its rapid political advancement and to assist in the building of a stable community, it became increas- ingly desirable to exercise a stricter and more effective control over the types of immigrants admitted. A selective or qualitative immi- gration policy was introduced to allow entry only to those who could contribute usefully to the development of the country and a new Immigration Ordinance was brought into force on Ist August, 1953, in both the Federation of Malaya and Singapore. Under the Ordinance, only those British subjects born or ordinarily resident in Malaya, Federal citizens and certain others, have an unrestricted right of entry. All other new comers are barred from entering the Colony for permanent residence unless they fall within one or other of the categories mentioned in the Schedule to the Immigration (Prohibition of Entry) Order, 1953, which, broadly speaking, admits only those who can contribute to the economic and industrial development of the Colony and those who can provide specialist services not at present available locally in sufficient quantity.
The immigration figures for 1957 were similar to those of 1954 and 1955 before the number of immigrants into the Colony reached its peak in 1956. While in 1955 there were 6,600 persons issued with Entry Permits to enter the Colony, this figure rose to 11,000 in 1956, but in 1957 it dropped to only 6,700. The peak figure of Entry Permits issued in 1956 is accounted for, firstly, by the clear- ance of the backlog of applications accumulated from the previous years; secondly, by the more sympathetic examination of cases following the establishment of an elected Government in closer association with the people; and, lastly, by the desire of many Indian nationals to bring in their children because under the existing legislation they would lose the right of entry on reaching the age of 18 years. The decrease in the total number of immigrants
32 SINGAPORE ANNUAL REPORT 1957
in 1957 indicated that the zenith of immigration into the Colony has been reached and that many of those who are eligible to come into the Colony under the Immigration Ordinance, particularly from China and India, where most of the immigrants originate, have already exercised their right to do so. With the stricter administration of immigration policy to admit only those who may be genuinely beneficial to the economy of the Colony and with the reduction each year of the number of persons who are eligible to enter by reason only of having connections with people in the Colony, it is likely that the numbers of Entry Permits issued in the coming years will fall further, and perhaps sharply. During 1957, only 3,751 Chinese were issued with Entry Permits compared with 6,326 in 1956, a decrease of 2,575 persons. Of the 3,751 some 3,013 were wives, and children under 12 years of age, of persons resident in the Colony, and 663 were aged parents of local residents admitted on special compassionate grounds. The majority came from mainland China. Their admission may have helped in some way to stabilize the Colony’s large Chinese popula- tion and to sever the ties of the local Chinese community with their country of origin. Altogether 1,097 children under 18 years of age of local Indian residents were admitted in 1957 compared with 2,584 in 1956, a decrease of about 60 per cent. Many of these young persons took up employment as clerks, shop assistants and labourers, categories which are normally prohibited from entering Malaya. _ The number of specialists and contract employees admitted in 1957 also decreased. Only 76 specialist and 438 contract employees were admitted in 1957 compared with 116 and 459 respectively in 1956. The stricter enforcement of the Immigration Ordinance in regard to contract employees reflected the Government’s policy of insisting that vacancies should be filled, whenever possible, by local persons before allowing recruitment from over- seas. Of the specialists admitted, the majority were teachers, pro- fessors, doctors, engineers and a few architects. Seven skilled artisans were admitted in 1957, compared with 14 in 1956. They were textile workers and tile masons. As in 1956, persons were allowed entry on grounds of likely economic benefit to the Colony. Included in this important category were persons connected with Singapore’s import and export trade with Indonesia and with the establishment of a shirt factory, a cigarette factory and a batik sarong factory. Several representatives of firms of the United Kingdom, America, and Japan were also admitted on the grounds
The satin evening coat—Straits Times
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Bee:
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leo tia NI ven
Sper ES Biba p ore eo
Rena tee ee ea Ly eas AS oS
as Ee Sabai cere
Digitized by Google
POPULATION 33
that their businesses were likely to be of economic benefit to Singapore.
The importance of trade, particularly the entrepét trade, in Singapore’s economy was partly reflected in the number of travel documents issued to local residents in 1957. In all 23,355 travel documents, in the form of British Passports, Certificates of Identity and Emergency Certificates, were issued in 1957 compared with 19,048 issued in 1956, an increase of about 30 per cent. The number of visitors who arrived in Singapore for the purpose of trade or to carry out their professions or as tourists also increased from 64,601 in 1956 to 69,227 in 1957. There was, however, a further decline in the number of transit passengers who passed through Singapore in 1957. There were 139,717 transit passengers in 1957, compared with 149,917 in 1956 and 198,319 in 1955. This decline in numbers of passengers passing through Singapore is partly accounted for by the political situation in Indonesia.
The Marine Police and the Customs Department employ their launches and other facilities to assist the Immigration Department in preventing clandestine immigration from the neighbouring populous territories whose people are attracted by the better living conditions in Singapore. In addition, a National Registration system was introduced in 1948 as an emergency measure. Every person over the age of twelve is required to obtain an identity card unless his stay in Singapore is for less than thirty days. The issue of cards is linked to the immigration control system. As in most other countries, aliens who are resident in the Colony are required to register their names, addresses and other particulars. Chinese and Indonesians are not required to register, but the nationals of other countries must report to the Registrar of Aliens after fourteen days’ stay. In 1957, 2,058 new persons were registered and at the end of 1957 there were 2,504 aliens of 44 nationalities on the books as resident for over one month. Hotels and lodging houses are required to keep registers of arrivals and departures.
As a result of increasing restrictions on the entry of aliens since the early 1930’s, the population has become more settled and cases of second and subsequent generations being born in Malaya, and having therefore the status of British subjects, are much more frequent. There are, of course, many families whose forbears immigrated several generations ago. Notable amongst these are the so-called ‘Straits Chinese’ who have developed customs consider- ably different from those of present-day immigrants from China.
34 SINGAPORE ANNUAL REPORT 1957
MIGRATION BETWEEN SINGAPORE AND FEDERATION OF MALAYA
The population of Singapore is considerably affected by the migration of people between Singapore and the Federation of Malaya, which is completely free and the general direction of which has been from the Federation into Singapore. Although the exact volume of movement is unknown owing to the lack of com- prehensive data, a broad outline of it can be deduced from the identity card records, although, unfortunately from the statistical point of view, they exclude those below 12 years. According to these records, there was a surplus of 11,009 people migrating from the Federation into Singapore during the year 1957. A general picture of this internal movement during the year may be seen from the following table:
SINGAPORE / FEDERATION CHANGE OF IDENTITY CARDS DURING 1957 BY SEX AND STATE
Federation Singapore al anid Identity Cards Identity Cards Identity Cards State Surrendered Surrendered Sieedered
for Singapore _ for Federation
Identity Cards _Identity Cards 8 i Pali ob
Male Female Male Female Male “Female
Johore ay ... 5,412 3,610 2,795 864 2,617 2,746 Selangor... ... 1,829 1,032 = 1,345 531 484 501 Perak ve ... 1,275 889 591 223 684 666 Penang... we 2,119 562 600 220 519 342 Malacca... ... 1,014 775 453 140 561 635 Negri Sembilan ... 606 372 453 156 153 216 Pahang , ... .. 354 181 163 70 191 111 Trengganu .. 178 120 139 59 39 61 Kelantan ... ... 190 113 54 23 136 90 Kedah ae ... 306 109 140 36 166 73 Perlis oe ae 6 2 — — 6 2 Federation ... 12,289 7,765 6,733 2,322 5,556 5,443 MARRIAGES
The forms of marriage in Singapore derive from its diverse religions and racial customs. The principal types of marriage are civil marriage, Christian marriage, and Muslim marriage. These three types of marriage are solemnized and registered according
POPULATION 35
to statute law, but other marriages, which are solemnized according to customary rites, though recognised in the courts, are not registered. Complete figures of all marriages occurring in the year are therefore not available.
The Civil Marriage Ordinance (Cap. 38) which came into force on Ist January, 1941, (repealing a previous Ordinance of 1899) enables persons of all races, religions or customs to contract, if they wish, monogamous civil marriages solemnized and registered in the Registry of Marriages. But civil marriages may not be con- tracted by two parties if both are Muslims, or if either one of them is below 16 years. The Christian Marriage Ordinance (Cap. 37) which also came into force on Ist January, 1941, provides for the registration in the Registry of Marriages of monogamous Christian marriages solemnized by ministers of religion. Ordinarily, Christ- ian marriages are invalid if either of the parties is below 16 years, but, under certain circumstances, this minimum age limit may be waived. During 1957 there were 1,705 civil marriages and 730 Christian marriages. The following table gives the racial distri- bution of civil and Christian marriages solemnized and registered during 1956 and 1957: |
Race Civil Marriages Christian Marriages
1956 1957 1956 1957
Chinese a 1,443 1,425 339 326 Indians ee 105 135 38 81 Europeans as 82 61 194 159 Eurasians 6 7 3 89 69 Others ee 1 — — — Inter-Racial _... 58 81 61 95 Total ... 1,696 1,705 721 730
emer e
The Muslim Ordinance (Cap. 46) which came into force on 27th August, 1880, provides for registration of Muslim marriages solemnized by Kathis in the Registry of Muslim Marriages. Although Islam permits a Muslim to marry up to four wives at a time provided certain conditions are fulfilled, in practice mono- gamy is usual. There were 2,303 Muslim marriages during the year compared with 2,414 in 1956.
Registration of customary Hindu marriage is not provided for by statute law but, in spite of the absence of statistical data, it can
36 SINGAPORE ANNUAL REPORT 1957
safely be said that most of the unregistered marriages are non- Christian Chinese marriages some of which are polygamous. In the law of the Colony, secondary wives and their children have the same property rights as first wives and their children.
NATIONALITY AND NATURALIZATION
An important aim of the Government’s policy is to encourage loyalty to Singapore. For purposes of nationality the residents of Singapore are treated in the same way as those of the United Kingdom and are governed by the British Nationality Act, 1948. Persons born in the Colony are British subjects, and Citizens of the United Kingdom and Colonies.
The qualifications for naturalization as a citizen of the United Kingdom and Colonies consist of a residential qualification, a requirement that the applicant is of good character, and intends to reside in the United Kingdom or associated territories, or to enter or continue in Crown Service.
CERTIFICATES OF NATURALIZATION ISSUED 1954 1955 1956 1957
European ve 10 1 6 10 Chinese es 264 224 179 471 Stateless sat 23 13 13 42 Others o 38 20 17 11
335 258 215 534
There is provision for the citizens of Commonwealth countries to register themselves as citizens of the United Kingdom and Colonies. During the year under review, 1,138 persons took advan- tage of this provision.
SINGAPORE CITIZENSHIP
The Singapore Constitutional Conference held in London in March and April 1957 confirmed the agreement made at the Con- ference of the preceding year for the creation of a separate Singapore citizenship within the Commonwealth. The Singapore Citizenship Ordinance, 1957, became law on 21st October, 1957, giving effect with certain minor exceptions to the London Agree- ment. Details of Citizenship Registration are given in Chapter XVIII.
Kebaya beauty—Straits Times
POPULATION 37
LANGUAGES
With its cosmopolitan population, few European or oriental languages are completely unrepresented, but statistics of the dis- tribution of the population by languages and dialects as enume- rated in the 1957 Population Census are not yet available.
RELIGIONS
A precise enumeration of religions is not possible. The Malay- sians are almost without exception Muslim, while the Europeans and Eurasians are almost all Christian. Among the Chinese, a small minority are Christian and the remainder include Buddhists and an indeterminate number who are variously described as Taoist and Confucianist, though it is difficult to make any simple distinction between the various Chinese religions other than Buddhism. Most of the Indian community are Hindu and the remainder are Muslim, Christian or Sikh. There are a few Jews, Parsees and others.
GENERAL
Almost every aspect of social and economic activity is affected by the rapid growth of population, which is expected to reach two million by 1965. The main needs created by this population growth are the provision of primary school places for the annual increase in the child population reaching schooling age, the pro- vision of employment for the increasing number of people leaving schools, and, finally, the provision of housing and rehousing facilities, and medical services.
Il
Occupations, Wages and Labour Organisations
REAT AS IS the standing of Singapore as an international port and market-place, the degree of industrialisation is not high. About 640 employers employ more than 10 workers and plans are developing for further industrialisation. The migratory move- ments of emigrants and immigrants have disappeared and the move- ment of the working population in Singapore has become stabilised. The year 1957 saw a slight decrease in the number of strikes and lockouts as compared to the number which occurred in 1956. The number of man-days lost in 1957 was the lowest ever recorded. At the end of the year, there was no major dispute or lockout outstanding with the exception of a lock-out at one engineering firm. Most of the disputes in the course of the year were attributed to the dismissal of workers. The well-organised Unions were ready to challenge dismissals to protect the tenure of service of their members.
In the field of labour legislation, a number of Ordinances, Rules and Regulations were enacted, most notable of which were the Shop Assistants Employment Ordinance (No. 13 of 1957), the Clerks Employment Ordinance (No. 14 of 1957), and the Labour (Procedure—Reciprocal Provisions) Regulations, 1957.
By the first two of these Ordinances, two very large groups of workers, 1.e. shop assistants and clerks, have now been granted statutory rights and their minimum conditions of work are laid down by law. The two new Ordinances also make provisions for contracts of service, payment of salaries, holidays, sick leave, hours of work and overtime.
The Commissioner for Labour is empowered under these Ordin- ances to inquire into, and decide on, disputes concerning payment of wages and conditions of employment.
OCCUPATIONS AND WAGES 39
The Labour (Procedure—Reciprocal Provisions) Regulations, 1957, is important as it allows the Commissioner for Labour in Singapore to serve Labour Court Summonses and enforce Labour Court Orders in the Federation of Malaya. The Labour Court of the Labour Department can therefore pursue its cases even though the defendant in the claim moves to the Federation of Malaya.
The Labour Department, among its many other duties, advises the Government and prepares reports on matters affecting labour. Valuable assistance is given by the Labour Advisory Board of which the Commissioner for Labour is the Chairman. This Board is of a tripartite nature including independent persons, and repre- sentatives of employers and employees.
The Conciliation and Industrial Relations Section strives to promote good industrial relations. The Department steps in by invitation of either or both the parties and acts as mediator in the settlement of trade disputes. To safe-guard the safety, health and welfare of the workers, the Factories and the Labour Inspec- torates visit factories and places of employment frequently.
The Labour Court and the Workmen’s Compensation Section of the Department are active in the interests of the workers. The former instituted 370 cases on behalf of 1,154 workers, shop assist- ants and clerical workers. The total sum paid out was $70,811.49. In addition, 243 ‘Miscellaneous’ cases were looked into and claimants were paid a total of $23,561.11. Workers who are in- jured in accidents arising out of, and in the course of, their employment are entitled to Workmen’s Compensation. During the course of the year $508,943.83 was paid out to injured workmen.
In 1957 the cost of administration of the Labour Department amounted to $804,171.20.
EMPLOYMENT
The Labour Department carries out a half-yearly census of ‘workmen’ as defined in the Labour Ordinance. The definition of ‘workmen’ which excludes administrative, managerial and cleri- cal workers, shop assistants and domestic workers, limits the scope of the census. The two Ordinances, which came into force on Ist August, 1957, the Clerks Employment Ordinance (No. 14 of 1957), and the Shop Assistants Employment Ordinance (No. 13 of 1957), enable the Department to assist workmen from a wider range of employment than has been hitherto possible. It is hoped to collect returns of clerks, industrial clerks and shop assistants under these two new Ordinances in 1958.
40 SINGAPORE ANNUAL REPORT 1957
MANUAL WORKERS IN EMPLOYMENT
(in round figures) 1952 1953 1954 1955 1956 1957 March ala aes bd 122,500 123,000 119,400 124,600 123,300T September bes .. 123,800 123,600 120,100 117,500t 120,600t 123,000
* No comparable figure is available for March 1952.
t (i) 1,500 workers were on strike on 30th September, 1955. (ii) "800 workmen were on strike on 28th September, 1956. (iii) 260 workmen were on strike on 29th March, 1957.
The figures for 1957 in the Table indicate that the level of employment of manual workers has remained fairly stable. Out of a total of 194 industries in the Department’s register, 56 indus- tries, each of which employed over 400 workmen, were regarded as principal industries. Seventeen of the largest industries arranged in descending order of the number of workmen employed, are shown in the table on page 41.
It would appear from the Table that there is a slight fall in the number of workmen employed in the Shipbuilding and Repairing, and the Rubber Milling, Grading and Packing indus- tries. This can be attributed to the fluctuating demand in these industries for casual labour. Comparison of the figures for March and September 1957 indicates that the fall in employment was occasioned by a temporary slackness in the industries concerned.
The following Table shows a slight fall in the number of work- men employed in the Manufacturing Division during 1957. This fall in employment was due partly to a fall in employment in the Sawmilling industry which faced difficult times during the year, and partly to the fluctuation in the demand for casual labour.
DISTRIBUTION OF MANUAL WORKERS TO INDUSTRIAL DIVISIONS 1956 1957
Industrial Division March September March September
Agriculture, Forestry and Fish-
ing ... 1,875 1,828 1,719 1,609 Mining and Quarrying ... 1,789 1,908 1,913 1,927 Manufacturing... ... $7,332 55,010 55,011 53,547 Construction 15,122 14,277 14,455 14,991 Electricity, Gas, “Water and
Sanitary Services 7,024 7,058 7,167 7,283 Commerce 9,045 8,905 8,951 9,464 Transport, Storage and Com-
munication oye ... 20,474 20,333 21,614 21,810 Services* ae ... 11,984 11,236 12,433 12,368
Total ... 124,645 120,555 123,263 122,999
*It should be explained that the Industrial Division described as ‘Services’ includes community and business services, recreation services, personal services and those Govern- ment services which are not otherwise specified. Where it has been possible to classify Navy, Army and Air Force workmen more appropriately in some other division this has been done, e.g. Naval Base workmen engaged in shipbuilding and repairing are included in the Manufacturing Division.
the
PEOPLES AND PROFESSIONS
The shopkeeper.
The rubber-grader.
PEOPLES AND PROFESSIONS
Top—tThe farmer.
OCCUPATIONS AND WAGES
MANUAL WORKERS IN SEVENTEEN LARGEST INDUSTRIES
Industry
Shipbuilding and Repairing, in- cluding Marine Engineering
Building Construction
Road transport not elsewhere classified including cartage and haulage contracting
Harbours, docks, landing stages, lighthouses, tug, lighter and ferry services (Government and Harbour Board)
Manufacture of Machinery, ex- cept Electrical Machinery, including general, construc- tional and mechanical
engineering ae
Repair of motor vehicles and motor cycles neh
Tramway and Omnibus Opera- tors a oe
Other construction, repair and demolition work not else- where classified :
Rubber grading and packing ... Sanitary Services ...
Stevedore and lighterage ser- vices excluding Government and Harbour Board
Importers and exporters, com- Mission agents and commo- dity brokers not elsewhere classified on
Printing, book-binding and arts and engraving works i.
Air Force establishments not elsewhere classified oe
Medical, surgical, dental and other health services “ike
Electric light and power Rubber milling
1956 March September 10,934 10,597 8,951 8,268
4,381 4,363 4,807 4,981 5,300 5,102 4,591 4,684 4,561 4,341 4,182 4,281 4,091 4,085 3,363 3,278 3,371 3.538 2,523 2,714 2,599 2,505 2,290 2,283 2,364 2,341 2,102 2,224 2,214 2,001
* Preliminary figures.
1957
41
March September*
10,577 8,323
5,077
5,002
5,031
4,713
4,599
4,245
3,986 3,382
3,797
2,558
2,577
2,484
2,388 2,257 1,914
10,043 8,916
5,434
5,309
4,904
4,803
4,422
4,315
3,478 3,394
3,362
2,991.
2,608
2,347
2,302
2,242
1,913
42 SINGAPORE ANNUAL REPORT 1957
DISTRIBUTION OF MANUAL WORKERS TO EMPLOYERS
1956 March September
United Kingdom Departments 312 379 Government Departments 5,547 5,481 City Council Departments 9,732 9,826 Singapore Harbour Board 7,043 7,253 Singapore Telephone Board ... 636 821 Singapore Improvement Trust 491 507 Armed Services 21,615 21,249 Private Enterprises 79,269 75,039
Total .. 124,645 120,555
1957
March September 342 378 5,730 5,315 10,041 10,159 7,309 7,635 7164 805 519 543 21,160 20,274 - 77,398 77,890
123,263
122,999
The above Table indicates that, apart from a small increase in the number of manual workers employed by the City Council and Singapore Harbour Board and a slight decrease in the number employed by the Armed Services, the number of workers employed in September 1957 by the other groups of employers remained about the same as in the previous year.
NUMBER OF SINGAPORE WORKMEN RECRUITED TO WORK IN CHRISTMAS ISLAND
1957 ica Skilled
January on at _— — February See me 48 _ March ws ik 58 1
April ea oe 47 21 May eee Ae 24 14 June sie in 4 — July aa Bus 6 — August “ea ini 4 — September tet ve 7 — October ies ‘os 24 7 November iss ie 2 2 December See se 16 —
Total ... 240 45
EMPLOYMENT SERVICE
Semi-
Skilled
Clerical Domestic
Total
The primary function of the Employment Exchange is to assist employment-seekers to find suitable employment and to assist employers to find suitable employees. The services provided by the Exchange are free for all persons, but offer of employment is primarily given to those who are ordinarily resident in Singapore.
OCCUPATIONS AND WAGES 43
There are two Employment Exchanges, a central Exchange in the Ministry of Labour and Welfare at Havelock Road and a branch Exchange at 104 m.s. Chua Chu Kang Road, close to the industrial area along Bukit Timah Road.
The percentages of registrants in 1957 by race were as follows:
Race Percentage Chinese... ta 60 Malays/Javanese a 21 Indians a she 18 Others oe Fu 1
The following Table shows the average figures of new registra- tion, notification of vacancies by employers, and placing of registrants since 1953:
Monthly Monthly _— Monthly average
Year average of new average of _ of persons placed registrations notified vacancies in employment
1953... oh 1,641 867 588 1954 ... aoe 1,734 670 380 1955... te 1,381 622 368 1956 ... = 1,285 458 306 1957 ... ae 1,232 413 331
Juvenile registrants were especially hard to place due to the lack of employment opportunities.
UNEMPLOYMENT
Regular counts of the number of persons on the ‘live’ register maintained by the Employment Exchange showed that there were 8,858, 7,623, 7,730 and 8,091 registrants actually seeking employ- ment in the months of March, June, September and December. The monthly average of the number of persons seeking employ- ment (i.e. persons whose names were on the ‘live’ register) was 7,919, of whom an average of 2,210 received public assistance from the Social Welfare Department.
INDUSTRIAL TRAINING
Apprenticeship Training
The Joint Advisory Council for Apprenticeship Training was set up by the Minister for Labour and Welfare to advise him on the development, promotion, administration and general supervision of apprenticeship training in Singapore.
44 SINGAPORE ANNUAL REPORT 1957
The Council consists of eighteen members—a Chairman, one member representing the Ministry of Education, two members representing the Singapore Polytechnic, seven members represent- ing employers and seven members representing employees.
Seven Committees were set up under the Council covering the Building and Civil Engineering Industry, Electrical Engineering Industry, Mechanical Engineering Industry, Shipbuilding and Ship Repairing Industry, Motor Transport Industry, Fishing Indus- try and the Aircraft Industry. These Committees, composed of representatives of employers’ associations, professional engineers and organised labour in the fields of the industries mentioned, were responsible for devising detailed training schemes within the different industries. The Committees make recommendations to the Joint Advisory Council on the methods of selection of apprentices, the numbers to be trained in each trade and to conduct examina- tions.
During 1957, the Joint Advisory Council held eight meetings. Altogether forty-one meetings were held by the seven Committees.
By the end of the year, a standard form of apprenticeship agree- ment, recommended by the Committees, was approved by the Minister for general application. Apprenticeship training schemes which have been approved by the Joint Advisory Council, and which will be implemented in 1958 are as follows:
Industry Trades Aircraft Ground Engineers. Building and Civil Engineering Carpenter. Electrical Engineering Electrician (Installation); Cable ; Jointer; Electrical Switch-gear Erector. Fishing Fishing Hands (Trawlers). Mechanical Engineering Fitter (General Engineering); Turner; Blacksmith. Motor Transport Fitter (Motor Transport); Electri-
cal Mechanic (M.T.); Sheet Metal Worker.
Shipbuilding and Ship Repairing Fitter; Electrician; Plater; Ship- wright; Boat Builder.
The general terms and conditions which apply to practically all the approved apprenticeship training schemes provide for the apprentice to serve with an employer for a fixed period to learn the practical aspects of the skilled trade. The terms also
OCCUPATIONS AND WAGES 45
provide that the employer release the apprentice for one day per week to enable him to attend classes at an approved educational establishment for theoretical training.
Supervisory Training (T.W.I.)
Outstanding among the year’s supervisory training activities was the Asian Regional Seminar of the International Labour Office, which was inaugurated by the Chief Minister at the University of Malaya on 12th August. Forty-seven representatives from twelve Asian countries and Australia, together with a Panel of five I.L.O. experts from Canada, United Kingdom, India and the I.L.O., took part in this very successful seminar.
The Department continued to advise and train supervisors from industrial and commercial organisations, public and quasi-govern- ment and H.M. Service establishments, in the Training Within Industry system of supervisory training. Of the neighbouring ter- ritories, the Federation of Malaya, Hong Kong and Borneo as well as Christmas Island, sought and obtained information on the Singapore Scheme. During the year, two new programmes on ‘Union Job Relations’ and ‘Job Safety’, were introduced.
The cumulative total of those taking part in the scheme was as follows:
~ SSS Appreciation Courses for Senior Management - 23% 160 456 Institutes re sah ie 42* 113* Basic T.W.I. Courses as ian 1,026T 4,345T
* One trainer may be trained in any or all of the 3 ‘J’ (Job Relation, Job Method and Job Instruction) programmes. t One Supervisor may be trained in any or all of the 3 ‘J’ programmes.
The Supervisory Training Association, which was formed in 1955 by groups of people interested in T.W.I., continued its activities and the Labour Department remained in touch with the Association and assisted them in their activities wherever possible.
Training and Employment of Disabled Persons
The term ‘disabled person’ can be defined as any person who, by reason of a physical defect or infirmity, whether congenital or acquired by accident, injury, or disease, is, or may be expected to be, totally or partially incapacitated for remunerative occupation. The rehabilitation Scheme, introduced in 1954, is designed to
46 SINGAPORE ANNUAL REPORT 1957
render assistance in the form of training to disabled persons and to make them employable in remunerative occupation. During 1957 186 disabled persons registered from which 90 were selected for training at a cost of $38,000 as compared to 55 in the previous year. Approximately 45 per cent of those trained during the course of the year found employment. While the object of the Scheme is to place in employment the disabled persons who have been trained, the fulfilment of the object depends entirely on the good- will and sympathetic consideration of the employers who do not easily understand that a trained disabled person, though not as productive as an able-bodied worker, is capable of taking his part in production. A vigorous campaign was planned to seek the co- Aperation and understanding of potential employers.
The following Table shows the number of disabled persons trained in various trades:
No. of Trade Disabled Persons Trained
Basketry wee oe at 11 Carpentry _ sate ee 8 Compositor _.... oF a 1 Dressmaking 28 Embroidery Gardening Handicraft Printing
Poultry Farming Rattan Work Shorthand Shorthand (Braille) Tailoring Typewriting Telephone Operator
Weaving
Total
cy
OCCUPATIONS AND WAGES 47
CONDITIONS OF WORK
In accordance with the requirements of Convention No. 63 of the International Labour Organisation, a sample survey of average weekly earnings and hours of work in 56 principal industries was conducted in July 1957. About 85.7 per cent of the labour popula- tion in the Colony is employed in these 56 industries. The survey revealed that average weekly earnings increased by approximately 2 per cent, from $37.12 in 1956 to $37.98 in 1957. The average hourly earnings also rose slightly from 77 cents in 1956 to 79 cents in 1957, an increase of about 3 per cent.
The sample survey of 473 establishments conducted in July 1957 showed that the average number of hours worked per week by manual workers in the principal industries was 47.80, a decrease of 0.62 hours from the average for 1956. The number of working hours per week was 46-50 hours for about 60 per cent of the total number of manual workers.
The Labour Ordinance provides that no workman can be com- pelled to work more than 6 consecutive hours at a time, or more than 8 hours a day, or more than 44 hours per week. The hours of work for children and young persons are also regulated. Night work is uncommon and is usually found only in public utility undertakings.
According to the survey about 81 per cent of the undertakings worked a standard 8-hour day; about 26 per cent of them paid double rates and 46 per cent paid time-and-a-half for overtime work on normal working days. About 10 per cent paid less than time-and-a-half. Of the remainder, some paid piece-rates and some never worked overtime.
Of the undertakings in the sample about 62 per cent paid double rate for working on a weekly rest day; about 67 per cent paid double rate and about 2 per cent paid treble rate for working on public holidays. A 44-hour week was the standard for about 50 per cent of the undertakings; and in about 24 per cent a 48-hour week was worked. This indicates that the majority of workers now en- joy an 8-hour day and a 6-day week. The Labour Ordinance pro- vides for not less than double the ordinary rates of wages for work done by a workman on a weekly rest day and not less than one and a half times the ordinary rate of wages for overtime work done by a workman on an ordinary working day.
48 SINGAPORE ANNUAL REPORT 1957
Under the Labour Ordinance, a workman is also entitled to a paid holiday (or wages at not less than double rate in lieu) on each of the eleven holidays scheduled in the Ordinance. By agree- ment between the employer and the worker, any other day may be substituted for a scheduled holiday. In addition, a workman is entitled to 7 days’ paid leave for every 12 months’ continuous service with the same employer, such leave being in addition to the rest days and holidays to which the workman is entitled. A workman is also entitled to an aggregate of 28 days’ paid sick leave a year. Further, a female ‘workman’ on confinement is entitled to receive maternity benefits as provided in the Ordinance.
Under the Clerks Employment Ordinance, which came into force on Ist August, 1957 no ‘clerk’ can be compelled to work for more than 8 hours a day or 39 hours per week and no ‘industrial clerk’ for more than 8 hours a day or 44 hours per week. The Ordinance provides for not less than one and half times the rate of pay for overtime work done beyond the stipulated hours mentioned above. It also provides for 16 paid holidays for clerks and 11 paid holi- days for industrial clerks in accordance with the schedules in the Ordinance. For every 12 months of continuous service after Ist August, 1957, (the date of coming into force of the Ordinance) with the same employer, a ‘clerk’ is entitled to 14 days paid annual leave and an ‘industrial clerk’ to 7 days paid annual leave. In addition, both ‘clerks’ and ‘industrial clerks’ are entitled to an aggregate of 28 days’ paid sick leave per year provided they have served an employer for a period of no less than 12 months after the coming into force of the Ordinance.
The Shop Assistants Employment Ordinance, which came into force on Ist August, 1957 and repeals the Weekly Holidays Ordin- ance and the Seats for Shop Assistants Ordinance, confer similar benefits on shop assistants. It provides for an 8-hour day and a 44-hour week; over-time payment at not less than one-and-a-half times the ordinary rate of pay for work done over and beyond the stipulated working hours; a weekly rest day; 11 paid holidays as scheduled in the Ordinance; 7 days’ paid annual leave, and an aggregate of 28 days’ paid sick leave provided that in both cases the shop assistant has served the same employer for a continuous period of 12 months after the coming into force of the Ordinance.
The following Tables give the prevailing wage rates of selected occupations: | :
OCCUPATIONS AND WAGES
49
PREVAILING DAILY WAGE RATES OF SELECTED OCCUPATIONS (1957)
Occupation
SKILLED WORKERS
Bench Fitter
Welders (Gas; Electric)
Lathe Operators (Turners)
Boiler Makers
Moulder-Founders
Motor Fitter, Ist grade
Motor Fitter, 2nd grade
Carpenters
Bricklayers (Mason) ...
Steel Workers (Benders)
Electricians
Linotype Operators ...
Glass Blowers
(Benders)
UNSKILLED WORKERS General Labourers (M)
Labourers (Carriers) (M)
Labourers (M)
Labourers (F)
Carriers (M)
Checkers, Testers and Sorters (M and F) ...
Machine Attendants
(M and F)
Carriers (M)
Industry
Engineering Engineering
Engineering Engineering
Foundry Motor Works ...
Motor Works ...
Building Construction
Building Construction
Building Construction
Engineering
Printing Press ...
Glass Works ...
Engineering
Rubber Milling
Building Construction
Building Construction
Rubber Packing Rubber Packing Cold Drinks
Manufacture Sawmilling
Wage Rates per day
Minimum Average
$c.
5 00 417
5 00 3 90 4 00
6 00
4 00
6 00
5 00
3 30
3 75
4 20
$c.
6 09 6 45
7 26
6 30
~ ~] N
bo) > N
4 48
Maximum
$c.
13 05 10 00
13 33
50 SINGAPORE ANNUAL REPORT 1957
SINGAPORE COST OF LIVING INDEX NUMBERS (1939 = 100)
(a) Higher Income Group Standard
Weights June Dec.
Group 1939 1956 1956 ALL ITEMS — 243.1* 245.5 1. Food and Groceries... Seis 15.9 335.0 342.5 2. Liquors, Aerated Water and Tobacco 6.1 302.3 315.0 3. Servants... es es 17.0 295.0 295.0 4. Light and Water des ae 2.4 137.7 137.7 5. Transport ... aot ees 6.1 212.4 214.9 6. Education ... set Me 21.2 193.1* 192.3 7. Clothing... wise on 7.8 337.1 337.0 3. Entertainment and Recreation ‘xe 7.5 232.8 239.3 9. Rent aie saig sa 16.0 126.9 126.9
100.0 * Amended
(b) Clerical Workers’ Standard
Group nee gee Oe
ALL ITEMS — 313.1 322.1
1. Food and Groceries... .. 39.1 420.1 439.8 2. Tobacco... te ae 2.7 300.0 341.7 3. Servants... ae se AZS 295.0 295.0 4. Light and Water ce sie 4.5 184.6 178.8 $. Transport ... Sats ea 8.4 212.4 214.9 6. Education ... we — 8.7 191.4 196.3 7. Rent ate ies .. 16.0 116.2 116.2 8. Clothing... iu “ae 8.1 525.0 $22.4
June
1957
249.3 339.8 316.9 295.0 137.7 219.9 210.0 336.7 240.3 126.9
June 1957
320.6 434.9 341.7 295.0 182.7 219.9 195.1 116.2
$22.2
Dec. 1957
249.4 338.1 316.2 295.0 137.7 232.4 208.7 336.7 239.9 126.9
Dec. 1957
322.5 435.8 341.7 293.0 182.7 232.4 195.3 116.2
$28.1
OCCUPATIONS AND WAGES 51
AVERAGE MONTHLY RETAIL PRICES (selected foodstuffs)
Monthly Monthly Monthly Monthly
Article Unit Average Average Average Average Average
1939 June Dec. June Dec. $c. $c. $c. $c. $c. 1. Beef, stew or curry ... Kati 0 31 1 80 1 65 1 60 1 60 2. Mutton aes ..- Ib. 0 52 1 35 1 35 1 55 1 35 3. Pork (ist quality) ... Kati 0 36 2 33 2 36 2 68 2 6S 4. Fowls se ... Kati 0 32 1 68 1 63 1 57 1 45 S. Fowl’seggs__.... .. 10 0 28 1 28 1 35 1 23 1 27 6. Fish, Kurau _... ... Kati 0 40 2 01 2 35 2 55 2 91 7. Fish, Merah (Snapper) ... Kati 0 31 0 34 077 0 46 0 60
8. Fish, Tenggiri (Spanish Mac-
keral) aa .. Kati 0 28 i 21 2 00 1 43 1 51 9. Beans, long ee ... Kati 0 08 0 31 O 36 0 34 0 35 10. Beetroot sis ... Kati 0 12 0 50 0 40 0 45 0 47 11. Cabbage ~ ... Kati 0 08 0 5! 0 36 0 51 0 50 12. Carrots me ... Kati 0 11 0 43 0 38 0 47 0 38 13. Spinach (Bayam) ... Kati 0 04 0 23 0 29 0 23 0 25 14. Bananas (pisang hijau) sve 10 0 10 0 70 0 70 0 60 0 60 15. Limes, small... ... Kati 0 05 0 26 0 26 0 29 0 36 16. Papaya ise ... Kati 0 0S 0 23 0 24 0 22 0 23 17. Onions, large... ... Kati 0 06 0 21 0 29 0 30 0 28 18. Coconut Oil _... ... Kati 0 08 0 33 0 38 0 58 0 38 19. Lard “iss .-. Kati 0 24 0 80 1 00 0 95 0 90 20. Rice* = ... Kati - 0 22 0 23 0 23 0 27 21. Sugar sia ... Kati 0 07 0 24 0 34 0 35 0 26
* Average weighted retail price of lowest grade Siam whole rice and Siam partly broken rice.
LABOUR COURT
The Commissioner for Labour has statutory powers under three Ordinances to hear disputes and give decisions which have the force of District Court judgments. Appeals from these decisions can be taken to the High Court. These disputes are disposed of by an experienced officer with a minimum of delay and incon- venience to the parties. There is no fee for this service.
Matters in dispute arising under the Labour Ordinance (No. 40 of 1955), the Shop Assistants Employment Ordinance (No. 13 of 1957) and the Clerks Employment Ordinance (No. 14 of 1957) deal, in the main, with wages, holidays, rest days, annual leave, and overtime.
52 SINGAPORE ANNUAL REPORT 1957
During the year, 302 of the 370 cases instituted under the thice Ordinances were under the Labour Ordinance; the remaining 68 were under the other two Ordinances which, at the end of the year, had been in force for just five months. A sum of $70,811.49 was paid into Court on behalf of successful complainants. Officers of the Labour Department also dealt with 253 cases which did not fall strictly within the statutory jurisdiction conferred by the three Ordinances. A sum of $23,561.14 was recovered for payment to complainants in these cases. In such cases, the Commissioner for Labour simply acts as adviser or arbitrator.
COMPARATIVE DETAILS OF CASES
Labour cases instituted during the year
*Miscellaneous’ _cases dealt. with during the year
Shop Assistant cases instituted for the period 1st August to 31st December. 1957 is beng sad
Clerks Employment cases instituted for the period Ist ee to 3i1st December, 1957
Total
1954 586
233
819
1955 393
587
980
1957 302
243
COMPARATIVE DETAILS OF AMOUNTS RELATING TO LABOUR CASES
1954 1955 $ G, =-§ Cc. Total sums paid into court for Labour Cases for the. 2 2 year . 98,299 92 59,925 00
Total sums _ recovered in ‘Miscellaneous’ Cases
Total sums recovered for _ Shop Assistant under the Shop Assistants maa a ment Ordinance —
Total sums recovered for Clerks under the Clerks Employment Ordinance ... —
16,011 45 57,641 51
1956
$
Cc.
1957 $ c.
78,762 00 65,658 90
34,251 65 23,561 19
2,950 59
2,202 00
Total ... 114,311 37 117,566 51 113,013 65 94,372 68
OCCUPATIONS AND WAGES 53
TRADE UNIONS
The number of small unions in Singapore continued to rise. The general pattern of union development closely followed that of previous years. Most of the new unions established were small and no serious attempts were made towards either forming larger unions or merging existing ones. The attempts at amalgamation begun in 1956 by the Bus and the Harbour Board Workers’ Unions fell through. Internal administration of unions still left much to be desired. The records and the books of a number of unions were neither up-to-date nor systematically kept. In a few cases, it was not even possible to tell from them with any degree of accuracy the total number of members or the number of those paying their subscriptions regularly.
The certificate of the Singapore Factory and Shop Workers’ Union which had a membership of about 30,000, was cancelled on the grounds that the union had been used for purposes inconsistent with its objects and rules, and that its funds were expended on objects not authorised by its rules. In the middle of the year, the Registrar had reason to believe that certain unions were engaged or about to engage in such activities as group-singing of songs of Com- munist origin and staging plays designed to bring discredit to the Police or the Government. The Registrar found it necessary to warn the officers of one union against engaging in such activities.
During the year, 22 unions were added to the register and 10 removed. The number of unions on the register at the end of the year was 277 compared with 265 at the end of 1956. Of those which were removed from the register, the certificates of 4 were withdrawn upon the voluntary dissolution of the unions, the certi- ficates of 5 were cancelled as the unions had ceased to exist, and that of the remaining one, for contravention of the Trade Unions Ordinance. In addition, 8 applications for registration were pend- ing at the end of the year. Employee unions increased from 205 to 216 but their aggregate membership fell from 157,216 to 140,710. The fall in membership was mainly due to the closing of one large union. Employer unions increased by 1 to 56, accompanied by an increase of membership from 5,921 to 6,422. The number of federations remained at 5. Paid-up members of employee unions were estimated to be 70 per cent of the total compared with 60 per cent in the previous year.
According to the audited accounts furnished by unions with their annual returns, the income and expenditure for 1956/57 of 186 employee unions were $1,038,755.66 and $899,306.94, and
54 SINGAPORE ANNUAL REPORT 1957
those of 54 employer unions were $614,736.33 and $528,635.15, respectively. Income of employee unions was derived mainly from contributions and voluntary donations, and expenditure consisted of establishment expenses $175,069.34 (19.5 per cent), salaries and allowances of officers $234,508.41 (26 per cent), rent, rates and taxes $103,585.80 (11.5 per cent), stationery, printing and postage $62,331.02 (7 per cent), auditors’ fees $17,980 (2 per cent), trade disputes, legal expenses and compensation $22,489.29 (2.5 per cent), benefits $12,567.68 (1.4 per cent), social, educational, sporting and charitable activities $85,676.52 (9.5 per cent) and other outgoings $185,098.88 (20.6 per cent).
Below are Tables showing the growth of employee unions and the distribution of union members by industry:
Unions Unions Dissolved Unions Membership
Year Registered or Cancelled Remaining at at end
during year during year end of year of year
1947 om 118 — 126 96,060
1948 spe 10 18 118 74,367
1949 es 9 34 93 47,301
1950 i 6 8 91 48,595
1951 eas 18 2 107 58,322
1952 ant 19 4 122 65,831
1953 se 20 9 133 73,566
1954 oe 12 9 136 76,452
1955 ws 61 10 187 139,317
1956 i 27 9 205 157,216
1957 wee 20 9 216 140,710
Employer Unions Employee Unions Industrial Division No. of Member- No. of | Member-
Unions ship Unions ship
Agriculture and Fishing ... — — 2 479
Mining and Quarrying ... 1 11 1 317
Manufacturing ... bad 14 «585 47 23,961
Construction... ae 1 68 6 5,132 Electricity, Gas, Water and
Sanitary Services sue 1 21 6 4,946
Commerce ce oe 18 1,622 23 11,453 Transport, Storage and Com-
munications ... ei 10 1,995 49 38,279
Services au ine 10 2,030 72 47,515
Mixed eke a 1 90 10 8,628
Total ... 56 6,422 216 140,710
OCCUPATIONS AND WAGES 55
Joint Consultation
During the year, Joint Committees continued to function in the following Government Departments: (1) The Customs Department. (2) The Medical Department. (3) The Postal Services Department. (4) The Immigration Department. (5) The Prisons Department. (6) Department of Meteorological Services. (7) Department of Broadcasting. (8) The Civil Defence Department. (9) The Telecommunications Department.
The Singapore Civil Service Joint Council, a permanent negotiat- ing body for all categories of Government servants, was active throughout the year.
In the three Armed Services, periodic meetings of joint councils were held at intervals of three months under permanent constitu- tions. In the Singapore Harbour Board, joint councils dealt with subjects connected with conditions of service while sub-committees with permanent constitutions represented employers and employees in the lighterage industry, Metal Box Co. of Malaya Ltd., Yeo Hiap Seng Sauce Factory and some Chinese bus companies. In many industries, there were Works Committees without constitu- tions, meeting whenever necessary to deal with problems that had arisen, e.g. in the Singapore Traction Company.
Industrial Relations
The policy of the Government is to promote the growth of healthy trade unions and render assistance whenever possible in the establishment of negotiating machinery. For those industries, which possess inadequate negotiating machinery of their own, the Wages Councils Ordinance of 1953 provides for minimum wages and conditions of employment to be laid down by Wages Coun- cils, when this is shown by formal enquiry to be necessary. If a trade dispute arises which cannot be settled by negotiation or conciliation, the Commissioner for Labour can, with the consent of both parties, refer the matter under the Industrial Courts Ordin- ance of 1940, either to the Industrial Court or to arbitration for settlement. The same Ordinance also provides for the reference of a trade dispute by the Minister for Labour and Welfare to a Court of Inquiry. The Court is usually asked to inquire into the causes and circumstances of the dispute and submit a report to be laid before the Legislative Assembly, with recommendations for settlement,
56 SINGAPORE ANNUAL REPORT 1957
if any. The post of the Trade Union Adviser was abolished in the middle of the year, and his functions were assumed by the Industrial Relations Section.
Trade Disputes
There was a slight decrease in the number of strikes and lock- outs in 1957 as compared with 1956, and the total number of man-days lost in 1957 was the lowest as compared to the previous three years. The following tables show the man-days lost over the past four years and causes of strikes:
NUMBER OF NEW STRIKES EACH MONTH AND NUMBER OF MAN-DAYS LOST 1954—57
Month Number of New Strikes
and/or Lock-outs Number of Man-days Lost 1954 1955 1956 1957 1954 1955 1956 1957 January = 2 2 2 = 513 200,208 8,183 February ... 2 2 2 1 4,314 765 60,920 68 March 1 1 3 3 1,484 163 24,936 3,556 April 1 8 6 2 14,951 7,291 25,463 3,300 May — 25 3 5 -_ 53,590 23,260 6,891 June — 98 4 — = 155,099 24,060 11,628 July 1 62 5 7 93,630 62,992 26,117 36,4924 August... a 27 2 1 _ 166,066 20,095 26,528 September 1 10 1— 7,326 65,796 21,906 4,000 October = 2 ee 5 10,478 125,707 14,136 1,447 November 1 24 #— 1 2,787 156,641 7,734 3,717 December ... 1 4 i we 236 =: 151,731 5,620 3,539 Total ... 8 275 29 27 135,206 946,354 454,455 109,349} CAUSES OF STRIKES AND/OR LOCK-OUTS, 1957 Increase ee Conditions Other Month of wages Dismissal oF Service SYMPathy Causes January — 2 — _ — February — | — — -—— March 1 2 — —— — April 1 1 ~—— —— — May 1 3 — — 1 June — — — —_ — July Z 1 — — 4 August — 1 — — — September — — — -—— — October 1 1 — I 2 November ... — — — _ 1 December... — — — — — Total... 6 12 — 1 8
N.B.—In many disputes there were several different issues. For the purposes of this table the most important issue has been used to classify the cause of the strikes or lock-outs.
OCCUPATIONS AND WAGES 57
The only strike carried over from 1956 to 1957 was that called by the Malayan Airways Local Employees’ Union on 22nd December, 1956, involving a claim for a good-will bonus. The 22-day strike was called off on 13th January, 1957, after the Minister for Labour and Welfare had promised to set up a Court of Inquiry to investigate into the causes and circumstances of the dispute. On 7th May, 1957, the employees received an ex-gratia payment from the Malayan Airways Ltd. as suggested by the Minister, with the result that the Court of Inquiry was not instituted.
Two Courts of Inquiry instituted in 1956, completed their find- ings and published their reports in 1957. The first Court, appointed on the 21st September, 1956, to enquire into the dispute at Fred Waterhouse Co., Ltd., published its Report on 28th January, 1957. The Court recommended that a new election of officers of the Fred Waterhouse Workers’ Union should be held by secret ballot, and that the Company recognise the reconstituted Union. The Court did not recommend the re-employment of the Union’s President.
The other Court of Inquiry, set up on 4th October, 1956, to enquire into the dispute between the Singapore City Council and the Singapore City Council Labour Unions Federation, made recommendations in its Report of 2nd February, 1957, on re-grading certain sections of tradesmen and labour, and on adjust- ing rentals in their quarters. However, both parties realised that some of the recommendations were not clear; and up to the end of the year, the Federation was still seeking clarification of the doubtful points.
During the year, two disputes were referred to Courts of Inquiry. The first dispute was sparked off by the alleged dismissal by the Singapore Pilot Association of a serang, who was the Vice- President of the Malaysian Mariners Association. The Court of Inquiry published its findings in October 1957, stating that the serang, of his own volition, terminated his contract of service with the Singapore Pilot Association. The other dispute involved the ‘work-to-rule’ and ‘go-slow’ techniques adopted in June by the Singapore Harbour Board Staff Association as a protest against the Singapore Harbour Board’s action in withdrawing the pass issued to its General Secretary. The Court completed its findings in August, suggesting, inter alia, that the pass should be re-issued to the General Secretary, subject to such conditions as might be agreed by the parties concerned, and
58 SINGAPORE ANNUAL REPORT 1957
that the former employees of the Board dismissed during the ‘go- slow’ period should be speedily re-employed.
Four other important strikes broke out during the year involv- ing two big bus companies, the Singapore Telephone Board and the Customs Department. The disputes in the two bus companies, which arose from the managements’ refusal to reinstate 82 workers who were members of the Singapore Bus Workers’ Union, were settled after a strike of 87 days in the case of the Tay Koh Yat Bus Company, and 110 days in the case of the Hock Lee Amalgamated Bus Company. The strike at the Singapore Tele- phone Board, involving about 1,060 workers, arose mainly over the question of a pass entitling the General Secretary of the Singa- pore Telephone Board Employees’ Union (who was also General Secretary of the Singapore Harbour Board Staff Association) to enter the Board’s premises. When the management had refused to issue the pass, the Union adopted a ‘go-slow’ technique and finally on 7th July called a strike which, although lasting 44 days, achieved practically nothing. The revenue officers in the Customs Depart- ment went on strike for seven days in July because of the alleged delay in the conduct of negotiations on conditions of service on the part of Government. The strike was called off on the inter- vention of the Minister for Labour and Welfare.
_ At the end of the year, there was no major dispute or strike out-
standing with the exception of a lock-out at a Chinese engineering firm, involving 23 workers, who were members of the Singapore General Employees’ Union, a successor to the dissolved Singapore Factory and Shop Workers’ Union.
WEEKLY HOLIDAYS IN SHOPS
The Labour Inspectorate among other duties continued to execute the provisions of the Weekly Holidays Ordinance (Chapter 156 of 1950) which was repealed and incorporated into the Shop Assistants Employment Ordinance.
Under the Weekly Holidays Ordinance shopkeepers were given the choice of closing their premises on any day of the week thus having a choice of one in seven days. The day for closing could not be altered more often than once in three months. Up to 31st July, 1957, the Weekly Holidays Ordinance covered 17,200 shops. Of these 68 per cent chose to close on Sundays, 9 per cent on Mondays, 7 per cent on Tuesdays and Fridays, 5 per cent on Wednesdays and 2 per cent on Thursdays and Saturdays. The
OCCUPATIONS AND WAGES 59
Department received 183 notifications requesting a change in the closing day. The Commissioner for Labour authorised temporary changes of closing days to accommodate national festivals like Christmas, New Year, Chinese New Year, Hari Raya or Deepavali.
Section 35 of the Shop Assistants Employment Ordinance Stipulates that every shop not included in any class of shops exempted shall remain entirely closed on either Sunday or Friday as the employer may choose. The employer has to specify on a blue form for Sunday or on a yellow form for Friday the day in the week on which his shop is closed and exhibit such notice permanently in a conspicuous place in the shop. The day chosen cannot be altered without the approval of the Commissioner for Labour.
From ist August, 1957, to 31st December, 1957, 11,000 counter- foils of closing day notifications were received. 70 per cent of the shops chose to close on a Sunday and 30 per cent on a Friday.
Many shop-keepers still attempt to contravene the provisions of the Ordinance but alertness on the part of the Inspectorate led to the institution of 253 successful prosecutions. Of these prosecu- tions 177 were for first offences, 53 for second offences, 19 for third offences and 4 for fourth and fifth offences. As in previous years, it was found that many prosecutions could not be success- fully pursued as shop-assistants and patrons of the shops were reluctant to give evidence.
Shop Assistants Employment Ordinance, No. 13 of 1957
Clerks Employment Ordinance, No. 14 of 1957
The first ordinance applies to all shop assistants, 1.e. any person -employed in or about the business of a shop whose salary is not more than $400 per mensem. The second ordinance applies to all clerks and industrial clerks, i.e. any person employed in or about the business of an office whose salary is not more than $500 per mensem.
These new ordinances govern contracts of service, payment of salaries, holidays, hours of work and overtime, the keeping of registers and the power to make inspections.
The Commissioner for Labour as in the Labour Ordinance, No. 40 of 1955 is also empowered to inquire into and decide any dispute between an employee and his employer and make orders without limitation of the amount. In making the provisions of the new Ordinances known as widely as possible, officers of the
60 SINGAPORE ANNUAL REPORT 1957
Department received the co-operation of the Information and Broadcasting Departments. A three-month educative campaign was launched by the Department, in which seven Labour Inspectors visited 5,446 commercial establishments. The provisions of the new Ordinances were explained, queries from employers and employees were answered on the spot and 83,000 pamphlets in English and the vernacular languages were also distributed free of charge.
SAFETY, HEALTH AND WELFARE
The Factory Inspectorate functions as a unit under the Senior Inspector of Factories. He administers the Machinery Ordinance (Cap. 223) and by virtue of its authority the Senior Inspector of Factories has jurisdiction over all factories using machinery operated by power, i.e. boilers, generators, plant installations, gas- holders, vulcanisers, etc. Besides other duties the Senior Inspector of Factories is empowered to issue Certificates of Fitness to fac- tories to operate and to collect fees for the inspections under- taken. The total revenue, collected by the Machinery Section in the course of the year was $83,394. The expenditure was $86,475.12.
Industrial Development
With the additional power available from the new Pasir Panjang Electric Power Station, additional units of powered machinery were installed by business enterprises, who realised that increased mechanisation compensates for increasing labour costs.
During the year 1,147 installations were accounted for, com- pared to 1,006 in 1956. There were 17 new gasholders. Twelve manual woodworking factories have become mechanised. The year saw the advent of mechanical washers and selectors in the work- ing and sorting of pepper which traditionally had been a manual process. Six new coffee processing factories which have installed machinery to take the place of manual labour have been registered. The preparation of dough is now being done by mechanical kneaders, instead of by hand.
The Senior Inspector of Factories who also is the Chief Inspector of Machinery requires that powered machinery in indus- try is adequately fenced and guarded in the interests of safety and the prevention of accidents. He tenders advice and gives his assist- ance to operators in the design and fixing of protective fencing and guarding.
OCCUPATIONS AND WAGES 61
During the year the following accidents were investigated :
Cases Finger injuries necessitating amputation ae 13 Major lacerations and flesh wounds ... ok 15 Minor lacerations and flesh wounds ... 9 Fractures 2 Burns and scalds 2 Total... 41
There were nine prosecutions during the year, in all of which, convictions were obtained. The total fines imposed for contraven- ing the Machinery Ordinance (Cap. 223) was $1,150.
The Chief Inspector of Machinery and Senior Inspector of Fac- tories is also the Chairman of the Board of Examiners. Engine drivers and boiler attendants are subject to examination and if successful are awarded Certificates of Competency by the Board. During the course of the year, it was possible to conduct examina- tions in Malay and two Chinese dialects. The record number of 168 candidates who applied to take the examinations, is attributed to the increased demand for engine drivers and boiler attendants.
As the Machinery Ordinance (Cap. 223) was found inadequate to meet the needs of industry the drafting of a new Factories Ordinance was begun.
Workmen's Compensation
Under the Workmen’s Compensation Ordinance (Chapter 157 of 1955) which is administered by the Labour Department, employers are required to pay compensation to workmen who suffer indus- trial injury or death, caused by accidents arising out of, and in the course of, employment. By ‘workman’ is meant all those who are engaged in manual labour irrespective of their total earnings, and other non-manual workers whose earnings do not exceed $400 a month. The maximum compensation payable on death is $7,200. For total permanent disablement it is $12,780. For temporary dis- ablement, the maximum half-monthly amount that can be claimed is $65.
Most cases are settled by the Labour Department through the mutual agreement of the parties concerned. When the workman’s
62 SINGAPORE ANNUAL REPORT 1957
claim is not admitted by the employer, it is referred to the Arbitra- tor who can make an order and enforce compliance. The Commissioner for Labour, who is the Commissioner under the Workmen's Compensation Ordinance, has no power to make an order; he can only assent to an agreement made by both parties. It is noteworthy that out of the 7,051 cases with which the Labour Department dealt in 1957, only two cases were referred to the Arbitrator.
Workmen's compensation obtained through the Department in 1957 totalled $508,343.83, which was made up as follows:
$ c.
Payments in fatal cases aie a 134.970 94 Payments in cases of permanent disablement ... 247,408 67 Payments in cases of temporary disablement ... 125,964 22 508.343 83
In addition, a total sum of $20,600 was obtained as ex-gratia payments.
In the case of fatal accidents the Labour Department administers the claim-monies paid through it, by means of Trustee Post Office Savings Bank Accounts. During 1957, 41 new accounts were opened for dependants of deceased workmen with deposits total- ling $102,833; and at the end of the year, the value of deposits in all accounts, including those from previous years not yet fully disbursed, was $165,503.76. In addition, $8,602.28 was paid to dependants in China and a further $22,426.80 was paid to depen- dants in India.
COMPARATIVE TABLE OF INDUSTRIAL ACCIDENTS ARISING OUT OF AND IN THE COURSE OF EMPLOYMENT, 1954—57
Number of Cases 1954 1955 1956 1957
Fatal accidents... a 54 57 54 54 Permanent disablement (over
20% disablement) ae 50 26 24 42 Permanent disablement (under
20% disablement) bee 98 148 182 125 Temporary disablement Sve “Ss0:10 4.173 6.207 6,830
Total ... 3,778 4,404 6,467 7,051
OCCUPATIONS AND WAGES 63
The above Table clearly shows that the number of accidents reported has increased from year to year. This is an indication that both workmen and employers are becoming more and more conscious of their rights and obligations under the Workmen’s ' Compensation Ordinance.
Welfare
Destitute and unfit South Indian labourers and their families are assisted to return to India by the Labour Department, half the cost being borne by the Government and the other half by the Indian Immigration Fund. South Indian labourers who retire through age or sickness are also given free passages to India. The number of South Indian labourers repatriated during the year was 56 as compared with 127 in 1956.
IV Public Finance and Taxation
HILE 1957 has not been quite as good a trading year as 1956,
the general level of overseas trade continued to be high, and revenue remained buoyant. Excluding Malayanisation payments, there was a small budget surplus of $3.1 millions. The financial position was therefore sound with a small public debt and a general revenue balance in liquid form, equivalent to approximately 34 months’ revenue.
In the 1957 Budget, it was estimated that revenue, including the proceeds of increased taxation on customs duties, income tax and stamp duties would amount to $235.9 millions. Actual receipts how- ever exceeded this estimate, and total revenue for the year amounted to $241.5 millions. This compares with $230.9 millions in 1956 and $208.8 millions in 1955. The main items of revenue are income tax, and customs duties on petroleum, liquors and tobacco. In 1957 there was a levelling off of receipts from income tax, and $65.2 millions were collected ws compared with $68.3 millions in 1956, a shortfall of $3.5 millions on the expected figure for 1957, which reflects a slight falling off in the profits of smaller companies in 1956 as compared with 1955. Revenue from customs duties, however, rose from $82.3 millions in 1956 to $93.0 millions in 1957. Revenue from all other sources, except Class V (Miscellaneous Receipts), exceeded that in 1956, but most of the increases were small.
The estimated total expenditure in the Budget for 1957 was $254.6 millions. Actual expenditure in 1957 amounted to $238.4 millions, a shortfall of $16.2 millions, which was due mainly to expenditure of about $8 millions less than the estimates on Educa- tion and of about $3 millions less than the estimates on the Defence Services and on Medical and Health Services. The main reason for expenditure below the estimates was delay in the completion
PUBLIC FINANCE AND TAXATION 65
of development projects, which in turn held up purchases of equip- ment, and recruitment of staff.
The following table summarizes the revenue and expenditure position of the Colony over the past three years :—
1955 1956 1957 $ $ $ Revenue shad 208,833,167 230,942,417 241,531,065 Expenditure ... 197,911,662 222,518,924 238,432,454 + 10,921,505 + 8,423,493 + 3,098,611
Details of the revenue and expenditure for the years 1955 to 1957 are given in the statement on pages 72 and 73.
Before 1955 all expenditure from capital works was shown under the Head: Public Works Non-Recurrent in the Ordinary Estimates of Revenue and Expenditure. Expenditure under this item was $6.6 millions in 1951, $8.1 millions in 1952, $10 millions in 1953, and $14.6 millions in 1954. In 1955, however, Development Estimates were framed, and funds amounting to $36 millions were provided from the Development Reserve, augmented by a contribution of $20 millions from revenue, and $5.9 millions from Colonial Develop- ment and Welfare Funds. Actual expenditure amounted to $45.5 millions against an estimate of $60.6 millions, due to difficulties in obtaining and clearing sites for construction and to delays in the delivery of essential materials. The balance remaining in the Development Reserve Fund on Ist January, 1956, was $29.2 millions. In 1956 the Development Reserve was augmented again by a contribution of $20 millions from revenue, and by $1.5 millions from C.D. & W. Funds. In 1956 expenditure amounted to $33.5 millions against an estimate of $53.6 millions, due again to a lack of suitable sites and delays in building construction. In 1957 a con- tribution of $20 millions was again made from revenue for develop- ment and C.D. & W. grants amounted to $0.96 million. In 1957 the estimates envisaged expenditure on general development (including Colonial Development and Welfare Fund projects) amounting to $65.96 millions. As in the past, difficulty was experienced over the acquisition, clearance and preparation of sites, and there was there- fore again substantial under-expenditure on general development. Actual expenditure amounted to $39.51 millions. On 31st Decem- ber, 1957, the Development Fund amounted to $24.66 millions.
66 SINGAPORE ANNUAL REPORT 1957
FINANCIAL ADMINISTRATION
The Treasury is responsible for the administration of the finances of the Colony. Under its control are the main revenue collecting departments of Income Tax, Customs and Excise, Estate Duty and Stamp Duty.
Before the beginning of each financial year, an Annual Appro- priation Bill is introduced into the Legislative Assembly. The Bill is debated in the Committee of the whole Assembly before it is passed. During the ensuing financial year, whenever supplementary provision is required, financial motions are placed before the Assembly. There motions are debated in Committee of Supply and passed by the Assembly. The supplementary votes approved are subsequently incorporated in a Final Appropriation Bill which is introduced as soon as possible after the end of the year.
An Estimates Committee is appointed under the Standing Orders of the Legislative Assembly. The function of this Committee is to examine the estimates of expenditure contained in the schedule of the Appropriation Bill and to suggest the form in which they might be presented or to report on any economies consistent with Government policy which might be affected. The Estimates Com- mittee is not a policy-making body, but is only concerned with the details of expenditure.
Expenditure, sanctioned during the year by the Appropriation Bill and financial motions, is audited at the end of the year by the Director of Audit. The accounts of expenditure and the Report of the Director of Audit are then presented to the Public Accounts Committee whose duty it is to examine the accounts to ascertain that expenditure has been incurred in accordance with the Estimates and that full value has been obtained for sums voted to departments.
PUBLIC DEBT
The total Public Debt of the Colony is small and adequate pro- vision continues to be made to service it. Provision for sinking fund contributions and payment of interest in 1957 amounted to $6.48 millions which was about 2.7 per cent of the total revenue of the Colony. No loans were raised by the Singapore Government during the year. A statement of Assets and Liabilities appears on pages 74 and 75.
PUBLIC FINANCE AND TAXATION
PUBLIC LOANS
Description
(i) S.S. 3% Loan 1962/72 {ii) S.S. 3% War Loan 1952/59 ... diii) S.S. 3% War Loan 1953/60...
Total, S.S.
(iv) Singapore 3% Rehabilitation
Loan 1962/70
Total, S.S. and Singapore
W@ Rerevahe by Singapore and Penang Harbour Boards by whom charges for interest and Sinking Fund are paid.
Amount
$ 30,000,000
25,000,000 10,000,000
65,000,000
50,000,000
115,000,000
Interest payable
15th April 15th October Ist April
Ist October 15th January 15th July
15th January 15th July
67
Gi) and (iii) totalling $35,000,000 represent free gifts to H.M. Government for the osecution of the War. All charges for interest and Sinking Fund are payable
m the General Revenue and Assets of
received from the Federation of Malaya and North Borneo.
Civ) This loan was intended to provide funds to meet extraordinary mitments arising out of the enemy occupation of Malaya or incidental to the economic rehabilitation of the Colony.
TAXATION
the Colony, but contributions are
financial com-
As in past years, taxation has been the largest source of revenue. In 1957 the yield from taxation accounted for approximately 74 per cent of the Colony’s total revenue. Of this, 26.99 per cent was derived from income tax and 40.6 per cent from Customs duties. The following table shows the yield from taxation for 1957 com-
pared with 1955 and 1956 :—
REVENUE FROM TAXES
1956 $
1957 $
1955 $
Entertainments 5,236,054
Estates 5,990,388
Income Tax 57,779,554
Liquors 23,242,669
Petroleum 18,320,504
Stamps 1,954,619
Tobacco 33,809,860 Totalisator Bets and
Sweepstakes 3,909,063
Total 150,242,711
5,982,168 4,986,789 68,305,986 26,779,592 21,267,434 1,991,724 34,287,104
4,060,879
167,661,676
6,302,143 5,101,769 65,208,273 28,130,326 25,593,852 2,501,594 39,313,190
5,752,413
177,903,560
68 SINGAPORE ANNUAL REPORT 1957
Income Tax
Income Tax was introduced in accordance with the provisions of the Income Tax Ordinance on January Ist, 1948. The depart- ment responsible for making collections is a Pan-Malayan depart- ment which is controlled in Singapore by the Comptroller of Income Tax.
The tax is levied on incomes accruing in or derived from the Colony, or received in the Colony from outside sources. Companies are chargeable at the rate of 30 per cent, and resident individuals are charged on a sliding scale with personal allowances as shown in the table on page 69. In cases where children are maintained and educated outside Malaya, these allowances may be increased up to double the amounts shown in the table. Deductions are also allowed in respect of life assurance premia and contributions to approved pension or provident funds. Non-resident individuals are chargeable at 30 per cent without these allowances although British subjects or British protected individuals may be entitled to a deduc- tion of proportionate allowances. Double taxation relief arrange- ments are in force with the Federation of Malaya, where income tax is levied at the same rates as in the Colony, and with the United Kingdom, Sweden, Denmark and Norway.
A statutory body known as the Malayan Board of Income Tax has been constituted to perform and exercise such duties and powers as are conferred upon it under the provisions of the Ordin- ance. In addition, it considers and decides upon such matters arising out of the provisions of the Ordinance as may be referred to it by either the Government or the Comptroller-General of Income Tax.
RATES OF TAX ON INDIVIDUALS (per annum)
(Note:—These rates are effective from Ist January, 1957)
Chargeable Income $ Rate of Tax On the first a as 1,500 5 per cent On the next she ats 500 6 per cent On the next bak Le 1,000 7 per cent On the next vase ied 2,000 8 per cent On the next es ei 2,000 10 per cent On the next ve Bae 3,000 12 per cent On the next oe ie 5,000 15 per cent On the next ae oan 20,000 20 per cent On the next es ca 10,000 25 per cent On the next es a 5,000 30 per cent On the next ne 5,000 35 per cent
On every dollar exceeding ... 55,000 40 per cent
PUBLIC FINANCE AND TAXATION 69
PERSONAL ALLOWANCES (per annum)
$ Unmarried person tee ae —_ 3,000 Married couple ie ae aa 5,000 Married couple with 1 child re eee 5,750 Married couple with 2 children _... ae 6,250 Married couple with 3 children _... as 6,750 Married couple with 4 children _.... hed 7,050 Married couple with 5 children _... soe 7,350
Thereafter $200 per child up to a maximum of 8,150
Customs and Excise Duties
Situated at the junction of the main sea routes in South-East Asia, Singapore is essentially a free port. Duties are collected only on intoxicating liquors, tobacco and petroleum intended for domestic consumption under the Customs Ordinance (Cap. 160). All other goods enter free.
The Customs Department of Singapore is divided into 3 branches, which deal with revenue collection and the prevention of smuggling. 6 sub-stations and 18 examination stations as well as bonded warehouses for the storage of dutiable tobacco and liquors are maintained.
Full and preferential duties are imposed on imported liquors and tobacco at the time of their release for local consumption. There are also excise duties on intoxicating liquors distilled locally, or prepared in bond and released for local consumption. Samsu, beer and stout are the only intoxicating liquors made locally.
The scale of duties on intoxicating liquors and tobacco remained unchanged throughout the year. The duty on petrol was increased from 80 cents to $1 per gallon on 4th December but the duty on kerosene continued to be levied at 5 cents a gallon. Although no duties are charged on heavy oils, a special tax is levied under the provisions of the Customs Ordinance on motor vehicles which are equipped with engines using heavy oil or diesel oil as fuel, or which are fitted with producer gas attachments.
Analytical work required by the Customs Department, mainly in connection with the assessment of duty on intoxicating liquors and petroleum, is carried out by the Department of Chemistry.
The prevention of smuggling by the Customs Department is described in Chapter XIII.
70 SINGAPORE ANNUAL REPORT 1957
CUSTOMS TARIFF
DUTIES ON INTOXICATING LIQUORS
Duties Unit Full Prefer- Excise ential
Sc S$ $c. {a) Rectified spirit ee .. pg. 63 50 —_ = 4b) Brandy... me .. pg 7690 69 20 —_ (c) Brandy in bottle and accepted by the Comptroller as not exceed- ing 81 per cent of proof spirit g. 6000 54 00 = (d) Rum and Gin a .. pg 63 50 —_— — (e) Rum and Gin in bottle and accept- ed by the Comptroller as not exceeding 81 per cent of proof spirit... ne ba g. 49 50 —_— = (f) Whisky _... Sees .. pg. 76 90 — — 4g) Whisky in bottle and accepted by the Comptroller as not exceed- ing 81 per cent of proof spirit g. 60 00 _ _ (h) Toddy-arrak, Saki, Pineapple spirit pg. 31 00 _— —_ (i) Samsu (including Medicated Samsu) p.g. 31 00 — 27 00
(j) Bitters and Liqueurs exceeding 100 per cent of proof spirit bade g. 52 50 = ae
(k) Sparkling wines not exceeding 42 per cent of proof spirit .. g. 4400 3400 —
(J) Still wines exceeding 26 per cent but not exceeding 42 per cent of proof spirit oat a
<n) Still wines not exceeding 26 per cent of proof spirit aay g. 9 40 7 50 bos
(n) Ale, Beer, Stout, Porter, Cider and Sherry ... oie So “1g 5 20 4 80 4 80
{o) Other intoxicating liquors .. Pg. 76 90 — 4375
p.g. = proof gallon; g.= imperial gallon, the standard of liquid measure in the Colony
PUBLIC FINANCE AND TAXATION TL
DUTIES ON TOBACCO
Duties Unit Full Preferential $c. $c. (a) Cigars and snuff oa ... per lb. 11 00 10 00 (b) Cigarettes per Ib. 8 60 8 10
(c) Manufactured iSbacco (éxchiding cigars, Cigarettes and snuff)— (i) imported in containers of any kind for retail sale
to the public ... per Ib. 8 30 8 10 (ii) imported otherwise than in containers of any kind for retail sale to
the public ... per lb. 2 50 —_
(iii) provided that it is proved to the satisfaction of the Comptroller that the tobacco is not to be used for the manu-
facture of cigarettes by power-driven mechan- ical means ... per lb. 2 50 — (dq) Unmanufactured tobacco ... per Ib. 4 40 4 20 (e) Tobacco not otherwise provided for... a per lb. 12 00 —
Entertainment Duties
The Entertainments Duty Ordinance (Cap. 161) was brought into force on Ist January, 1952, and the Comptroller of Customs is responsible, as Comptroller of Entertainments Duty, for the collection of duties prescribed by the Ordinance.
SCALE OF ENTERTAINMENT DUTIES Where the payment for admission (including the
amount of duty) does not exceed 10 cents i none exceeds 10 cents but does not exceed 20 cents wae 5 cents exceeds 20 cents but does not exceed 30 cents as 10 cents exceeds 30 cents but does not exceed 50 cents a 15 cents exceeds 50 cents but does not exceed $1 beg 25 cents exceeds $1 but does not exceed $1.50... 40 cents
and thereafter an additional 20 cents of entertainment duty for every increase of 50 cents in payment for admission.
Only half the above rates are charged for ‘live’ entertainment such as stage shows and musical performances. Amateur sporting,
musical and dramatic entertainments are wholly exempted from the payment of duty.
72 HEADS OF REVENUE Crass I 1. Licences, Excise and Internal Reveaue not otherwise
Classified: — (a) Entertainment Duties (6) Estate Duties a (c) Income Tax (d) Liquors . as (e) Petroleum Revenue / f) Stamp Duties (Various Revenue Services) . ) Tobacco Duties ea ‘ eae ty Totalisator and Smreepetenct (4) Other Items es
Total
Crass Il
2. Fees of Court or Office, Payments for Specific Services and Reimbursements-in-aid ma
Crass Ill
3. Posts und Telecommunications
Crass IV 4 Rents on Government Property 5. Interest:—
(a) Interest on Kovestinents (6) Other Items
Total
Crass V
6. Miscellaneous Receipts TOTAL, EXCLUSIVE OF LAND SALES
7. Land Sales and Premia on Grants TOTAL, INCLUSIVE OF LAND SALES
Crass VI 8. era under the Colonial Development and Welfare ct Me Ae vee oat
Total, Revenue
SINGAPORE ANNUAL REPORT 1957
GOVERNMENT OF REVENUE AND
WITH COMPARATIVE FIGURES
1953
909,06 7,196,677
14,267,126
15,895,048
5,621,665
1,436,358 2,834,550
4,270,908
9,907,576 207,401,711
790,078 208,191,789
641,378
1956
5,982,168 apo ll es
9;508,263
14,369,773
17,711,836
5,891,908
1,313,151 869,501
4,182,652
10,829,670 230,155,778
786,639 230,942,417
1957
501, 39,313,190 $,752,4 11,297, Wl
--» 157,439,388 177,169,939 189,200,671
15,998,751
17,933,833
6,057,858
3,140,749 3,114,615
6,255,364
4,690,138 240,136,615
1,394,450 241,531,065
. 208,833,167 230,942,417 241,531,065
PUBLIC FINANCE AND TAXATION
SINGAPORE BXPENDITURE
FOR 1955 aNnD 1956 EXPENDITURE
. Governor Judicia! - Council of Ministers
Legislature a Public Secs Commission
SOWISARYN
13. Film Censorship 14. Gardens, Botanic 15. Information Services
. Po Sis 17. Ha ep Office .
19. Registry of Marriages 20. Statistics ie aes
92. ial Assignee ‘and Public Trustee
23. Treasury
24. Charge on Account of the Public Debt _
25. Pensions, Retired Allowances, Gratuities, etc. 36. Contributions and Charitable Allowances
27. Accountant-General
28. Customs and Excise
29. Estate Duty and Stamp Offices
AD Micutey of Coa: d Ind
31. Ministry o mmerce an ustry
32. Agricultural a
33. Co-operative Development
34. ee Control .
35. Fisheri ene
36. Forest.
37. Mine and Exports Control Registration
39. Spal e Surveys
40. Supp
41. rede. Marks Registry
42. Veterinary
43. Ministry of Local Government, Lands and Housing 44. Land and District Offices
49. Medical and Health $0. Ministry of Labour and Welfare 51. pouueretoe and maou
$3. Social Welfare ...
$4. Ministry of Communications and Works 55. Civil Aviation ... ne
56. Meteorological Services
57. Postal Services ...
58. Public Works ...
59. Public Works, Recurrent
60. Telecommunications
Commissioner.
Ministry of Education
Ministry of Health
Miscellaneous Services re baie Public Works, Non-Recurrent ua
Total, Expenditure
1955
327,824 1,638,188
$,310
30,380,502 306,955 22,384,538
8, 694, 823 2,316,983
32,265,629 779,471
197,911,662 222,518,924
73
4,374,053
238,432,454
74 SINGAPORE ANNUAL REPORT 1957
GOVERNMENT OF STATEMENT OF ASSETS AND
LIABILITIES $ ¢. $ c $ c. Deposits :— 1946 3% Rehabilitation Loan ... ny Sx $0,000,000 00 Less:—Expenditure, 1946... ... 13,684,646 61 Expenditure, 1947 __... ..- 12,264,756 68 Expenditure, 1948 3,788,301 53 Expenditure, 1949... --. 2,422,485 91 Expenditure, 1950 __... .-- 3,622,374 50 Expenditure, 195! eas -. 1,186,775 59 Expenditure, 1952... 2,831,164 27 Expenditure, 1953... an 595,994 40 Expenditure, 1954... he 162,912 26 Expenditure, 1955 __... bane 48,867 39 Expenditure, 1956 __... ean 236,983 82 Expenditure, 1957 __... as 19,829 79 —_—_——_— 40,535,092 75 ———————_ 9,464,907 25 War Risks (Goods) Insurance Deficit Fund oe 1,298,599 07 Development Fund oe ae — 24,660,965 56 Insurance Companies, etc. sand iss di 8,267,824 35 Courts ... See ies “os dee 1,772,300 36 Bankruptcy ree nts as on 1,802,755 47 Mercantile Marine Fund ex bee se 881,180 85 Companies Liquidation Account wae P 292,797 79 Miscellaneous fad ae ses Sie 17,265,058 95 —————— 56,241,482 40 Drafts and Remittances nee ss ou _ 423,665 05 GENERAL REVENUE BALANCE:— Balance as on Ist January, 1957 Ge Bed 147,278,713 03 Add Amount transferred from Special Reserve Fund ... 49,934,998 39 197,213,711 42 Deduct:— Amount of loans outstanding at 1-1-57, formerly. aDPSaring as Assets, charged to Expenditure ie 118,658,977 84 78,554,733 58 Surplus and Deficit Account:— : e. Revenue for 1957 oa .-- 241,531,064 82 Expenditure for 1957 sie soe 238,432,454 33 ——— 3,098,610 49 81,653,344 07 Deduct Depreciation of Investments, 1957 aes 3,010,845 67 Total ... 144,772,553 10 eee Notes:—
(i) There is a contingent liability of $6,474,823.18 as at 31st December, 1957, on the general revenues of the Colony, in respect of an excess of liabilities over assets of the singapore Post Office Savings Bank.
(ii) Under Section 7 of Ordinance No. 33 of 1946, the Singapore Government is liable to meet out of general revenues any deficiency in the Singapore Victory Savings Certi- ficate Fund. The excess of liabilities over assets as at 31st December, 1957, is $115,513.14.
PUBLIC FINANCE AND TAXATION 75
SINGAPORE LIABILITIES AS AT 31st DECEMBER, 1957 ASSETS $ Cc. $ c. $ c. Casn:— Cash in Treasuries ... tus cae —_— Cash in Banks ees oe --- 9,298,765 49 Cash with Crown Agents ase as 8,411 68 ——____ 9,307,177 17 Cash in Transit on ae kas oc 1,733 04 Joint Consolidated Fund er a ~ 257,142 86 ——_———— 9,566,053 07 INVESTMENTS:— Surplus Funds Sterling Securities ss see $4,294,677 78 Surplus Funds Dollar and Rupee Securities ‘es 13,765,254 27 Development Fund ne ss ents 30,271,790 61 Insurance Companies, etc. zak bee ae 8,267,824 35 Courts ... 4 “se ae eka $13,979 08 Bankruptcy sae Ses act ads 661,264 93 Mercantile Marine Fund swt aes re 686,473 82 Companies Liquidation Account ei oe 83,074 86 Miscellaneous oon el saa Si 217,012 25 ——_—___—_———. 108,761,351 95 ADVANCES: Building Loans oe eh ne a 4,678,997 04 Other Governments i eae wale 878,113 05 Miscellaneous es ie aes wae 20,789,975 45 ————— 26,347,085 54 Imprests as oes ae oes 98,062 54
Total ... 144,772,553 10
(iii) homst of $14,500,000 in 1954 and $2,500,000 in 1956 m a total of $17,000,000 to aia on eecount of't the acquisition af assets of the Oriental Telephone and Electric Sy co “Felon which there will be issued, in
Sue cours: tin Sin eanore
ordinary stock hone Board under Section 32 of
Singapore MA bee Board Ordinance, !
(iv) ep amount of $90,641.59 is due to Government, a sist December, 1957, by the Singa- Harbour Board, as Managers of the Telok Ayer Reclamation Area and Clifford
(v) ia acnount of $36,777.89 in respect of the undernoted C.D. and W. Schemes, is recover- able fi fon Colonial Development and Welfare Funds and is for the credit of Develop- ment Fun
76 SINGAPORE ANNUAL REPORT 1957
Estate Duty
Estate Duty is a duty chargeable under the provisions of the Estate Duty Ordinance (Cap. 162) at a graduated rate on the principal value of:
(a) all property situate in the Colony whether movable or immovable, settled or not settled, which passes or is deemed to pass on the death of any person;
(b) all movable property situate outside the Colony which passes or is deemed to pass on the death of any person who was domiciled in the Colony.
The principal value is the open market value ascertainable as at the date of death.
The rates of estate duty at present in force range from 5 per cent on estates over $10,000 in value to 60 per cent on estates valued at over $4 millions.
The total revenue from estate duty collected during 1957 was $5,099,149.49 as against the sum of $4,986,788.68 collected in 1956.
Duty on Private Lotteries
Under the Private Lotteries Ordinance (Cap. 167) a private lottery is unlawful unless a permit has been granted by the Financial Secretary. A private lottery is one which is confined to members of a society established or conducted for purposes not connected with gaming, wagering or lotteries. One of the condi- tions of a permit is that no profit shall accrue to any individual person from the conduct of the lottery. Another condition is that no commission either in money or by way of free tickets or chances shall be payable in respect of the sale of tickets or chances.
During 1957, 231 applications for permits, including 168 for renewal of permits for continuous lotteries, were received and approved.
A duty is chargeable at the rate of 20 per cent on the total amount raised under a private lottery. A sum of $317,246.25 was collected during 1957 as against the sum of $295,640.61 in 1956.
Corporation Duty
Corporation Duty is imposed by way of compensation to the revenue for the non-liability to estate duty of certain property belonging to or vested in bodies corporate or unincorporate. Its collection is governed by the provisions of the Corporation Duty Ordinance (Cap. 159).
PUBLIC FINANCE AND TAXATION 17
The duty is 3 per cent on the net annual value, income or profits of all movable or immovable property held by such bodies after deducting all necessary outgoings, charges and expenses properly incurred in the management of such property.
The amount collected during 1957 was $24,005.56 from 85 bodies as compared to $21,859.25 from 89 bodies in 1956.
Stamp Duties
Stamp Duties are payable on a wide range of commercial and legal documents specified in the Stamp Ordinance (Cap. 170). The net amount collected in 1957 in respect of stamp duties was $2,506,234.76 and that in respect of fees for adjudication of stamp duty on documents was $857.
The duty on conveyance of immovable property was increased to 2 per cent of the consideration money on December 4th, 1957.
Duties on Totalisator Bets and Sweepstakes
The Betting and Sweepstake Duties Ordinance (Cap. 158) provides for the levy of duty in respect of totalisator bets and sweepstakes. The rate of duty on the former is 10 per cent and that on the latter was increased from 20 to 30 per cent in Novem- ber, 1956. No change in these rates occurred during the year. Duties collected amounted to $5,752,413.10 in 1957, an increase of $1,691,570.80 over the amount collected in 1956, which was $4,060,842.30.
CITY COUNCIL
The financial affairs of the City Council are governed to a very large extent by the provisions of the Local Government Ordinance, No. 24 of 1957, (superseding the former Municipal Ordinance) which specifies the purposes for which the Council may expend the Municipal Fund and the procedure to be followed in preparing the Municipal Budget. In practice, draft estimates for the coming financial year are prepared by each departmental head in consulta- tion with the City Treasurer and are then considered by the relevant committees of the City Council and, finally, as a whole, by the Finance and General Purposes Committee. After the Budget has been passed by the City Council, heads of departments are respon- sible for keeping their expenditure within the authorised amounts, but the approved budget may be varied from time to time during the financial year by supplemental budgets.
78 SINGAPORE ANNUAL REPORT 1957
CITY INCOME AND (excluding INCOME 1955 1956 1957 $ $ $ CONSOLIDATED 1. Recerprs mn Arp or SPECIFIC SERVICES:— (a) Fees and Charges ae ase 7,223,855 7,663,361 7,884,006 (6) Fines under Municipal Ordinance, By-laws, etc 402,494 398,581 418,828 (c) Rental and Hire Charges es 1,086,010 1,166,836 1,399,991 (d) Sales es 20,307 $2,912 $9,922 (e) Other Income:— (i) Interest 22,696 24,291 106,192 (ii) Proportion of costs charged to Trading Departments, etc. 2,013,634 2,184,339 2,285,553 (iii) Other 108,896 30,316 77,146 (f) Contributions to Special Services:~ — . (i) Non-Capitel ee ae 38,398 116,417 208,470 (ii) Capital ee Med 80,180 125,148 61 86! 10,996,470 11,762,201 12,501,969 2. INCOME OTHER THAN RECEIPTS IN AID:— (a) Consolidated Rate... ee oe = «17,264,379 19,227,355 20,436,590 (5) Contribution in lieu of Rates... - 2,998,075 4,435,428 4,589,816 (c) Contributions to mate Fund by cratne _ @) Licences under Municipal Ordinance (Part XIII) 401,790 414,330 442,924 (e) Licences under Road Traffic Ordinance (after deduction of contribution to Rural Board) 6,138,663 6,765,346 1,487,583 Royalty and on xibaton under Singapore ia fos ss «659,382 «=«s«892,893 ‘1,057,168 (g) Taxes under eencaal Ordinance Section 82 392,127 406,971 451,273 (4) War Damage Compensation 501,439 ~ —_ 3. EXTRAORDINARY Recerprs—Sale, etc. of Land 646,652 273,467 73,959 . Total, Consolidated Rate Fund 40,528,977 44,177,991 47,041,275 TRADING Electricity Department 25,579,682 29,428,312 33,444,413 Gas Department 4,395,250 4,230,610 4,350,859 Water Department ... ies aes 16,275,230 16,792,694 16,503,475 Total, Trading Departments 46,250,162 50,451,616 $4,298,747 Grand Total 86,779,139 94,629,607 101,340,022 a IE
PUBLIC FINANCE AND TAXATION
COUNCIL EXPENDITURE 1957
Loan Account)
EXPENDITURE
RATE FUND
1. The President and City Councillors... 2. Architects and Building Surveyor’s Department 3. Assessment and Estates Department ... See
. Fire Department te ose oes . Health Officer’s Department
. Markets and Hawkers’ Department es . Organisation and Methods Department ave 10. Secretariat ae
11. Treasury rere
12. Vehicles Departmen be
13. Veterinary Surgeon’s Department ak x4 14. Victoria Theatre and Memorial Hall ...
15. Other Expenditure
oaeraus
Transfer from Loan Account ‘ae oe
Total, Consolidated Rate Fund
DsPARTMENTS Electricity Department ase ae wee Water Department ... _ eos eee Total, Trading Departments Grand Total
. City Cleansing (and Hawkers’) Department fe City Engineer’s Department noe eee
79
1955 1956 1957
$ $ $ 271,394 281,021 439,894 2,234,831 2,501,448 2,536,113 489,704 555,020 «509,682 5,767,307 6,130,335 5,525,209 13,647,183 "16,161,714 17,824,732 2,251,155 1,963,115 2,318,319 6,190,765 6,339,436 6,245,981 ze ss ‘1,225,669 206,059 185,914 189,621 750,900 741,306 «= «641,382 2,166,903 2,229,660 ‘2,425,714 1,056,709 1,080,045 ‘1,092,812 338,158 302,773 =»: 323,807 335,691 464,763 -—«-‘717,465 178,934 239,499 66,167 35,885,693 39,176,049 42,082,567 12934 — 108,068 35,898,627 39,176,049 42,190,635 26,891,757 30,673,893 34,072,462 4,644,657 4,603,463 5,552,569 15,700,029 15,266,638 17,175,454 47,236,443 50,543,996 56,800,485 83,135,070 89,720,045 98,991,120
80 SINGAPORE ANNUAL REPORT 1957
The maximum rates which the City Council may levy on pro- perty Owners are prescribed by law. The rates actually levied for the year 1957 were : —
General purpose ... 30 per cent of assessed value of the property (since 1953—maximum).
Improvement rate ... 2 per cent (since 1928—the maximum is 5 per cent and the proceeds are handed over to the Singapore Improvement Trust, see Chapter VIII.
Education rate ... 2 per cent (since 1920—the maximum: the proceeds are handed over to the Education Finance Board, see Chapter IX).
The rates and taxes are paid into a consolidated rate fund and are. kept separate from the monies belonging to the trading depart- ments of the City Council. Further information on the City Council is given in Chapters XIV and XVIII.
The Municipal Budget for 1957 provided for a total expenditure of nearly $157 millions as compared with $136 millions for 1956. Of the total anticipated expenditure of $157 millions, nearly $109 millions were to be met from revenue (as compared with $98 millions in 1956) and slightly under $48 millions from loans (as compared with $38 millions in 1956). Once again, therefore, the Budget was the largest in the history of the Municipality.
The Consolidated Rate Fund Budget provided for the expendi- ture of over $15 millions on special services projects of which, in accordance with the policy over the past few years, the largest share (nearly $6 millions) was for sewerage extensions. Other sub- stantial provisions for special services included nearly $5 millions for road improvements and $1.1 millions each for surface water drainage and parks, open spaces and swimming baths. The budgets of the three trading departments (electricity, gas and water) pro- vided for a further expenditure of over $6.5 millions from revenue on special services projects.
Two supplemental budgets providing for additional expenditure of over $8 millions were passed during the course of the year there- by increasing the total estimated revenue expenditure for the year to over $117 millions. Actual expenditure, however, fell short of this figure by some $18 millions and totalled slightly under $99 millions, as shown in the statement on page 79.
PUBLIC FINANCE AND TAXATION 81
The supplemental budgets also increased the estimated Loan Account expenditure for the year to nearly $65 millions, but actual expenditure fell considerably short of the estimates as shown in the following statement:
CITY COUNCIL LOAN ACCOUNT EXPENDITURE
1957 $ $ Consolidated Rate Fund: Developmental Roads... 5 260,727 New Sewage Disposal Works ... 3,585,521 City Hall Alterations, etc. ‘os 831,443 4,677,691 Electricity Department: Pasir Panjang Power Station ... 6,404,158 St. James Power Station viz. T2713 72 Other Extension Schemes ... 9,534,600 New Showrooms, Offices and Stores Cr. 17,467 17,198,663 Gas Department: Oil Gas Plants ae ... 1,691,978 Other Extensions va ... 1,413,862 3,105.840 Water Department: : Extension Scheme aise ag ... 7,463,364 32,445,558
To assist in financing the above expenditure the Legislative Assembly in April, 1957, authorised the increase of the amount to be raised by the 5 per cent Debenture Stock 1956 (1966-76) from $30 millions to $50 millions. A total of $46.5 millions of this loan
82
SINGAPORE ANNUAL REPORT 1957
had been taken up by 31st December, 1957. Details of the public debt of the City Council are given in the following table:
CITY COUNCIL OF SINGAPORE Public Debt as at 31st December, 1957
Description Amount ates $ c. DOLLAR DEBENTURB STOCKS, ETC. -4% Singapore Municipal ee Stock 1913 (1963) Series B 754,810 00 3ist March 30th Sept. 434% Singa ae Municipal Debentures BLP Poa 1930 (1970/1980) 6,000,000 00 Ist March Ist Sept. 3%S re Municipal Debenture Sick £1935 ( (1975/1985) .-- 4,000,000 00 Ist April Ist Oct. ingapore Municipal pevcors a Sea 1937 (1962)... .. 2,750,000 00 15th May 15th Nov. 3% Singapore Municipal Debenture Stock 7938 (1958) ss .-- 4,000,000 00 15th May 15th Nov. 4% Singapore Municipal Debenture Stocks 1939 (1959) “ ... 5,000,000 00 3Ist March 30th Sept. 33% Singapore Municipal Debenture Stock 1948 ee .-- 30,000,000 00 20th Jan. 20th July 38% Sores ty icipal Debenture 1 agents) - 25, 000,000 00 3lst March 30th Sept. Sing apes cio ipal oe 54 1952 (1960/1972) © 25,000,000 0O Ist March Ist Sept. % Singapore City Council Deben- i Fh Stock 1953 (1963/1973) .-- 30,000,000 00 Ist May Ist Nov..- -4% Singapore City Council Parente Stock 1954 (1965/1977) . 30,000,000 00 3ist March 30th Sept. -4% Singapore City Couacil Debenture Stock 1955 (1970/1980) - 30,000,000 00 Ist June Ist Dec. 5% Singapore Ci Dounce) Deventure Stock 1956 6 (1966) 1976) - 46,500,000 00 Ist May Ist Nov. Se ca of the ike of Singa- pore 3% Loan 1949 .-- 1,800,000 00 31st March 30th Sept. ‘Government of the Colony of Singa- pore interest-free Loan 1956 4,000,000 00 oon — Total, Dollar Deben Stocks, etc. re 4A, 804,810 00 STERLING DEBENTURE STOCK -4% Singapore Municipal Debenture Stock 1913 (1963) Series B (£96,171
at 2/4)... .- 824,322 86 3ist March 30th Sept.
---245,629,132 86
Total, Public Debt
Earliest date of Redemption
30th Sept., 1963 _ Ist Sept., 1970 Ist April, 1975 15th May, 1962 1Sth May, 1958 30th Sept., 1959 20th July, 1968 30th Sept., 1961 Ist Sept., 1962 Ist Nov., 1963 31st Mar., 1965 Ist Dec., 1970 Ist May, 1966 30th Sept., 1961
1967
30th Sept., 1963
Note:—There are Sinking Fund accumulations amounting to $51.9 millions as at 31st Decem-
‘Der, 1957.
PUBLIC FINANCE AND TAXATION 83°
RURAL BOARD
The jurisdiction of the Rural Board covers the area of all that portion of Singapore Island outside City limits, and the outlying. islands within Colony waters.
The main sources of revenue of the Rural Board are rates, various licence fees and vehicle taxes. The revenue obtained is. insufficient to meet the total expenditure and the deficit is covered. by a contribution from the Singapore Government. Expenditure has shown an appreciable increase over the past three years as a result of increasing development of the rural areas.
With a view to the eventual taking over of the administration of the Southern Islands, the Land Office has been provided with funds. for this purpose. The Rural Board provides the amenities for these- islands, but expenditure in this connection will be met by the Land Office in future. In return, revenue collected by the Rural Board from the Southern Islands will be paid to the Land Office- through an adjustment in the accounts at the end of the year.
During 1957, the total expenditure was $5,251,958. Revenue amounted to $4,445,618. A statement of revenue and expenditure for 1957 is given at pages 84 and 85.
SINGAPORE IMPROVEMENT TRUST
The Singapore Improvement Trust, incorporated under the: Singapore Improvement Ordinance in 1927, is the statutory im- provement and planning authority in the Colony. Since 1947 the Trust has also acted extensively as Government’s agent for public housing in Singapore. The Trust also discharges sundry other agency functions on behalf of Government, e.g. management of properties reverted to the Crown; supervision and maintenance of two Government low cost housing schemes at Kolam Ayer Lane and Upper Aljunied Road; re-housing and resettlement on behalf of Government.
The finances of the Trust, governed by the provisions of Part III of the Ordinance of 1927, require the submission of an anuual budget and annual accounts to be approved by the Minister of Local Government, Lands and Housing. The Minister also appoints. auditors to examine and report upon the accounts. Revenue expen-. diture for the year under review totalled $12.9 millions against. income of $13.6 millions, yielding a surplus of $0.7 million.
84 SINGAPORE ANNUAL REPORT 1957
REVENUE
Rates (property assessment, etc.)
Licences (dogs, pigsties, public markets, etc.) Fees (building plans, petroleum storage, etc.) Others, including operation of quarry Contributions from Colony Government
Proportion of vehicle licence fees collected by City Council under Road Traffic Ordinance, 1941... ve ‘a see
Total
1955
1,262,937
156,238 681,386 254,007 630,281
855,525
RURAL REVENUE AND
1956 1957
$ $
1,629,073 2,342,003 178,729 193,402 776,740 519,266 345,054 367,624 590,967 806,340 962,646 1,023,323
..- 3,840,374 4,483,209 5,251,958
PUBLIC FINANCE AND TAXATION
BOARD EXPENDITURE EXPENDITURE
RECURRENT EXPENDITURE
Health:— Conservancy Anti-Mosquito Works Other Measures
General:— Salaries and Allowances. Contribution to Fire Brigade Street Lighting ... sue Fire Hydrants and Water Supply Other
Public Works:— Maintenance of Roads and Bridges
Maintenance of Bukit Timah Quarry ...
Other SPECIAL EXPENDITURE
Resurfacing and Sealing of Roads Other
Total
1955
710,143 319,820 157,815
582,290
95,000 121,928 319,077 133,306
417,472 191,532 186,240
270,200 335,551
1956
806, 162 339,403 203,126
570,386
95,000 158,565 464,922 233,604
448,871 234,798 208,250
373,506 346,616
85
1957
834,748 393,750 222,833
1,020,308
95,000 202,000 502,020 250,888
605,672 257,774 258,451
493,128 115,386
..- 3,840,374 4,483,209 5,251,958
86 SINGAPORE ANNUAL REPORT 1957
Housing
Since 1948, Government has made loans to the Trust to fin- ance public housing in the Colony. The first three loans totalling $22.5 millions were at 3 per cent interest, repayable by fixed instalments over 60 years; subsequently $60.9 millions and $12.5 millions were approved repayable at 4 and 3 per cent over 60 years and 40 years respectively on the annuity basis. At the begin- ning of 1957 a loan of $44.737 millions was approved, repayable on the annuity method over 60 years bearing interest at 5} per cent, bringing the total of approved loans to $140.637 millions in a period of 9 years.
Capital expenditure in 1957, which exceeded $20 millions, is the greatest in any one year of the Trust’s existence, and brought capital spendings financed from Government loans to $99 millions.
Government, in accordance with its White Paper on Housing Subsidy Policy published in January 1957: (i) relieved the majority of tenants of payment of service charges (i.e. lifts and common lighting) and conservancy charges; and (ii) in the case of all new housing units completed, fixed rentals in relation to the tenant’s ability to pay. In consequence, the rent roll for 1957 fell to $9.5 millions as compared with $9.7 millions for 1956. Approximately one-third of rent income was utilised to meet loan repayments and a further third in payment of City rates.
Implementation of two other provisions in the White Paper on Housing Subsidy Policy has been deferred by Government, viz. authority to institute a Repairs Fund and the payment by Gov- ernment of a revenue subsidy to meet the housing revenue deficiency.
Improvement
The Trust levies an Improvement Rate on all properties in the City area to finance its statutory functions, and an equivalent con- tribution is also made by Government. The rate for 1957 was fixed at 2 per cent of annual value and yielded $1.6 millions, the Govern- ment contribution totalling $1.55 millions. This covers the costs of planning control but leaves little for major town improvement.
SINGAPORE HARBOUR BOARD
The Singapore Harbour Board is constituted under the Ports Ordinance and consists of a Chairman (who is also General Manager) and not more than ten other members consisting of re- presentatives of the shipping and trading communities and one senior Government official.
PUBLIC FINANCE AND TAXATION 87
The accounts of the Board are audited by the Government auditors. The Board is required to be self-supporting and is empowered, under the provisions of the Ordinance, to frame scales of charges in respect of the services provided within the area under its control. These charges, together with rents from lands and buildings, constitute the main revenue of the Board. Any surplus which remains from revenue after expenditure has been met is devoted to the improvement and development of the existing facilities.
The Board is possibly unique as a port authority in that it not only employs directly all labour engaged in working cargo both on the wharves and on vessels, but it also owns and operates two dockyards capable of effecting major repairs to vessels of the largest class. It employs approximately 10,000 persons the majority of whom are housed on the Board’s estate.
It has been the policy of the Board to charge rates as low as are compatible with the proper maintenance of its assets and the grant of increased living standards to its employees, and the extent to which this policy has been successful may be gauged from the fact that, compared with 1949, the aggregate net registered tonnage of vessels berthed and the total tonnage of cargo handled have increased by 60 per cent. Since 1949, over $26 millions have been expended from reserve funds in betterment and development, in- cluding $8 millions on the construction of a new graving dock. Major development programmes now in progress are estimated to cost $40 millions. An account of the Board’s undertaking is to be found in Chapter XV.
COLONIAL DEVELOPMENT AND WELFARE SCHEMES
Under the 1945 and 1950 Colonial Development and Welfare Acts, the allocation to Singapore is $7,324,286. Under the 1955 Act, Singapore was given no territorial allocation, but unspent balances from the previous allocation were still available to the Colony. There remained from these, to be specifically allotted, a sum of approximately $482,898 and the question of utilising this balance was still under consideration. In addition, applications can be made for assistance from the general reserve of £12,500,000 which the Secretary of State has set aside for new schemes outside the allo- cations made under the new 1955 Act. Finally, Singapore can apply for assistance from the central allocation for research, higher education, surveys, etc.
88 SINGAPORE ANNUAL REPORT 1957
During 1957 the following seven schemes were in operation :
!. Outer Ring Road: This scheme, approved by the Secretary of State in 1955, was held up longer than expected on account of the difficulty in removing squatters from certain areas. When this had been done the general earthworks were carried out by the Singapore Improvement Trust and completed about the middle of 1957. In September, 1957, the roadworks contract started and by the end of the year, subsidiary earthworks had been carried out together with the construction of certain main drains and retaining walls. During this period, progress was retarded because of the need for laying mains and cables which could only be done after operations by the Singapore Improvement Trust had been com- pleted. The road when completed will connect the dock and wharf area at Tanjong Pagar with the main road from Singapore to the Federation of Malaya. It is intended to divert most of the heavy traffic away from the centre of the City. The road will be built in three sections with a total length of about four miles. Only the first section, estimated to cost about $1.7 million, will be financed from C.D. & W. funds.
2. Adult Education Centre: Work on the Headquarters Build- ing for the Singapore Council for Adult Education commenced in April 1955 and in May 1956 progress by the contractor deteriorated to such an extent that work was stopped pending an enquiry which led to the subsequent termination of the contract in October 1956. A new contract was negotiated in November 1956 and the building was satisfactorily completed on 29th March, 1957. The cost of the building was $350,000 including furniture and equipment.
3. Urban Health Centre: Progress on the Urban Health Centre project was good and by the end of the year it was almost completed. The estimated total capital cost of the project is $1.5 millions and up to the end of the year $1,110,862.28 had been spent. The running costs of the Centre are to be borne by the Singapore Government, the University of Malaya and the City Council. When completed it will provide school medical and dental clinics and child welfare facilities for the City area.
4. Storm Warning Radar: In June 1957 the Secretary of State approved a grant of $202,285 from the joint allocations from C.D. & W. Funds to Singapore and the Federation of Malaya towards the estimated total cost of $259,385 for the installation of three storm warning radars, of which one is to be installed in Singapore— at the International Airport—to give warning to aircraft, coastal
PUBLIC FINANCE AND TAXATION 89
shipping and fishermen of the approach of storms. Singapore’s share of the cost was $28,550. The equipment arrived in October.
5. Boys Hostels (Two): The Secretary of State approved the building of two Boys’ Hostels, one at Dunman Road and the other at Bukit Batok at a total cost of $180,000 each, of which $150,000 would be met from C.D. & W. funds. Working boys without homes of their own and boys discharged from approved schools or who have been placed on probation provided they reside in a hostel, will be able to find suitable accommodation in the proposed buildings.
There was no progress in 1957 in the construction of either hostel, the building of which had been delayed because of the difficulty of finding suitable sites and the many commitments of the P.W.D. Towards the end of the year, however, suitable sites had been selected, a revised estimate of the total cost drawn up and an application for supplementary vote for $91,000 to be met entirely from Colony funds approved. Work is expected to begin in 1958.
' 6. Botanic Research Scheme: The whole cost of £1,500 of this scheme falls on C.D. & W. funds. The scheme enabled a research worker to spend one year in Singapore and the Federation of Malaya and carry out a study on the developmental anatomy of the bark of tropical trees. Bark characters are of economic im- portance because bark is the source of the majority of vegetable resins and gums exported from Malaya. The research worker arrived in the latter half of December 1956 and left Singa- pore in December 1957. The remainder of the research will be carried out by him at the University of Cambridge, and a complete report on the work will be submitted to the Secretary of State.
7. Regional Research Laboratory: The Secretary of State agreed to the establishment, with C.D. & W. funds, of a Regional Fisheries Research Station at Singapore. The total cost of the scheme up to 30th September, 1957, was estimated at $2.17 millions © to which a grant of $1.86 millions was made from C.D. & W. funds to meet all the capital expenditure and the U.K. share of the recurrent costs. The recurrent costs of the scheme were borne jointly by the U.K. and the Malayan and Bornean Govern- ments. The provision for the scheme expired on 30th September, 1957.
V
Currency and Banking
CURRENCY
NDER a Currency Agreement between the Governments of
the Federation of Malaya, Singapore, Sarawak, North Borneo and Brunei, which became effective on Ist January, 1952, the Malaya and British Borneo Currency Commissioners have the sole right to issue notes and coin in these five territories and, as a backing for the currency, they manage a Currency Fund consisting of sterling securities. The Board consists of five members—the Financial Secretary of Singapore, the Minister of Finance, Federa- tion of Malaya, one member appointed jointly by the Governors of Sarawak, North Borneo and the British Resident, Brunei, while the remaining two are appointed by the participating governments acting in concert. The Chairman of the Commissioners is the Financial Secretary of Singapore.
THE BOARD OF COMMISSIONERS OF CURRENCY, MALAYA AND BRITISH BORNEO
Members T. M. Hart, Esq., C.M.G., Col. Sir Henry H. S. Lee, K.B.z., Chairman. J.P. A. N. Goode, Esq., 0.B.B. G. A. P. Sutherland, Esq., c.B.z., Dr. F. C. Benham, C.M.G., C.B.E. J.P.
Currency issued by the Board is the only legal tender in the Colony. The standard unit of currency is the Malayan dollar, which is on the sterling exchange standard and fixed at 2s. 4d. This currency is also legal tender throughout the Federation of Malaya, Sarawak, North Borneo and Brunei.
The following types of currency are issued and were in circula- tion as legal tender during the year:
(i) currency notes bearing the inscription of the Board of Commis- sioners of Currency, Malaya, and dated not earlier than lst July, 1941, in denominations of one, five, ten, twenty, and
fifty cents, for the payment of any amount not exceeding two dollars;
CURRENCY AND BANKING Of
(ii) currency notes bearing the inscription of the Board of Commis- sioners of Currency, Malaya, and dated not earlier than Ist July, 1941, in denominations of one, five, ten, fifty, one hundred, one thousand, and ten thousand dollars, for the payment of any amount;
(iii) currency notes bearing the inscription of the Board of Commis- sioners of Currency, Malaya and British Borneo, and bearing the effigy of Her Majesty the Queen and dated 21st March, 1953, in denominations of one, ten, fifty, one hundred, and ten thousand dollars for the payment of any amount;
(iv) cupro-nickel coin in denominations of five, ten, twenty, and fifty cents, for any amount not exceeding two dollars;
(v) copper and bronze coin in denominations of one quarter and one half of one cent, and one cent, for any amount not exceeding two dollars.
All notes and cupro-nickel coins mentioned above were issued into circulation after September 1945; copper and bronze coins have been issued both before and since the war.
No figures of actual circulation can be given for Singapore alone. The figures given below show total currency in circulation on 31st December, 1957, in the several territories, including currency which may be circulating in adjoining countries.
3S Notes __... ea ah 943,100,508 Cupro-Nickel coins ... se 39,877,304 Nickel coins - is 107,500 Copper and Bronze coins 3s 4,104,107
987,189,419
Currency circulation increased by $3.9 millions on account of sterling remittances and withdrawals of demonetised pre-invasion notes and silver coins. Total sterling sales during the year 1957 amounted to £2,380,000 and purchases to £2,850,000.
BANKING
In 1957 two new banks commenced business in the Colony, viz. Bangkok Bank Ltd., and Bank of Tokyo Ltd.
Banks transacting business in the Colony during 1957 were as follows :
1. American Express Co. Inc. 6. Bank of Canton Ltd.
2. Ban Hin Lee Bank Limited* 7. Bank of China
3. Bangkok Bank Limited 8. Bank of East Asia Ltd. 4. Bank Negara Indonesia ~- 9. Bank of India Ltd.
5. Bank of America 10. Bank of Singapore Ltd.ft
* Head office in Penang. + Banks incorporated in Singapore.
92 SINGAPORE ANNUAL REPORT 1957
11. Bank of Tokyo Ltd. 21. Kwangtung Provincial Bank
12. Banque de I’Indochine Ltd.
14. Chung Khiaw Bank Ltd.t 23. Mercantile Bank Ltd.
15. Eastern Bank Ltd. 24. National Handelsbank N.V.
16. First National City Bank of 25. Netherlands Trading Society New York 26. Oversea-Chinese Banking
17. Hongkong & Shanghai Bank- Corporation Ltd.t
ing Corporation
49 2 18. Indian Bank Ltd. 27. Overseas Union Bank Ltd.t
19. Indian Overseas Bank Ltd. 28. Sze Hai Tong Bank Ltd.f
20. Industrial & Commercial Bank 29: United Chinese Bank Ltd.t Ltd.t 30. United Commercial Bank Ltd.
¢ Banks incorporated in Singapore. BANK RATES OF EXCHANGE
The Malayan Exchange Banks Association’s best agreed rates on London and other countries as well as changes and highest and lowest rates during the year are shown below:
1957 Selling—T.T. Buying—T.T. London January 2 a 2/4 2/4 1/8 January 4 aah 2/3 7/8 2/4 December 31... 2/3 7/8 2/4 Selling—T.T. Buying—T.T. Lowest Highest Lowest Highest Australia ... 2/10 13/16 2/10 15/16 2/11 5/32 2/11 5/16 New Zealand... 2/3 7/8 2/3 31/32 — — Burma .. S84 3/4 155 1/2 185 3/4 156 1/2 India .. 184 3/4 155 1/2 155 3/4 156 1/2 Ceylon .. 154 1/4 155 155 3/8 156 Pakistan .. 154 3/4 155 1/2 155 7/8 156 5/8 Hongkong ina 53 1/4 53 1/2 52 3/4 53 U.S.A. sate 32 5/16 32 9/16 32 1/2 32 13/16 Canada oe 30 3/8 32 30 11/16 32 3/8
BANK RATES
On ist January, 1957, the Malayan Exchange Banks Associa- tion’s agreed minimum rates of interest for dollar advances were :
per annum Advances against Government and/or
Municipal Securities be ae 54 per cent Clean Advances ... - or 54 per cent Advances against Commodities ae 54 per cent Advances against Stocks and Shares ... 6 per cent
Advances against Property ... ioe 64 per cent
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neg ct EE SRR MOTE
Top—Ships of all nations use the excellent facilities for docking and handling cargo of the port of Singapore.
Below—A daily scene at the Singapore Harbour Board wharves.
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Tong Photo Servitt
close-up view of one of the many modern buildings in the heart of Singapore’s
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settles. tt a
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CURRENCY AND BANKING 93
On 7th February, 1957, Bank Rate in the United Kingdom was lowered by } per cent to 5 per cent but in view of prevailing conditions in the Malayan area the Malayan Exchange Banks Association found it necessary to raise their minimum interest rates in all categories by 4 per cent on 11th February, 1957.
On 19th September, 1957, the Bank Rate in the United Kingdom was raised to 7 per cent and following this change the Malayan Exchange Banks Association raised their minimum interest rates in all categories by 1 per cent. Since that date and up to the time of writing, the Association’s agreed minimum rates for advances have, therefore, been as follows : —
per annum
Advances against Government and/or Municipal Securities a4 sie 7 per cent Clean Advances ... Bot Kis 7 per cent Advances against Commodities sai 7 per cent Advances against Stocks and Shares... 74 per cent Advances against Property ... 7 8 per cent
Post Office Savings Bank
The number of depositors in the Singapore Post Office Savings Bank on 3lst December, 1957, was 178,236 as compared with 166,150 on 31st December, 1956, an increase of 7.2 per cent. During the year 17,252 new accounts were opened and 5,166 accounts were closed.
The number of transactions for the year increased by 2.9 per cent from 334,194 in 1956 to 344,146.
On 31st December, 1957, the total amount standing to the credit of depositors, inclusive of interest, was $48,958,456 as compared with $54,972,487 on 3lst December, 1956. The excess of with- drawals over deposits during the year was $7,226,690. Deposits totalled $22,975,608 compared with $25,073,457 in 1956. With- drawals totalled $30,202,298 compared with $29,051,948 in 1956.
Through the Students Saving Scheme, school children deposited $53,411 during the year.
Members of the Forces continued to take advantage of the Forces Savings Scheme whereby deductions were made from their pay and credited to the Savings Bank accounts. In October the scheme was extended to members of the Royal Malayan Navy. Members of the Armed Forces deposited during the year $203,909 through the scheme. |
Vi Trade
OTWITHSTANDING the world recession which began to
appear in the middle of the year and the unsettled conditions in some neighbouring countries, Singapore’s trade during 1957 maintained a satisfactory level. This was due largely to the in- creased trade in Straits produce and resulted in a higher total value of trade, although the level of produce prices was generally lower than in 1956.
The value of total trade (excluding trade with the Federa- tion of Malaya) was $6,050.5 millions, which exceeded the 1956 figure of $5,831.1 millions and has been surpassed only by the 1951 figure of $7,644.9 millions. The total values of imports and exports which were $3,277.4 millions and $2,773.1 millions respectively, exceeded the values of 1956 by $179.1 and $40.3 millions respectively.
Imports from the Sterling Area fell by 1.0 per cent to 32.6 per cent whilst those from other European countries gained from 8.7 to 9.5 per cent.