Home Team Science and Technology Agency Bill

Sir, the Home Team Science and Technology Agency will help to address current challenges in a way that prepares for the future.

Firstly, its research in applied sciences enables the home team to utilise science and technology to overcome the challenges that are faced. Some examples of what have been done or are being worked on include:

(a) Smart glasses with video feeds and facial recognition technology to assist Police operations;

(b) Surveillance cameras in prisons that can detect when a person suddenly collapses or when there is a fight so that the surveillance video cameras do not need to be closely monitored round the clock; and

(c) The IDEAS II System used by the CNB which analyses data to establish behavioural patterns and crime hotspots.

In these ways, technology can help the Home Team work more effectively and efficiently, but the challenges continue.

The low total fertility rate, which was 1.16 last year, projects manpower shortage across different sectors. Technology can be used to reduce the need for manpower. For instance, the CNB is working on automating the process of registering and administering urine tests and using robots to handle the samples securely, reducing the need for manpower.

The new clearance concept is another example. It streamlines the immigration process, allowing Singaporeans to experience a contactless immigration clearance as well as allowing first-time visitors to use automated immigration lanes. This will help the ICA cope with increased travel while keeping the time needed to clear immigration low. This is especially important given that the number of travellers transiting through and travelling to and from Singapore has increased drastically over the years. Last year, there were 212 million travellers and this is projected to increase by 40% by 2025.

In order for Singapore to continue being a popular tourist destination and hub for international travel, it is important that the immigration clearance system be both fast and effective. With increasing use of online shopping, the number of parcels being sent to and from other countries as well as within Singapore has increased exponentially.

Last year, there were 10 million consignments, containers and parcels. This is likely to increase by 70% by 2025. In order to screen for illicit drugs, guns and other dangerous and prohibited items, it is important that the Home Team's capabilities are built up. Last year, the number of contraband cases detected at the checkpoints hit the highest annual figure recorded, averaging 300 cases per day. On 29 June this year, the ICA detected 20 items suspected to be gun parts in a parcel marked "merchandise". So, the threat is real.

Although manpower coupled with machinery is a possible solution, the more sustainable and feasible way is through technology working in partnership with the excellent ICA officers and the Home Team officers that we have today. Both their commitment, dedication, ability as people and officers coupled with technology, I think that is the way for it, and that is exactly what we are wanting to do today.

Crime committed through the use of technology is increasing. The number of cases under the Computer Misuse Act increased by 40% from 2017 to 2018, from 858 cases to 1,204 cases. These included unauthorised access or transaction of online accounts, unauthorised purchase using credit or debit cards, and phishing emails. The number of e-commerce scams also increased by 11.4% from 2017 to 2018, numbering 2,125 cases in 2018 through which $1.9 million had been committed. Seventy percent of these e-commerce crimes happened on the popular e-commerce platform Carousell.

Some of the unique challenges cybercrime pose to police investigations, around the world, are the transnational nature of cybercrime, anonymity through VPN or other anonymous proxy services, and availability of “cybercrime as a service” which allows less tech savvy persons to hire persons with high expertise knowledge and specialised tools and services to commit cybercrime on their behalf. This shows that investing in science and technology to keep up with and outpace cybercriminals is necessary to ensure deterrence and rule of law in a world where an increasing number of transactions and communications are happening online.

Photos and videos can be doctored or fabricated almost indiscernibly. Evidence can be fabricated and alibies can be falsified. Fake news can be masqueraded as true and authoritative. As deepfake technology speeds ahead, technology that detects deepfakes often plays catch up. Therefore, investment in forensic technology is necessary to keep up with technological advancements to prevent them from being used for malicious ends.

Atrocious child pornography syndicates and terror cells organise themselves online, making it harder to detect their activities. While there is legislation that provides for powers to confiscate and access electronic devices, there will be situations where the police will need to crack into the device without the password given to them. Investment in technology and careful application of it is, therefore, important to administer justice, prevent recurrence and dismantle syndicates. As terror attacks could be high tech, for example through the use of commercial drones, or low tech, for example through a vehicle-ramming incident or a knife attack, a wide variety of technology and science is needed to detect, prevent and counter terror attacks. The factual matrix in any given attack situation is hardly ever the same.

While this agency is well-situated to solve the challenges and needs we see today, the agency would also ready our Home Team for the future.

The Home Team Science and Technology Agency will be at the forefront of technological and scientific developments. Some people say that criminals are two steps ahead and the authorities only play catch up. This agency, that we are debating today, endeavours to prevent that situation. While it is grounded in the present, it also looks to the future.

How? By consolidating the Home Team’s related science and technology into a centralised location. Instead of individual projects scattered across different private and Government partners to address different Home Team agency’s needs, this Bill creates a Statutory Board which consolidates this expertise into one place – both in terms of people as well as location, or virtual location.

Firstly, this allows for the concentration of the Team’s talents. There can be deep collaboration over teams with overlapping science and technology expertise, overcoming the silo effect by bridging the space gap, or the virtual space gap. Because iron sharpens iron, the galvanising environment will spur the individuals, officers and various groups working there to create even better ideas and possible solutions.

Secondly, the career path in home team-related science and technology development can be longer and wider. There would more opportunities for career progression even in the specialised area of science and technology. This makes the career path longer term, allowing scientists and engineers to accumulate experience in the sensitivities of what the Home Team requires. The career options can also be widened as there would be, quite possibly, more opportunities for transfers within the agency to related but different teams. This would allow people to learn new skills, and apply old skills in new ways, while still utilising and increasing their experience in the Home Team. Just as the career path is lengthened and widened, so also is the incentive for the Home Team to invest in and develop its scientists and engineers, further enabling Singapore to benefit from cutting-edge technology in its home affairs. This could also incentivise students to read applied science and engineering which are important in an age of information and technology.

Thirdly, it creates a centralised location where Home Team agencies can source for solutions. Instead of needing to hunt for research and technology partners with expertise in the area of research, they are looking at for a solution, they are able to approach a single connecting point which will then be able to connect the most appropriate team to work on a solution to meet that need. And it could be a very pressing need and time-sensitive.

Further, while the concentration, consolidation and collaboration of science and technology teams in the various Home Team agencies bode well for the development of science and technology, I would like to ask the Minister what steps will be taken to ensure that technologists will continue to have the opportunity to work closely with ground officers to understand operational needs and operational requirements?

Fourthly, having a dedicated agency for science and technology opens up greater collaboration opportunities with science and technology home departments in other countries. It would be easier to explore and coordinate possible projects to collaborate on since all the Home Team-related science and technology teams are concentrated in a single agency. The increased opportunity to work with counterparts in other countries and to learn from their experience will be valuable for the development of our Home Team capabilities and experiences.

Even as this new Statutory Board allows science and technology to develop solutions for the Home Team’s unique challenges, what the Home Team needs is not always unrelated to what is needed by other agencies or Ministries. For instance, drone technology used for search and rescue could also be utilised by MINDEF for reconnaisance operations or recce ops. Where there is possibility for utilising technology for other purposes other than Home Team operations, I would like to ask the Minister how will this new agency work within the broader science and technology eco-system in Singapore to achieve a safe and secure environment for us here in Singapore? Because there are current science and technology projects going on between the various Home Team agencies and private and public partnerships, I would like to ask the Minister how will this new agency affect such existing partnerships or even bolster them?

Will the Minister consider allowing for non-sensitive Home Team technology to be used in consumer products should the opportunity arise? For instance, if the Home Team develops video cameras that capture better quality images, these cameras can be used to enhance private security cameras and increase security throughout the island without necessarily installing a Police camera each and every time. This would help strengthen the Home Team's ability to work with private security industry and private players to keep Singapore a safe country to live in and to respond quickly in the event of a crisis or terror attack.

In conclusion, Sir, the Home Team Science and Technology Agency is an important addition to our Home Team, enabling them to go farther and further. It does so by utilising technology for their future and present challenges and by building up a strong team of technologists whose wealth of experience in the sensitivities of Home Team requirements will be able to help fashion future solutions fit for the Home Team’s purpose. And for these reasons, Sir, I support the Bill.

Mr Speaker, this Bill seeks to establish the Home Team Science and Technology Agency. The plan to set up the Agency was announced at MHA's Committee of Supply Debate earlier this year. Many welcomed the move to boost capabilities across the various security agencies, and said it was a timely move, given the continued global threats posed by terrorism as well as rising threats of cyber attacks and transnational crime. Second Minister for Home Affairs Mrs Josephine Teo also highlighted during the Debate that the greater use of science and technology will enable the Home Team to be effective, in the face of manpower constraints and future challenges. This resonated with many people. Some made reference to the setting up of the Defence Science and Technology Agency (DSTA), a Statutory Board under MINDEF set up in 2000.

Dr Antonio L Rappa, an associate professor and head of Management and Security Studies at the Singapore University of Social Sciences (SUSS) School of Business in an article in The Straits Times in February 2019 observed that the military sector has produced innovative variants for military security across the three branches of the Singapore Armed Forces. He said the Home Team too is quick to adopt new technologies. One example is the new body-cameras used by the Singapore Police Force. Also, officers involved in investigating crime can now access the most updated information anywhere in the region. The Singapore Police Force is also reportedly considering new infrared technology which has been used in a limited fashion for the Police Coast Guard units. Ms Josephine Teo also has earlier given many exciting examples in her speech.

Dr Rappa also said that while Home Team officers do share some similarities with defence force officers, it is also clear that their different security functions and specialist nature of work require a different range of advanced technologies. The range of issues dealt with by the Home Team officers is diverse, and the skill sets of officers must also rise in tandem with the complexity of the threats. This is where a dedicated science and technology agency for the Home Team can raise capabilities for the security sector. Mr Speaker, in Malay.

(In Malay): (In Malay): [Please refer to Vernacular Speech.] The proposal to set up dedicated agency for the Home Team that can look into matters related science and technology is a good move. With our country facing a multitude of global challenges arising from terrorism, cyberattacks and transnational crimes, this agency will help to build the Home Team's capabilities to overcome increasingly complex issues. The use of science and technology will also help the Home Team manage its manpower and meet new challenges.

When this proposal was first announced, many made reference to the Defence Science and Technology Agency (DSTA) which was established some time ago. Through the DSTA, the defence sector managed to come up with many innovative solutions for the three branches of the Singapore Armed Forces. The Home Team has also employed many new technologies. The establishment of this dedicated agency will continue to strengthen such efforts and raise the capabilities of the security sector in Singapore.

(In English): I am therefore supportive of the setting up of the agency and this Bill. I have a few quick comments and queries though. The work of this agency will generate meaningful data and insights that may be useful to all departments within the Home Team and even other Government agencies. The power of data and actionable insights being shared should not be underestimated. I would like to know if there is a framework on how the data and insights garnered will be shared across the Home Team agencies. In addition, is there also a framework for the sharing of data and information with other Government agencies?

There are also opportunities to collaborate with different agencies within the broader science and technology eco-system, to build a stronger and more meaningful science and technology sector for Singapore. There may also be existing partnerships which could be enhanced. How will this new agency work within the broader eco-system including with other Government agencies?

On another note, as we use science and technology to improve surveillance and fight terrorism, there may be concerns of how privacy and personal data may be impacted. It may also be useful to assure the public that any images, videos or data collected in the course of the use of various security innovations, will be used in a proper manner and are well protected by a sound data security framework.

Notwithstanding my comments above, Mr Speaker, I stand in support of this Bill.

Mr Speaker, globally, policing has undergone a series of transformational changes, especially the last 10 years heralding in the most technologically advanced and technologically dependent era to-date. Without doubt, the next decade holds the potential to surpass these changes at an even faster rate, with futuristic technological innovations becoming a reality.

Today, the Home Team faces increasing public expectations and scrutiny, changes in crime profile and increasing non-crime-related demand. They are expected to deliver improved services despite facing tough resource constraints. There is an ever increasing pressure to deliver more – for less.

With the addition of Digital Defence as the sixth pillar of Singapore's Total Defence strategy, the setting up of the Home Team Science and Technology Agency (HTX) to drive innovation and develop technologies to enhance the Home Team's capabilities is timely and much needed.

In my speech today, I would like to focus on two areas: (a) Evolving Operating Landscape; and (b) Predictive Policing.

The operating landscape for the Home Team has vastly evolved over the years, bringing about new challenges and expectations. We are witnessing the nature of crimes evolved with rapid advancement of technology. Cyber-enabled crimes, in particular, are becoming more prevalent and sophisticated. For instance, in 2016, GozNym Malware was used to steal over US$100 million from over 41,000 businesses and financial institutions in the US, Canada, Germany and Poland. False e-commerce transactions, fake loans and Internet love scams are now among the most common scams reported.

In Singapore, the threat is real as seen in the recent hack on the SingHealth database and the leak of HIV-related data. How will the new agency work with existing ones such as GovTech, MCI and other Government agencies to mitigate such breaches without duplicating existing efforts?

In the opening speech at recent Interpol World 2019, Minister Josephine Teo highlighted three areas of innovation that hold promise – biometrics, data analytics and digital forensics. Indeed, these areas of innovation have the potential to rapidly solve crime. Biometrics facial recognition technology is able to scan through thousands of video footages to identify criminals. Data analytics is able to plough through enormous amount of data and improve sense-making. Digital forensics has the ability to extract and analyse digital evidences from the latest Internet of Things (IOT) devices, among others.

At the heart of the Home Team transformation, "digital" has to be about helping officers serve the public more effectively, enabling them to spend more time problem-solving, providing them the information required to make intelligent decisions faster, more effectively, and in greater depth. And I would like to remind the fundamental role of human instinct, emotional intelligence and pragmatic decision-making in responding to situations must be recognised in designing digital.

My second point on predictive policing – declining birth-rates have led to an ageing population that will increase the demand for emergency services, while at the same time putting constraints on the manpower available to the Home Team to tackle these challenges. The Home Team needs to continuously innovate and leverage on technology to fundamentally change the way it operates in order to deal with these challenges.

The most advanced crime analytics of the day relied on analysts leveraging on geographic information systems. Regardless, the trends identified were based on what had happened and it did not provide any insight into where crime might shift. The missing component was the ability to forecast where and when crime would occur or in other terms, a transformation from retrospective to forecasting. Predictive policing bridges those gaps by providing the best place and time for the police to problem solve.

A driving force behind a shift in paradigms is the potential outcome for law enforcement to increase its effectiveness and efficiency, enhance criminal investigations, and to allow agencies to "work smarter". It is within this political and social climate that predictive policing has emerged as a possibility of enhancing public safety.

Predictive policing can become a reality here in Singapore similar to how predictive maintenance helps to avoid breakdowns of critical infrastructure. In a way that is evidence based, accountable and ethically sound, ultimately aiming to achieve crime reduction success, while functioning with fewer human resources and thereby reducing operating costs.

There are several models of Predictive Policing that Singapore can learn from. One such model, the City Pulse project, by the Dutch police was highlighted by Minister Teo in her speech earlier. I would also urge our authorities to study the Vancouver Police Department (VPD) Predictive Policing Project that has yield remarkable results.

The VPD undertook a six-month pilot project to evaluate a newly developed machine-learned, crime forecasting system that was designed to project predicted crime locations and temporal intervals. The purpose of the evaluation was to determine whether police actions, guided by the forecasting system, would have a measurable impact on property crime, specifically residential break and enters. The results of the evaluation indicated residential break and enters dropped substantially during the pilot study.

Based on the positive crime reduction results and demonstrated ability to operationalise the technology in a police service, the predictive policing initiative was formalised and expanded into other areas of the organisation. One of the most innovative application being the Community Policing Block Watch Programme.

Block Watch is all about neighbours helping neighbours. Participants watch out for each other’s homes and report suspicious activities to the police and each other.

In practice, the predictive policing outputs are reviewed by the Block Watch Coordinator every morning, identifying the top 10% of the forecasted locations, with the aim to mobilise community resources for the time period that dedicated police resources are not actively deployed to predicted locations.

The Block Watch Captains in each estate then electronically distribute a notification to their members, informing them of the increased risk with recommendations that they exercise increased vigilance during those times. The community members are reminded not to directly engage with any suspicious individuals and to call the police emergency line should they witness any criminal or suspicious activities.

This has the net effect of mobilising hundreds of citizens every day and providing actionable information to the community.

The ancillary benefit is that this process helps reinforce the connection and communication between the community and police that is often lacking in other Community Policing initiatives once they are formally established. This ongoing communication and feedback also helps foster a more inclusive approach to crime prevention and one where the community plays a critical role in its success.

The pilot study found that when adequately resourced, the top 10% of the predicted crime locations could accurately interdict and prevent up to 70% of the anticipated incidents for each two-hour interval, equal to six to eight locations for every two-hour interval.

It is from this pioneering use of predictive policing technology that the VPD accomplished what police services frequently struggled with, limited resources and the inability to reassign patrol officers from often a busy call-load and dedicated emergency response.

This, I believe, is a worthwhile model from which Singapore can learn from and incorporate into SGSecure – a New Generation of Community Policing with Predictive Policing and Community Engagement.

Lastly, before I conclude, I would like to seek an update from the hon Minister on the “Lamppost-as-a-Platform” project that was announced last year for pilot roll out in 2019 by GovTech. Also, with the formation of the new HTX, will such Surveillance Programme come under the purview of the new agency?

In conclusion, Mr Speaker, I welcome the move to set up a new agency to focus on scientific domains critical to operations of the Home Team. Without deploying digital technology, the task of fighting crime and protecting citizens becomes almost impossibly tough in a world where citizens and criminals alike are increasingly digitally savvy. Failure to adopt digital technologies also restricts the ability of our Home Team officers to operate effectively within an ever more constrained operating environment.

Mr Speaker, I stand in support this Bill and any broader measures that enhances Singapore’s safety and security.

Sir, I stand in support of the Bill. The nature of modern threats to national security are increasingly complex and must be tackled through the use of cutting-edge science and technology. That said, I have two points of clarifications to raise.

My first is on membership. Section 11 of the Bill provides a list of four categories of individuals who are disqualified from serving as a member of this new Agency. This list is not unfamiliar to us. Indeed, in legislation that provide for the existence of other statutory boards, we see similar sections outlining these conditions for disqualification.

However, this list is different from legislation providing for other Statutory Boards, such as the Defence Science and Technology Agency Act and the Agency for Science, Technology and Research Act. These two statutory boards either deal with similar science and technology topics or exist under the same category in the Public Sector (Governance) Act. Yet, they disqualify members differently.

Speaking generally, the A*STAR Act bars those with mental illness, undischarged bankruptcy and unpardoned dishonest offences. The DSTA Act adds to that list a fourth condition: unpardoned imprisonment of six months.

This Bill we read today adds two new conditions: The individual cannot be a judge or judicial officer. The individual also cannot be disqualified from serving as a director or manager under the Companies Act.

I raise two questions pertaining to this point.

One, why have we added these two new conditions of disqualification? Why are these conditions relevant here and why are they not relevant to the other Statutory Boards?

Two, does the Government have plans to harmonise these conditions of membership disqualification?

My second point is about privacy, which fellow Member Rahayu has raised as well. Every Singapore citizen appreciates the centrality of public safety and security to our way of life. We are able to walk on the streets at night with ease because we know that we will be safe. At the same time, even as Singaporeans feel physically safe, they have also become uneasy at the risks involved with giving away their data. A spate of data leakages from the Government has exacerbated such fears.

In its mission to keep Singapore safe, this new Home Team Science and Technology Agency will surely leverage heavy use of data. Minister Teo highlighted that the agency will make intensive usage of video analytics and surveillance in its crime deterrence and incident response.

Given the potential intrusion on privacy that this represents, can the Ministry share the protocols and structures it plans to put in place to safeguard the data it collects?

I have two specific recommendations to make on accountability mechanisms that can be implemented. First, will the MHA publish annual reports on its data security measures to enhance public trust on this issue? Second, will the MHA consider setting up a hotline for employees to whistle-blow on lax data security measures?

It is paramount that the Government takes active steps to demonstrate transparency, accountability and security with the great powers our people have entrusted it with.

Take the example of the "smart lamp posts." ST Engineering won the tender last year and these lamps will hit the streets this year. The press release has highlighted its benefits to society. We will be able to better catch speeding motorists and PMDs. Crime can be further deterred. In times of a transport breakdown and traffic congestion, authorities can proactively provide solutions.

But some citizens were also surprised by the extensiveness of its systems. Because these street lamps will be able to identify faces in real time and because they might eventually be everywhere, this means that there is potentially no place in Singapore where you would not have data on your whereabouts stored in some Government database.

Perhaps, most Singaporeans will take the angle that if you do nothing wrong, you have no need to fear. But if leaks of such pervasive, universal data ever happen, it could strongly undermine trust in our public institutions. I hope the Ministry will take proactive steps to prevent such breaches from ever happening. Sir, notwithstanding my clarifications and suggestions, I stand in support of the Bill.

Mr Speaker, Sir, Singapore’s safety and security enable us all to perform at a high level, contributing to a good standard of living. However, like many other countries, we still face terrorist threats and other challenges from the evolving nature of crimes. Hence, it is necessary for us to utilise technology to enhance the capabilities of our Home Team. I stand in support of this Bill but I have two brief clarifications.

First, setting up a dedicated agency to gather expertise in science and technology to provide customised, dedicated solutions for the Home Team sounds very logical. However, in setting up this new agency, I would like to ask whether scarce research and development resources could be divided and diverted from current R&D institutions. I also want to express my concerns about the substantial budget allocated to this new agency and the accountability in the way funds are distributed and spent. I would appreciate it if the Ministry could share more details on how it justifies the amounts allocated and the measures to ensure accountability and transparency in its spending.

My second clarification concerns this – that the new organisation will focus on areas critical to the Home Team’s operations, namely, sense-making and surveillance, forensics, robotics and unmanned systems. I would like to ask if the Ministry would also consider measures to look into how we can counter biological threats. Could more be done in this area of research to defend us against the threat of bio-terrorism or biological attacks? I would like to conclude with my support for the Bill.

Mr Speaker, I stand in support of this Bill. I commend the bringing together of more than 1,000 research scientists, engineers and technical staff from the Home Team departments in the set-up of the new agency to focus on developing cutting-edge technologies, such as detection and surveillance capability, forensics as well as robotics and unmanned systems, to safeguard Singapore in this digital age.

However, as we continue to amass the latest and increasingly sophisticated technologies in surveillance and data analytics in our homeland security arsenal, I would like to take this opportunity to highlight three areas of concern for this House and the Ministry to consider.

First, we must ask ourselves what is the impact on the society’s prevailing mindset and mental health as we live under the constant gaze of surveillance with security technologies becoming more chillingly ubiquitous?

Second, as we increase the use of artificial intelligence and surveillance in a preventive manner, whether for criminal actions or terrorist threats, what are the implications of algorithmic biases and unwarranted systemic discrimination on our multiracial and multicultural society? How do we maintain a resilient and cohesive society with unbiased policing as we fight terrorism with new technologies?

Lastly, how are we creating a culture of respect for privacy and accountability as the presence of numerous surveillance and data analytic methods by Government agencies makes it difficult for individuals to control the use of their data?

Mr Speaker, the proliferation of smart technologies is a double-edged sword. Technologies that allow the Government to monitor, analyse and manage behaviour to fight crime, detect threats and keep us safe are also the same technologies that may paradoxically give us less psychological safety and have detrimental consequences on our society’s mental well-being.

Let us take the example of the $7.5 million "smart" lamp post project which was awarded to ST Engineering in October last year which includes the installation of artificial intelligence or AI-based facial recognition surveillance cameras on 110,000 lamp posts around Singapore, amongst other smart features.

We already have an existing and extensive network of security cameras but the use of more sophisticated technologies on these cameras means information could be shared between agencies. According to a report by The Straits Times, the new camera systems can, for instance, analyse faces – down to race, gender and age – for catching speeding e-scooter riders and other purposes. With the surveillance information, Government agencies can increase their situational awareness, detect potential problems and respond quickly to incidents, such as unruly crowds, train breakdowns and traffic congestion. It has been shown that the fear and uncertainty generated by surveillance inhibit activity more than any action by the police. This is clearly a good outcome for law and order. Yet, Mr Speaker, we must not forget that the well-being of our citizens goes beyond just physical safety and security.

A 2018 study by the Digital Ethics Lab of Oxford University found that surveillance has been linked to increased levels of stress, fatigue and anxiety. This constant state of being monitored shapes an environment where one’s sense of personal control becomes greatly diminished. We behave in a desired way just in case we are being watched. Another research by Duke University from 1966, which has been cited in numerous other articles and books on privacy even to today, showed that the shrinkage of free space where a person can be “off-stage” and simply be themselves rather than trying to be respectable under society’s standards may increase the frequency of anxiety and withdrawal from social roles, which are signs of mental illness. Other studies have also argued and reported that the long-term damage on one’s psyche from prolonged surveillance creates a culture of self-censorship and apprehension which clearly inhibits creativity and innovation – the very bedrock for the future of our economy and our Smart Nation vision.

Mr Speaker, I may now sound like a broken tape recorder but I cannot emphasise enough the urgent need for us to make mental health a national priority, what with the upward trend of one in seven Singaporeans experiencing a mental health condition in our lifetime, according to the 2016 Singapore Mental Health Study that was published just last year.

Unless the mental well-being of our citizens is the top priority in policy narratives, we may never intentionally and adequately address the trade-offs between the security imperative and potentially suffocating psychological effects of living under the gaze of the authority. Again, let me use this example of the 100,000 POLCAMs, how did we decide how much surveillance is enough when we currently already have a desirable low crime rate? What is truly necessary and when does it become a surveillance overreach, especially considering the financial and social costs involved?

I urge the Ministry and the new agency to be mindful of the delicate balance needed between keeping our streets safe and safeguarding the psychological resilience of our people to maintain a strong social compact. I would like to ask the Minister to clarify if an additional clause can be provided in section (5)(2) of the Bill such that the agency, in performing its functions, to have regard, in addition current provisions, for the social and psychological consequences of these scientific and technological advances on our citizens.

Mr Speaker, this brings me to my second concern – unbiased policing with predictive technologies. While predictive policing through AI is the future of data-driven law enforcement because of convenience and accuracy in the face of potential threats, we cannot ignore the risks that may arise with unwarranted systemic biases that might lead to inadvertent discrimination towards some communities. Predictive policing risks reinforcing known biases in law enforcement. Bias may also lead to the over-policing of certain communities, heightening tensions, or, conversely, the under-policing of communities that may actually need law enforcement intervention but do not feel comfortable in alerting the police.

Facial recognition systems tend to disproportionately mis-identify women and those from ethnic minorities. These neural networks are built on a vast number of faces from different groups. As a result, if it is trained and built for the better part on male subjects from the ethnic majority, for example, which is statistically more likely, the system will be more accurate for this group and less accurate for others. Let me share two examples, Mr Speaker.

First, last year, Amazon’s face recognition technology falsely identified 28 members of the American Congress as people who had been arrested for crimes, disproportionately misidentifying African-Americans and Latin-Americans. This raises concerns that face surveillance used by governments can fuel discriminatory surveillance and target racial minorities.

Second, these harmful effects are also already being felt in China, where facial recognition software targets the domestic minority populations, particularly the Muslim Uighur minority in China’s “war on terror”. “Anomalies” in their behaviour that can trigger suspicion include “dressing in an Islamic fashion and failing to attend nationalistic flag-raising ceremonies”. This is worrying as suspicion can be activated based on culture, religion and ethnicity as legitimate identifiers of threat.

In Singapore’s multicultural context, inadvertent algorithmic bias can put our harmonious social fabric at risk. No community must be perceived to be singled out. Can the Minister please clarify the safeguards and mitigating measures we have in place to avoid such mis-identifications and algorithmic biases?

Last but not least, Mr Speaker, please let me share my third concern on data privacy and accountability.

An article by TODAY in 2016 claimed that Singaporeans saw national security as more important than privacy. Nevertheless, this does not offset the value of privacy and the need for the Government to remain accountable to its citizens. Though there may be a predominant mindset that Singaporeans are not that concerned with privacy, the fact the Personal Data Protection Commission saw over 1,600 complaints on data protection issues in 2018 alone, as mentioned by Minister Iswaran to this House, shows that privacy is valued in Singapore.

Convenience cannot be the sole consideration of data collection – citizens deserve to know the purpose and how their data is being used. Therefore, if we want to create a culture of respect for privacy, the way the Government handles individuals’ data must set the example.

While the Government has in place the Public Sector (Governance) Act where Government agencies can share relevant data only when there are data sharing directions issued by relevant Ministers, citizens may not be aware of what these directions entail and how their data is being shared between agencies. When the public is aware of the efforts that the Government takes to safeguard their data, trust with the Government is built and the public live in less fear that their every action is subject to scrutiny. With transparent safeguards, the public also play the role of a compliance officer, as they can identify lapses that occur. Hence, I urge the Government to consider informing the public on what kinds of data different Government agencies are authorised to access and use and for what purposes to build a more informed citizenry.

The Public Sector Data Security Review Committee had identified technical, process and people strategies to strengthen our data security regime, given the rising complexity of our systems as our demand to use data grows in our society. It has found that there are varying levels of training on data protection in the public sector and that many data incidents have previously been the result of human error. Furthermore, it is not just the Government systems that are at risk but also the ecosystem with which our citizens’ data interacts with and, given the recent data breaches, we need to ensure high data protection standards by third parties.

I understand that the Public Sector Data Security Review Committee has until 30 November to submit its findings and recommendations to the Prime Minister. In the meantime, I would like to urge the Government to consider constituting an independent oversight body that will evaluate on an annual basis whether various forms of personal data, collected through forms or surveillance, has been legally and properly collected and managed by the public officers. This would include reviewing cases of misuse, the public organisation's data management culture and whether any changes have to be made to prevent future cases of misuse or breaches.

In the United Kingdom, the Investigatory Powers Commissioner's Office (IPCO) provides independent oversight of the use of investigatory powers by intelligence agencies, police forces and other public authorities. IPCO is comprised of judicial personnel, scientific experts, inspectors, lawyers and communications experts. In the United States, the US Privacy and Civil Liberties Oversight Board reviews information-sharing practices related to terrorism protection efforts.

Establishing an oversight body is important as the Government increasingly gathers massive amounts of information with new surveillance measures, including smart lamp-posts and drone cameras, being rolled out. The report of this body should be made public to ensure state accountability and to also demonstrate the respect that the Government has on data privacy.

In conclusion, Mr Speaker, it is clear that artificial intelligence, robotics, the Internet of all things and 5G will change and are changing the face of law enforcement. It is tempting to brush off the concerns shared above with the rhetoric of "it's better to be safe than sorry" or "if you have nothing to hide, it won't affect you". However, we must ask ourselves what is the kind of society we want Singapore to become.

Do we want to build a psychologically resilient and informed citizenry that will also be the ears and eyes for each other in these times of increasing security threats, or a people that depends completely on these ubiquitous electronic eyes on every lamp-post and leaving security entirely to the responsibility of the state?

Do we want to build a culture of respect for privacy, starting with the Government setting an example for transparency and accountability, that provides the bedrock of our social compact where there is trust between people and faith in the Government, or a culture of fear and distrust that may impede creativity and innovation?

Mr Speaker, answering these questions will help us fortify the Social and Psychological Defence pillars of our Total Defence for a strong and united Singapore, one that is built in partnership between the Government and the people.

Mr Speaker, Sir, I rise in support of the Bill which seeks to establish the Home Team Science and Technology Agency (HTX) and will be a Statutory Board under MHA. While I support having a dedicated Science and Technology Agency for the Home Team to augment and maintain our operational edge, I have three concerns which I hope Minister will be able to address and respond to.

First, duplication of work and resources. Looking at the areas of work and terms of reference of HTX, I see possible overlap of work and duplication with the science and technology agencies already in existence, such as DSTA, MINDEF, GovTech, HSA, DSO and A*STAR. Some of these capabilities and expertise already reside within these agencies.

What then is the rationale for setting up a HTX and not tapping on expertise residing within an existing Ministry or agency like MINDEF, DSTA or DSO?

Whether system engineers, specialists in marine and maritime engineering, technology or logistics specialists or even specialist forensic investigation, these experts are already serving in these agencies safeguarding Singapore. Should not we strengthen those existing agencies instead of having to set up another dedicated agency? Notwithstanding, if HTX is eventually set up, how is the agency going to not just value add but value create for the Home Team and Singapore in terms of safety and security?

Second, manpower concerns. Singapore has a tight labour market situation and there are exacting manpower needs and a demand for talent such as engineers and so on.

Every additional new headcount created will be a strain for those hiring outside of the public sector. With the set-up of HTX, I have some burning questions. What is the full manpower establishment of this new Agency? How many are fresh hires outside of the Home Team and public sector? How many are transferred from each of the Home Team units, such as SCDF, SPF, MHQ, ICA, Prisons and so on? Will there be personnel transferred from outside the Home Team, such as DSTA, DSO, HSA and GovTech?

For those within the Home Team or related Government agencies and are transferred to HTX, I am deeply concerned about their interests, welfare and their fate including career progression and terms and conditions of service. I am aware the Bill states in explicit terms that they will not be worse off.

I think the question is not just whether they will be worse off at the point when they are transferred over, but more in terms of their long-term prospects and future. This is especially pertinent as many of them may be in different schemes of service, such as the Pension scheme, Invest scheme or other similar schemes of service which are unique to their service. These officers who may be affected by the transfer would naturally be concerned and uncertain about their future and what lies ahead.

Section 47(5) of the Bill states that the employee being transferred will be on existing terms until such time the conditions of employment are drawn up by the agency.

When will the exact conditions of employment be ready so that the affected staff can be apprised of their new terms and conditions and whether they will be given an opportunity not to take up the new terms and stay in their current job roles and schemes of service?

Similarly, as with the set-up of any new agency, amalgamation or integration, there will be new cultures to adapt to and new management to adjust to. Can the Minister assure this House that the affected employees will be well taken care of and truly be not worse off in the short term as well as in the long term?

Thirdly, classification of HTX as an "Essential Service" and accountability of HTX. I am particularly concerned that under this Bill, there will also be a consequent amendment of the Criminal Law (Temporary Provisions) Act to classify HTX as an "essential service". This simply means employees employed in HTX may go on strike, but they are guilty of an offence if notice of intention to strike is not given to their employers, at least 14 days before the strike.

I appreciate the sensitive nature of the work of HTX and that we must not and cannot afford strikes and disruption in such a sensitive area. Naturally, some are concerned as to whether it is something that infringes the right of every worker in Singapore and whether we are compromising the rights of workers in Singapore. As employees of a Statutory Board, I assume that they can be union members and form a trade union and be collectively and individually represented. I look forward to the HTX working out an arrangement, together with the trade union movement, to ensure that workers within the HTX are represented and adequately protected.

Finally, I would like to ask on the question of accountability of HTX to Parliament because the Bill does not seem to provide an explicit answer to this. There is, however, explicit mention of the Minister and the agency members and I hope they will be able to exercise their powers judiciously and effectively for the safety and security of Singapore and Singaporeans. With that, I support the Bill.

Mr Speaker, let me first thank the hon Members for their questions and comments. Many Members spoke at length about why it is important for MHA to leverage science and technology to address the challenges ahead and to set up the new HTX. I thank them for their support of the Bill.

As Members have rightly pointed out, the growth of new technologies has changed the Home Team's operating environment. New threats are emerging as our adversaries are also taking advantage of technological advances. The Home Team must therefore not be handicapped on this front. We will need to invest in building new capabilities and transform the way we work. The setting up of a dedicated Home Team Science and Technology agency is to achieve these purposes effectively and efficiently.

Mr Mohamed Irshad asked about the capabilities that HTX will build. There will be a range. Besides transforming emergency response and enabling new clearance concepts, HTX will also develop forensic solutions to enhance investigations. For example, HTX scientists will conduct leading-edge research into the forensic analysis of suspected drug compounds. Advances in DNA forensics will boost Police's capability to generate leads for criminal investigations. Digital forensics and tackling cyber crime is another area of focus for HTX.

Dr Chia Shi-Lu asked about countering biological threats. The detection and handling of chemical, biological or radiological materials is an important area for HTX. HTX will work with SCDF and related agencies such as the National Environment Agency, to develop sensor systems to detect such materials, and the capability to effectively respond to incidents involving hazardous materials.

These unique capabilities demonstrate why MHA is setting up HTX instead of leveraging on other existing agencies like DSTA, DSO or GovTech. This is also Dr Chia's question as well as Mr Patrick Tay's. The mission, operating environment and requirements of these agencies are different from those of the Home Team. Technological solutions and applications need to be customised or in some cases built organically. This is a point that Ms Jessica Tan emphasised.

There is enough scale within the Home Team to merit a dedicated science and technology agency, give specific focus on areas that would otherwise remain ancillary. This is the nature of things. If you do not put it as the focus of a particular dedicated agency, then you must run the risk that these are ancillary to other agencies. Whether you can build up sufficient capabilities in a short time to counter the challenges, that would be a question mark. I think that is an important point to make because if we were not to be able to plug the gaps that we identify, it actually is a disservice to Singaporeans, who obviously expect us to be up to speed, up to mark in all of these areas that we face threats in. But I must stress that the agencies; even though they are dedicated and separate; they do not operate in silos. They do cooperate very closely with one another and later on, I will also give some examples.

Sir, allow me to now answer specific questions on the Bill's provisions.

Mr Patrick Tay asked who HTX will be accountable to. HTX is a Statutory Board under MHA. As such, the Minister for Home Affairs has overall responsibility for the agency. The Minister is in turn accountable to the Cabinet and to Parliament. And to Dr Chia Shi-Lu's specific question, about accountability for budgeting as well as utilisation, the same parliamentary and audit processes that apply to all Government Statutory Boards will apply to HTX as well.

I recall when I was in MOF, for example, the Estimates Committee which consists of Members of Parliament, posed tough questions on Ministries' uitilisation of Budget. HTX will be subjected to the same discipline.

Mr Tay also asked about the classification of HTX services as an essential service under the Criminal Law (Temporary Provisions) Act, or CLTPA. As the work carried out by HTX officers directly contributes to national safety and security, we have classified the science and technological services provided by HTX as an essential service under CLTPA. This is the same as services provided by the Home Team, which are also deemed as essential services. HTX employees, are however, not Home Affairs Uniform Scheme officers. They will therefore be allowed to join the unions.

Mr Tay asked about the transfer of employees to the new HTX scheme. The new HTX scheme of service will be introduced in December 2019, when the agency is set up. Clause 46 of the Bill ensures that existing officers on the Home Team Specialist Scheme who are transferred to HTX will enjoy terms no less favourable than those enjoyed by the respective individuals on the eve of transfer.

Mr Tay also raised important questions about career prospects as well as how we get the different cultures to work together. It is a Home Team culture, to begin with.

But the short answer to Mr Tay's question on career prospects is that it is certainly in HTX's own interest to ensure that officers feel motivated and want to give of their best. So, I see no reason why HTX leadership would want to slacken on this front.

Mr Louis Ng had a question about clause 11 of the Bill which lists the five categories of individuals who are disqualified from serving on HTX's Board, and why these are different from that of A*STAR and DSTA. The categories listed are the same as Statutory Boards that were set up in recent years. This includes GovTech and the Info-communications Media Development Authority, which are both agencies in the technology domain. Statutory Boards adopt these categories as a measure of good governance. As for his suggestion to standardise this across all Statutory Boards, we will refer this to the Public Service Division for their consideration.

Lastly, Dr Chia Shi-Lu had a question on funding for HTX. The funding for HTX will come from MHA's block budget and not from other R&D funding sources. HTX, like other statutory boards, will submit its annual report and accounts to Parliament.

Mr Speaker, I now turn to the points raised by Ms Anthea Ong, Ms Rahayu Mahzam, Mr Louis Ng and Mr Mohamed Irshad on the topic of data. Specifically, they have queries and suggestions on the collection, sharing and security of data – all of which are very important.

The collection of data will continue to be done by the respective Home Team Departments, in accordance with their statutory duties or to maintain their mission-effectiveness. That is something they will have to continue doing. For example, ICA is required by the National Registration Act to collect personal information from residents. Police officers may also ask for a person's particulars as part of a criminal investigation. It is unlikely that HTX officers will collect any kind of personal data in the course of their duties. I should make this clear.

HTX will, however, play the important role of the safeguarding the Home Team's IT systems and the data they hold. To support Home Team operations and ensure that our data is well-protected, HTX will run the MHA Security Operations Centre (M.SOC). Operating 24/7, M.SOC will proactively monitor and detect suspicious activities or attempted intrusions into the MHA network. M.SOC will also provide immediate response and investigate into cyber security incidents and issues.

While we continue to improve data security protocols, the sharing of data between public agencies must also carry on. As Ms Rahayu has pointed out, data and insight sharing across Government agencies can lead to better outcomes for citizens. One such example is how Traffic Police shares accident data with LTA. This helps LTA identify junctions or roads for engineering redesign and enhancements to improve road safety.

Ms Ong and Mr Mohamed Irshad also raised concerns about privacy as we improve our surveillance capability. I think Ms Ong talked about the stress related to increased surveillance. I believe Members of this House, being all public figures, can relate to that kind of stress.

We are very conscious of the need to protect privacy. In this regard, we have strict protocols in place, to ensure that only officers with proper authorisation can access them. The feedback we have received about POLCAM is that the public feel safer with the cameras. And indeed, in tandem with other Police enforcement efforts, POLCAM has resulted in the sharp reduction of many crimes such as property crimes and unlicensed moneylending harassment. POLCAM footages have also been critical in solving many crimes and locating missing persons.

MHA takes its responsibility as a custodian of the data it collects very seriously and will continue to pay careful attention to this. We will also work closely with GovTech and the Cyber Security Agency to ensure a whole-of-Government approach to data and cyber security.

MHA is currently working together with other Government agencies, to review our data security policies and practices as part of the review process under the Public Sector Data Security Review Committee led by Senior Minister Teo Chee Hean. The Committee is currently deliberating on specific measures to improve the data security regime for the Government and will submit a report to Prime Minister by 30 November 2019; Ms Ong noted this.

The Committee takes the key guiding principle that the Government places utmost importance on its duty to use citizens' data responsibly and securely. So, responsibility and security are the key guiding principles for the Committee. This is very much in line with the spirit of Members' suggestions on how MHA can protect citizens' data better.

I am sure that the Committee will also take into consideration Members' specific concerns and suggestions, and we will certainly raise them in our discussions with the Committee.

If I may paraphrase Ms Jessica Tan: we must also, at the same time as being cautious, not become paralysed by fear. If we do not try to use data responsibly and securely, for good purposes, then we will also never learn; and that would be a missed opportunity.

Ms Tan spoke about HTX’s future success being contingent on its ability to attract and develop science and technology talent. We agree fully. The key determinant of HTX’s success will be the quality of its people. That is why HTX will have a two-fold human resources strategy. First, developing the existing pool of officers, and second, attracting new talent to join the agency.

I spoke about how HTX will start off with about 1,300 officers brought together from the different Home Team Departments. Mr Patrick Tay has asked about the establishment. That is something that is still evolving because the agency is new. The agency has to decide on its priorities and what the focus will be for the next couple of years. It will not be too late to establish the sizing and the type of people we will need, when these priorities are firmly established.

We have started investing in the resources to further the professional development of our existing officers for a start.

This year, MHA has rolled out a new sponsorship programme for officers to take up more advanced degrees and professional certification. We must maximise the talent and potential of our officers, through continuous learning and upskilling.

To Mr de Souza’s point on the benefits of consolidating science and technology expertise, setting up HTX will indeed mean better career progression for Home Team scientists and engineers. A dedicated agency such as HTX can offer multiple routes of advancement for STEM talent, whether it is leading research teams, managing projects or leadership positions. This is quite clear compared to if they remain within individual Home Team Departments.

Besides developing existing officers, HTX will also be recruiting STEM talent in the next few years. This is in line with MHA’s increased investment in science and technology capabilities, which is projected to go up to $1.9 billion annually by 2025. Attractive scholarships will be introduced to groom future STEM leaders. Mid-career professionals with the right training, skills and aptitude will also be recruited to augment our talent pool. There may be some specific areas for which we may not have local expertise, and thus may need to source for them internationally. But I do not expect this to be very large.

For young Singaporeans taking up studies in STEM, I think it is a very exciting future for them. The establishment of HTX will add to the range of meaningful careers that they can take part in in Singapore, so that they can be at the leading edge of developing technology solutions to keep our nation safe.

Members like Mr Christopher de Souza also raised questions on how the new HTX agency will work within the broader science and technology eco-system. I think Dr Chia also raised similar concerns. Singapore today has a vibrant network of science and technology actors, thanks in part to Singapore’s investments in science and technology over the decades. Not only are there established multi-national corporations, we also have many innovative start-ups.

HTX intends to fully tap on this rich environment. Over the years, MHA has built strong collaborative relationships with key industry partners. Public-private co-creation through innovation trials have led to the development of new capabilities. SCDF’s iconic light fire attack vehicle, popularly known as the Red Rhino, is now in its sixth version. The vehicle’s evolution into an essential fire-fighting platform is the result of the sharing of ideas and experimentation with a local company Hope Technik from the time it was quite a modest start-up. Partnership with the private sector will continue to be a mainstay of MHA’s capability development efforts.

Mr Irshad will be glad to know that HTX will also partner other public sector Science and Technology agencies, such as GovTech, DSTA and DSO, to name a few. For example, HTX will coordinate and work closely with DSTA. In areas where DSTA has deep expertise and experience, such as Command, Control and Communications (C3) systems and marine systems, HTX and Home Team Departments will continue to tap on DSTA. This is just the most sensible thing to do.

I would also like to thank Mr de Souza for his suggestion that HTX share with other agencies as well as private companies. HTX will share its expertise and capabilities with agencies which have similar needs to the Home Team. For example, forensics and sense-making solutions can be used by other agencies with enforcement functions like the CPIB and Singapore Customs. As for the private companies, where the opportunities present themselves, we will keep an open mind.

Sir, I would like to conclude by thanking the Members for their questions and suggestions. The strong interest in HTX shows this House’s support for the Home Team, and the hard work they put in to keep Singapore safe and secure. The creation of HTX as a force multiplier for the Home Team ensures we remain mission-effective in the face of future challenges. And I am confident that HTX will deliver on its promise as the multiplier to transform the Home Team through greater use of science and technology. Mr Speaker, Sir, with the support of the House, I beg to move.

Mr Speaker, given the discussion around creating a Science and Technology eco-system, I was just curious and wish to ask Minister where will the HTX be located? Will it be amongst the community in the eco-system or will it be within the Home Team facilities?

Mr Speaker, it is a very interesting question. It also has to do with how we try to be prudent in our use of resources. So, it is in New Phoenix Park where MHA is located. We have found some space to accommodate the new HTX and we will work within our resources for a start because the emphasis really is on building the capabilities. We want the officers to have a good environment within which to work. The location of MHA is good in the sense that where public transportation is concerned, our ability to link up with our partners will be quite convenient.

Can I ask when we are expecting the 100,000 lamp posts to be smartened up? I know the contract was already awarded last year. So, could the Minister share with the House when we are expecting all our lamp posts to be watching us?

The smart lamp post project is actually led by GovTech. The Singapore Police Force (SPF) supports the initiative by providing potential use cases, what can we use the data for. The sensors will be used by SPF strictly to supplement our efforts in crime deterrence and detection. As far as I am aware, the installation of the sensors on the lamp posts and the back-end development is currently on-going. I believe that there is a trial that is projected to start in the second half of 2019. So, I think the Member can be assured that the agencies involved are very mindful that great responsibility is expected in how they carry out their duties with the data collection and storage as well as its use.

We may get requests from the public for access to this data, say, in the events of incidents taking place. What is the Ministry's view on requests from private individuals for access to this data?

Mr Speaker, with your permission, I am afraid we are straying a little bit from the topic that is being debated. As I explained, HTX itself is very unlikely to collect data. And as I also explained, the Home Team Departments will continue to collect data on their use. There are certain instances, for example, viewing of traffic footage that the public has access to. But for other kinds of data, we will have to look at them specifically, always guided by the principles of using data securely and responsibly. So, we will have to look at the nature of the request.

*Question put, and agreed to.*

*Bill accordingly read a Second time and committed to a Committee of the whole House.*

*The House immediately resolved itself into a Committee on the Bill. – [Mrs Josephine Teo].*

*Bill considered in Committee; reported without amendment; read a Third time and passed.*