Speech by Senior Minister of State for Transport and Sustainability and the Environment, Dr Amy Khor for the Second Reading of Road Traffic (Amendment) Bill 2021

1.     Mr Speaker, this Bill introduces amendments that will make our land transport system more future-ready and resilient. I thank the Members for their queries, suggestions and support for the Bill, and will address them in turn. 

Autonomous Vehicles

2.     First, the Bill makes changes to the Road Traffic Act (RTA) to update our regulatory framework to facilitate trials of Autonomous Vehicles, or “AVs” for short. Specifically, clause 3 of the Bill extends the sandbox that permits the AV trials from 2022 to 2027. I am glad that many Members spoke up in support of this extension. 

3.     Singapore has been facilitating AV trials on public roads since 2015. Today, a growing ecosystem of leading AV firms from China, Europe and the United States of America (USA), such as Motional, Continental and Desay, have been conducting research and development (R&D) trials here. Local AV enterprises, such as ST Engineering Autonomous Solutions, have deployed on-demand commercial AV services. However, fully autonomous transport remains a long-term aspiration, requiring more R&D.

4.     Therefore, extending the sandbox by five years until August 2027 will allow these companies to continue to develop and trial AV technology for local deployment. The sandbox will also support the large-scale pilot deployment of autonomous buses and shuttles that Mr Saktiandi Supaat and Mr Melvin Yong asked about. 

5.     As previously announced, this will take place in Punggol, Tengah, and the Jurong Innovation District, under the Call-for-Collaboration launched by LTA. This large-scale deployment will help us better understand the requirements for mass deployment, such as whether infrastructure upgrades are needed. LTA will provide further updates in the lead up to deployment in mid-2020s.

6.     The AV sandbox is meant to cover the trial and use of vehicles equipped with autonomous systems that enable the operation of vehicles without active physical control or monitoring by a human on public roads. Mr Yong asked about the use of the Advanced Driver Assistance Systems, or ADAS. ADAS technology requires active monitoring by human drivers and therefore, does not fall within the realm of AV technology. 

7.     Before approving any motor vehicle for registration and use on public roads, including those fitted with ADAS, LTA checks to ensure the vehicle model’s compliance with stringent safety standards, such as those set out by the United Nations Economic Commission for Europe (UNECE) and the vehicle construction and use rules under the RTA. As ADAS technology grows more advanced, we agree with Mr Yong’s observation that it may carry new risks. We are monitoring global developments closely, and will consider further regulation if necessary. 

8.     Besides the sandbox, another move LTA made to support AV trials was to expand the AV testbed in 2019 to include 1,000km of public roads in western Singapore, covering a wide range of traffic scenarios and road conditions. This has served the needs of AV developers interested to deploy AVs in Singapore. 

9.     However, there are developers who may be considering other environments for their trials beyond western Singapore as suggested by Ms Poh Li San, and LTA is open to such considerations when assessing their trial applications on a case by case basis.

10.    In trialling AVs, public safety is our top priority. This is why LTA has put in place stringent safety assessments. Mr Saktiandi will be pleased to know that there are milestone tests in place today, administered in a specially-designed facility – the Centre of Excellence for Testing and Research of AVs at NTU, or CETRAN. All AVs must undergo and pass these tests prior to on-road trials. All AVs must also have a qualified safety driver onboard who can take immediate control of the vehicle during trials, should the need arise. These safety drivers are subject to the same responsibility as drivers of manned vehicles in ensuring the safe driving of the vehicle. The requirement for safety drivers will remain in place until AVs are able to operate safely without a human driver. 

11.    We agree with Ms Poh’s observation that the liability and insurance framework for AVs is just as important as the underlying technology. This is why all AV developers, as owners of the AVs, are legally required to purchase third-party liability insurance for all AV trials. In the event of an accident, the insurance will cover any losses or damages that the owner and any authorised safety driver may suffer, as a result of any injury, death and property damage caused to any third party. This is not much different from the motor insurance coverage for manned vehicles. All AVs must also carry data recorders to collect data to support investigations in case of incidents. 

12.    But as we move towards fully autonomous transport in the longer term, MOT and LTA will need to adapt and review the liability framework for motor vehicles. Among other things, we are working with legal experts and insurers to better understand how to ascertain and assign liability in the case of accidents involving autonomous driving systems, as suggested by Ms Poh.

13.    While there are potential benefits, Ms Poh has also rightly pointed out that AV technology can be disruptive. We will pace the transition carefully so that livelihoods will not be severely disrupted. 

14.    In 2019, to demonstrate our commitment to upskill our public bus captains, LTA signed a Memorandum of Understanding with industry stakeholders, including the public transport operators and the National Transport Workers’ Union. This will ensure that public bus captains are equipped with the necessary skills for new job roles, to continue contributing to the public transport system even when autonomous buses are introduced into the public transport fleet.

15.    For taxi and private hire car drivers, LTA will be updating the vocational licence training curriculum after engaging the industry. The new curriculum will keep drivers up to date on new technologies such as AVs and digitalisation in the future economy. 

16.    LTA will be seeking feedback from the industry, as well as the National Taxi Association and the National Private Hire Vehicles’ Association, before finalising the new curriculum.

Vehicular Taxes

17.    Second, the Bill will update and future-proof our vehicular tax system, which is a key part of our vehicular controls and management. All vehicles used or kept in Singapore are subject to taxes upon registration. But there are some exceptions. 

18.    For instance, ambulances and fire engines are exempted as they provide essential public services. However, when these vehicles are no longer on a tax-exempt scheme, it is only fair to all other vehicle owners and drivers that taxes are re-imposed on these vehicles. The Ministry of Health (MOH) has announced enhanced regulatory standards for private ambulances and medical transporters. 

19.    When these new standards take effect from 1 September 2021, some vehicles might no longer be able to function as ambulances, and hence will no longer qualify for tax exemption.

20.    We are amending the RTA today, as shown in Clauses 6 to 8 of the Bill, to facilitate and clarify LTA’s existing practices, and to streamline the existing legislative provisions related to tax re-imposition. At the same time, we will amend the RTA, via Clauses 4 and 5 of the Bill, to facilitate the recovery of undercharged or under-declared taxes as fines, similar to the existing provision for the Government to recover road tax arrears.

Persons Search

21.    Third, the Bill will make changes that help ensure our public transport system remains safe and secure. Clauses 24 and 31 of the Bill empower the Police and authorised officers to carry out security searches on persons on the public transport system. 

22.    The terrorist threat to Singapore remains serious. Considering that the public transport system plays a critical role in Singapore, we need to remain vigilant and safeguard it against such threats.

23.    Members asked for the authorised officers to be appropriately trained to ensure security searches are conducted professionally, as well as in a discreet and polite manner without entrenching stereotypes. These security searches are conducted similar to those carried out at major events, such as National Day Parade.

24.     I would like to assure Members that authorised officers carrying out security searches would have to undergo proper training and must complete the necessary Security Workforce Skills Qualifications (WSQ) courses, approved by the Singapore Police Force, before their deployment. In their training, the authorised officers are taught how to spot anyone displaying suspicious behaviour, without bias against any race or religion. Upon completion of the training and certification, only can they be considered as “Senior Approved Persons”.

25.     Members asked about the types of measures that would be applied during frisk searches to prevent passengers from being taken advantage of. I would like to assure Members that all authorised officers have to be in uniform when conducting frisk searches. In addition, security searches will be conducted within the video surveillance coverage, to provide assurance to the public that any alleged abuses will be investigated accordingly. To safeguard the modesty of a female person and to ensure frisk searches are conducted professionally, only authorised female officers could conduct frisk searches on a female person. We also have the powers to enforce against imposters, as provided under Section 11B of the LTA Act.

26.    Mr Saktiandi also asked how we will ensure the safety of the public and authorised officers, especially during the current COVID-19 pandemic. Adequate safe management measures have been put in place. Authorised officers are required to strictly adhere to these measures as well as the MOH’s health advisory. The authorised officers are also reminded to practice good personal hygiene. All security equipment is regularly sanitised after each use. In addition, hand sanitisers will be provided for commuters to use.

Broader Land Transport Issues

Illegal Vehicle Modifications

27.    I will now address broader land transport issues raised by Members. 

28.    I would like to assure Mr Murali Pillai that under the vehicle construction and use rules, we already require vehicles to be road-worthy, such as having well-functioning brakes and headlamps. With regard to illegal modification, it is already an offence for any person to illegally modify a vehicle. They can be fined up to $5,000 and/or jailed up to three months. The penalties are doubled for repeat offenders. Like Mr Derrick Goh suggested, vehicular inspections are a key touchpoint during which illegal modifications can be detected. We introduced the Enhanced Inspection Regime, where vehicle owners caught with illegally modified exhaust systems for a second or subsequent time will be subjected to more frequent mandatory vehicle inspections. 

29.    I shared with this House in March about the challenges of enforcing against errant motor workshops. That said, we have stepped up enforcements islandwide. Just last week, a motor vehicle workshop was charged in Court for illegally modifying two cars’ exhaust systems. This is a very serious offence, as modifying a vehicle’s exhaust system may lead to public safety concerns when the vehicle is used for racing, or result in public nuisance due to excessive noise. 

30.    Vehicle safety is a key concern, and we will do more to deter illegal modifications. To this effect, we will strengthen penalties for illegal exhaust modifications for greater deterrence. For first-time offenders, LTA currently issues a composition sum of $500. Going forward, LTA will double the composition sum to $1,000 for new offences committed from 1 July this year. We will also not hesitate to take offenders of more egregious cases to court, even if they are first time offenders. Furthermore, for repeat offenders, LTA will apply to the court to detain the offending vehicle for up to three months.

PAB Theory Test, and Cycling

31.    I am glad that many Members have voiced their support for the theory test for e-scooter and power-assisted bicycle (PAB) riders. 

32.    This is not a licensing regime, which would be more onerous for riders. Instead, it is a one-time theory test, which will ensure that riders are familiar with active mobility rules, regulations and code of conduct. The amendments to the RTA today will enable us to implement a single theory test for PAB riders on roads and cycling paths. 

33.    To answer Ms He Ting Ru’s query, the minimum riding age for PABs and e-scooters is 16 years old and will be required to take and pass the test before being able to ride. E-scooter riders below the age of 16 can only ride under adult supervision, and the supervising adult will need to have passed the test.  

34.    LTA just launched the English handbook for e-scooter and PAB riders, and we will make available the Mandarin, Malay, and Tamil translations shortly. The handbook is available free-of-charge, and we will study suggestions raised by Members on more widely disseminating the information, including through schools. 

35.    To address Mr Gan Thiam Poh’s question, the handbook includes information on what to do in an accident, on top of rules and code of conduct, and a section on equipment check. On Mr Darryl David’s question on including a practical component, the theory test is a useful start to address the lack of knowledge of rules and to tackle deliberate errant riding behaviour. We will continue to monitor the landscape and update the testing requirements if necessary, while balancing against how onerous the regime will be on PAB riders.

36.    Many Members have asked about the theory test. LTA will release more details in June, but I will address some key points, such as the cost of the test, and if it will be accessible to those with difficulties taking an online test, including seniors. We will keep test fees affordable to minimise the financial impact on riders, especially those who ride for their livelihoods. 

37.    For the first three months, the test will be chargeable at $5 for two attempts. In case members do not understand what this means, let me clarify. $5 for two attempts means, if you try for the first time, it is $5. If you pass, we are happy for you. If you cannot pass, you can take the test again for free the second time. That is $5 for two attempts. This is a discounted rate to encourage greater test take-up. Subsequently, the test will be chargeable at $10 for each attempt. The test will be conducted online in the four official languages. 

38.    Special provisions can be made on a case-by-case basis for those who are not digitally savvy or illiterate. Upon passing, digital certificates will be issued to the rider. We will have the means to verify unlawful manipulation of the certificate. 

39.    We will provide an adequate transition period for riders to prepare, take and complete the test before enforcement kicks in. 

40.    I would like to assure Ms Yeo Wan Ling that the process to register for and take the test, including retakes, will be kept simple with minimal turnaround time. We will work through the NTUC, food delivery companies and active mobility interest groups to raise awareness and ensure that all riders are certified before they ride. I am glad to hear from Mr Abdul Samad that the NTUC is working on a training programme to prepare delivery riders for the test. Mr Choo asked if the new Section 47K imposes liability on platform companies. 

41.    Yes, it will be an offence for a company to allow an uncertified rider to ride on the road with the knowledge that the rider is uncertified, or being negligent as to whether the rider is uncertified. 

42.    To Mr Gan’s and Mr Goh’s queries on errant riders caught flouting traffic regulations, they are already required to undergo the Safe Riding Programme, which includes theory and practical components today. 

43.    On enforcement, Mr Saktiandi’s and Mr Gan’s suggestion of using technology is a good one. LTA’s MyTransport.SG mobile application has a ‘snap and send’ function that enables members of the public to report errant riders. LTA is also trialling using CCTV technology and video analytics to identify errant riders. These will complement on-going enforcement efforts. 

44.    Mr Yong, Mr David, Dr Shahira Abdullah, Mr Dennis Tan and Mr Sharael Taha have also asked about the safe use of bicycles on our roads and paths. This has been an ongoing effort, and one which the LTA has devoted much attention and resources to. Over the years, we have put in place a regulatory framework to provide clarity on rules, launched outreach and public education programmes, and enhanced our enforcement efforts against errant riders. We are continuing with these efforts.

45.    SMS Chee Hong Tat spoke about this at length, including how we are expanding the active mobility infrastructure as Mr Yip Hon Weng and Ms Raeesah Khan has suggested. We have recently asked the Active Mobility Advisory Panel, or “AMAP”, to conduct a review to improve road safety for both cyclists and motorists. Among other issues, AMAP will study how to enhance public education and awareness of rules for all road users – both cyclists and motorists alike. 

46.    AMAP will engage different stakeholders and submit their recommendations in due course. At the same time, we will press on with enforcement against both errant riders and motorists. That said, I would like to point out to Mr Dennis Tan that road safety has to be a collective effort from all road users to play their part by driving and riding safely, to be considerate to one another, and to do their part to build up a safe riding culture.

Lorries Transporting Workers

47.    Mr Yong, Mr Murali, Ms Hazel Poa, Ms He and Dr Shahira have asked about enhancing the safety of using lorries to ferry workers, and provided many suggestions. 

48.    This issue is not within the ambit of the Bill and has already been addressed extensively yesterday, and I will not deal with this in detail again. Nonetheless, I will reiterate some key points. Let me first clarify that the exemption under Section 126 of the RTA applies to all workers, regardless of nationality. 

49.    As I mentioned yesterday, we are deeply saddened by the recent accidents involving lorries ferrying workers and understand the concerns raised by Members. We share these concerns. However, we also cannot just ignore the fact that the injury and fatality rates involving persons on-board lorries have come down over the last decade, as various measures, such as side railings and canopies, enhanced test requirements for drivers, sustained engagement and enforcement, have been implemented. 

50.    Internationally, practices involving the use of lorries to ferry workers are varied, and we have studied this widely. While some Members have identified countries that disallow the practice, there are also countries such as Canada, Thailand and the USA that allow workers to be ferried in the rear deck of lorries, albeit with safety precautions and some restrictions. This is an important point to highlight and shows that what we have been practising is not uncommon. There are also very significant practical and operational issues – on top of just cost considerations – that need to be considered in any enhancement of existing measures. These are not vague statements, but concrete feedback given by many companies and SMEs, and reflect the realities on the ground. Regulatory changes now will cause even more acute pain to the industry, given that the industry is being severely affected by COVID-19. Such moves will have wider ramifications, including on livelihoods for both local and migrant workers. If the Member who raised this, Ms He, speaks to SMEs on the ground, I am sure she would know this even without having to do a study. So, while it is clearly not just about costs, to argue as though cost does not matter at all is not practical and does not gel with reality. 

51.    What we have been striving to do is to preserve the safety of workers, and at the same time, ensure that they can continue to have their jobs – and for the migrant workers, this is the very reason why they are here. We will continue to review the existing safety rules, engage stakeholders along the way, take in feedback and suggestions and to find a sensible and balanced way forward. Taking into account all concerns for the benefit for all. In the meantime, we will continue engaging employers and drivers of lorries to remind them about our rules and encourage safe driving behaviours. We will also step up enforcement against any non-compliance with regulatory requirements. Between January and April this year, the LTA has issued 227 notices of offences, and we urge all employers to do their part in ensuring the safety and welfare of their drivers and workers. 

Conclusion

52    In sum, the Ministry of Transport will continue our efforts to make Singapore’s land transport system more future-ready and resilient. This Bill is part of that work, and I thank Members for their support.