Providing Housing for Single Unwed Parents and their Children

ADJOURNMENT MOTION

The Deputy Leader (Mr Desmond Lee): Mr Deputy Speaker, Sir, I beg to move, "That Parliament do now adjourn."

Question proposed.

Providing Housing for Single Unwed Parents and their Children

7.15 pm

Mr Louis Ng Kok Kwang (Nee Soon): Sir, for over 20 years, the voices of the single unwed parents have been heard in this House. Members have spoken with passion about the challenges facing single unwed parents and their children. Members shared their concerns about how it is the innocent children who would suffer from their continued exclusion from society by discriminating against single unwed parents.

We all agree that intact families are ideal, but as Members have previously raised, we live in an imperfect world. The single unwed is very often a victim of circumstance. In examining the inequality faced by a single unwed parent, Members, including myself, are not advocating for any extra assistance above and beyond what a couple receives. We merely ask that we not discriminate against a single unwed and his or her child, and that we treat them equally and with dignity.

Members have shared that a 2004 Cornell study concluded that children of single parents can do as well as children of dual parents, if the single parent is able to provide a sufficiently supportive environment. Withholding support from an unwed parent could end up disadvantaging the child.

Eight years ago, a Member asked and I quote, "Is the Government looking at the unintended negative consequences that result from the policies affecting single unwed parents? Are we examining the policies to see if there is an effect on the health, development and social mobility of the child?

Are we looking to see if inter-generational poverty is more likely to result? Do we care more about a set of stated principles or do we care more about the effects on our citizens?

If the Government wants to discourage the incidence of single unwed parents, there are much better ways that do not have such negative consequences."

What about housing for single unweds? Sir, 13 years ago, another Member already raised concerns stating that this policy of not allowing single unweds to rent HDB flats on their own is an outdated policy.

Twenty-two years ago, another Member posed this question in this House, "Does it therefore become morally justifiable to deny an unwed mother and her child public housing, say, a rental flat? Unwed mothers are not criminals. If denied public rental flat, what is their choice? The problem really is that unlike, say, London or New York, there is no large stock of affordable private housing for those who are deemed ineligible to qualify for public housing.

There is no real free market in the supply of public housing. We therefore have to really be careful when we turn people out and ask ourselves where they will live."

Twenty-two years later, I am glad that things have improved significantly. The Government has listened and responded positively. Just like married mothers, unwed mothers now have the full 16 weeks of Government-paid maternity leave and their children also qualify for a Child Development Account (CDA).

These are significant steps forward to level the playing field but this playing field remains unlevelled as, amongst several other issues, we have not resolved the issue of housing. Single unweds and their children need a roof over their heads. We should look especially at single unwed parents under 35 years old. Those 35 years old or above can qualify for public housing under the Singles Scheme so we know they have a way out there.

I also understand that in 2017, single unwed parents age 35 years old have a median salary of $3,100 and those 36 years old and above have a median salary of $3,500.

In stark comparison, single unwed parents under 35 years old have a median salary of only $600 in 2017. Their median salary has hardly changed over the years. It was $500 in 2013, $600 in 2014, $700 in 2015 and $600 in 2016.

We need to ask ourselves what options does a parent with a newborn and earning only $600 a month have? They clearly cannot afford alternative housing options and they are then left with one last option, which is to stay with their family members. I agree with that and we all wish that it happens.

Last month, I filed a Parliamentary Question asking the Minister for National Development whether HDB will, deciding not just on a case-by-case basis and without receiving an appeal, allow a single parent and his/her child to get a HDB rental flat when the duo cannot afford alternative housing options and will otherwise have to share a bedroom with existing family members in the family's home or stay in the living room because there is no spare room available. The reply was yes, they qualify.

I left Parliament elated that evening. Happy that single parents with no other available options could qualify for a rental flat. The happiness was short-lived. At my Meet-the-People Session (MPS) that evening, Mary, not her real name, came to see me. She is a single unwed with a five-year old child. Both her parents have passed on and she was staying with her daughter in the living room of her sister's flat. She was able to earn only about $300 a month as she had to look after her daughter.

She called HDB. She was told she and her daughter do not form a family nucleus and as such she did not qualify for a rental flat. They did tell her that she can apply but imagine the amount of anxiety a person desperate for a roof over their head faces when told that you are ineligible for a rental flat. I have sent HDB an appeal letter for her and I hope we will consider the appeal favourably.

Sir, Mary is not alone. Only about a third of rental applications submitted by single unwed parents to HDB are approved.

MND had previously said that "In relation to meeting the housing needs of children with single parents, a range of Government agencies work together to ensure that no child is without adequate housing, regardless of whether his or her parents are single or married".

I am glad that HDB has provided housing to single unweds under 35 years old and their children. But this is only on a case-by-case basis. Why? We all understand the rationale of a case-by-case review. We want to be careful. But what we are doing is adding stress for people who already feel they are at the end of the road.

Let me share another story of a single unwed whose extreme struggles were worsened by the stress and uncertainty of our housing policy.

I met Ema, not her real name, at my MPS last year. She is a single unwed mother and when I met her, her daughter was only two months old. They were both living in a shelter when they came to me for help.

Ema is one of the most resilient person I have met. She had to be. She is a living example of how housing has been a stress for all her life.

From the age of five to 15, she grew up in a children’s home. She was returned to her father for a short time before he disappeared from her life. She managed to stay with some relatives, but eventually had to move out because of tensions that come with staying in a home that does not belong to you.

At the age of 27, Ema had a child out of wedlock. Ema tried to apply for a rental flat and was told to see an Member of Parliament for help. She also got help from her social worker. Even her baby's doctor wrote a letter for her stating that, "As she (the baby) is currently staying in a shelter, she is frequently in contact with other residents who are unwell and hence predisposed to recurrent infection. As such, it will be greatly appreciated if the application for the HDB rental flat can be expedited."

Ema did not shed a tear when she told me her story and I asked her why. She told me that she no longer had any tears left. She was not asking for sympathy. She was simply looking for a roof over her head and her baby's head. I appealed to HDB to allow her to rent a flat and I am glad the appeal was successful. HDB replied that, "We are pleased to inform you that we have obtained special approval for you to rent a 1-room flat with your daughter on compassionate grounds."

I am glad the appeal was successful but the whole process was extremely stressful for Ema who had a newborn, had no income, had no family members to help her, was living in a shelter, which made her baby sick frequently. And she had to seek help from three separate sources.

Should cases like this not be a straightforward yes for a rental flat application rather than on a case-by-case basis? I think single unweds and their children will also face a strong stigma attached to them when they can only get a roof over their heads through special approvals on compassionate grounds.

As a Member had previously raised, I too question the logic where a divorcee with a child, a widower with a child and even two orphaned siblings can be considered as eligible to apply for a flat from the HDB, but not a single unwed parent with his or her child. Why?

Sir, surely there is some set of objective standards by which we can say, "Yes, you qualify for a public rental flat." Is there really a case where an unwed parent with no income, no assets and no family support should not qualify for a public rental flat?

And so, this is my first request: we should create and publish a set of eligibility criteria under which a specific group of single unwed parents under 35 years old can apply and get a rental flat without needing a case-by-case review or approval.

Since 2014, 380 single unwed parents have been successful in their application for a rental flat. This means that HDB should have enough data to identify clusters of people like Mary and Ema who undeniably need rental housing. For other cases, we can still rely on a case-by-case review. But let us start by providing a sure "Yes" to those who we know definitely need our help.

My second request is about the language we use. When single unwed parents do get approvals, I hope that HDB will no longer state that the decision was a "special approval" based on "compassionate grounds". Can we like all other applications, simply state that their application has been approved?

My third request is that we specifically state on the HDB website that a "Single unwed and his or her child" can apply, not guaranteed, but can apply for a rental flat.

My fourth request is that our frontline officers be updated and no longer tell single unweds that they are ineligible for a rental flat. Instead, they tell them like all other Singaporeans, they can apply if they meet the eligibility criteria stated on the website and HDB will access their application like all other applications.

Let us make sure they do not feel discriminated against.

My fifth request is that we introduce a scheme for "Single unwed under 35 years old and his or her child" to buy a 2-room flexi flat from HDB similar to other schemes like the Orphans Scheme or Joint Singles Scheme where there is a set of criteria one has to fulfill to apply for a flat. In the past four years, there were 121 requests from single unwed parents under 35 years old to apply for purchase of a 2-room flexi flat. Only 28 requests were accepted. The other applicants were assessed to be able to stay with family members.

Sir, if we told any other Singaporean that they were not allowed to buy a HDB flat as they could stay with their family members, I am quite sure there would be a huge public uproar. Why then do we do this to single unwed parents?

Sir, I understand that MND is mindful "not to undermine the prevailing social norm of parenthood within marriage" when helping unmarried parents. But this current housing policy does not prevent children being born out of wedlock. I understand the intent of the policy but we really need to question whether it works.

I have met a lot of single unweds and many did not plan to have a child out of wedlock. It was the heat of the moment and they got pregnant. In the heat of the moment, just before they have sex, nobody would stop and think, "Wait if we do this and get pregnant and don't get married, we won't be able to get a HDB flat. Let's not have sex."

All of us sitting here know that this will not happen. We have a policy that will not work. The only time when an unwed parent feels the impact of the policy is when he or she has a child and is looking for a roof over their heads.

The message that we are telling the single unweds is that they should get married. But do we want to force a couple to get married so that they can get a roof over their heads. What kind of a marriage would that be? Is this really in the best interest of the child?

There is another way out for the single unwed, which is to get married and then file for a divorce subsequently and get sole care and control of the child. They would then qualify for HDB housing. This really does not make sense. In fact, the single unwed and his or her child who previously did not qualify for public housing, will now not only qualify for public housing but might get priority to get a flat under the ASSIST scheme.

I know the Government is also concerned that if more help is given to single unweds, we will have a sudden increase in the number of single unweds. But this has not been the case, since we provided the 16 weeks of maternity leave and the CDA to single unweds and their children, there has not been an increase in the number of single unweds. In fact, there has been a decrease. There was also no public uproar when we extended these benefits to single unweds and their children.

Lastly, there might be concerns that people will have a baby just to get an HDB flat. Honestly, while there might be some who would do this, Members of this House will agree with me that the vast majority of people will not have a child out of wedlock just to get an HDB flat.

Our policies should cater to the majority and we should not let the majority suffer because of what we feel the minority might do to game the system. At the end of the day, we need to remember that there are children involved here. There might be arguments about what the single unwed should or should not have done and how they should face up and bear the consequences of their actions.

But the child is innocent and the child needs a roof over his or her head and the child needs a parent who is less stressed.

Sir, I have spent the last four years speaking up for single parents, filing Parliamentary Questions (PQs), during Bill speeches, filing Budget cuts and filing a parliamentary petition. Honestly, my wife is getting a bit worried as people now come up to me on the streets to ask if I am a single parent. At a recent meeting with a social worker to discuss about help for single parents, the social worker was so sure that I was a single parent since I spoke up so much about this issue.

Let me assure everyone that I am happily married with three beautiful kids and I do not intend to become a single parent. But I do not need to be a single parent to understand the difficulties they face, the stigma they endure and the struggles they go through each and every day. Single unweds are not asking for more benefits. They are asking that they and their child, all of whom are Singaporeans, be treated equally.

In conclusion, I hope that:

One, we can publish the criteria under which a specific group of single unwed parents under 35 years old can get a rental flat.

Two, specifically state on the HDB website that "Single unwed and his or her child" can apply for a rental flat.

Three, update all our frontline officers that single unweds can apply for a rental flat.

Four, no longer state in letters that single unweds obtain housing based on special approvals on compassionate grounds.

And five, have a scheme for single unweds under 35 years old and his or her child to buy a 2-room flexi flat from HDB.

Let me end with a quote as always. Being a single parent is twice the work, twice the stress and twice the tears, but also twice the hugs, twice the love and twice the pride.

I am here to stand up for single parents and salute them for all that they are doing for their children. I hope Members of this House will join me and us, and that our policies will continue to change.

Sir, I am not the first Member to speak up about this, but I certainly hope that I will be the last Member who has to fight to level the playing field for single unwed parents. It is 2019; it is time to level this playing field.

Mr Deputy Speaker: Senior Parliamentary Secretary Sun Xueling.

7.31 pm

The Senior Parliamentary Secretary to the Minister for National Development (Ms Sun Xueling): Mr Deputy Speaker, Sir, I would like to thank the Member, Mr Louis Ng, for his efforts in representing the voices of single unwed parents. He has provided useful perspectives for us to factor in, in our continuous review of existing policies. In his speech, he has provided useful feedback on how our policies are implemented, and also shared the experiences faced by single unwed parents when applying for a flat.

I understand that there may be single unwed parents with us here today in the public gallery and I would like to unequivocally state in their presence that single unwed parents and their children are valued citizens in our society, and like all parents, they are respected for the love and care they provide for their children. They are no less a mother or a father, just because their child was born outside of marriage.

Their children, like any other child in our society, are precious. And every parent, regardless of their marital status, ought to be treated with respect.

I acknowledge that in the past, the Government was fairly strict in limiting public housing access to married couples. However, over time, this position has evolved. For single unwed parents, we hope to facilitate their efforts to build a stable environment for their children.

At MND, we recognise that having a roof over their heads is a key concern. We are thus committed to ensure that no child is left without adequate shelter to grow up in. I believe Mr Ng can attest to the fact that most of the cases that he has shared with HDB have been helped by HDB. He shared earlier the case about Mary. If this is the applicant and the case that I am aware of, I would like to update that her appeal for a rental flat was approved 11 days after she first contacted HDB.

I would like to first explain our approach towards public rental applications. We believe home ownership provides long-term stability and progress for all Singaporeans. This is why HDB reviews every application for public rental individually, to see whether the applicant can purchase a flat or stay with their family. This means working out each family’s housing budget and engaging them further to understand their situation, together with social workers if need be.

Such an individualised approach is taken for all public rental applications and not just for single unwed parents. HDB receives about 7,000 public rental applications per year. But we continue to take an individualised approach towards rental applications, as each of our applicants may have unique and complex backgrounds and circumstances, which would benefit from a more in-depth look.

Mr Ng suggested that HDB should have some clear criteria for when single unwed parents can get a public rental flat. I agree with Mr Ng that there may be some common and objective factors we can identify, for example, income. But I would like to add that income is but one indicator of the needs of the applicant. We do not rely on a few predetermined metrics to understand the applicant’s circumstances. These are guidelines, and from HDB's perspective and experience, applicants can have more differences than similarities in their circumstances.

For instance, the applicant could have medical conditions, which could impede his or her ability to live independently at the point of their application to HDB. This may be highlighted to HDB by the applicant’s social worker. In such cases, once there is a new assessment by the social worker that the applicant is ready to live independently, HDB would proceed to allocate the applicant a rental flat.

So, HDB does not apply a one-size-fits all policy. Where appropriate, HDB will work closely with social workers to assess the best option for the applicant at that point in time.

Next, I will touch on home ownership flats. Mr Ng has suggested a dedicated scheme to allow single unwed parents under 35 years old to buy a 2-room flat from HDB. I appreciate Mr Ng’s intent and understand where he is coming from.

We will study Mr Ng's suggestion carefully, bearing in mind that HDB also has to meet demand for new 2-room flexi flats from other applicants such as singles above 35 years old and seniors who are looking to right-size or buy a short-lease flat.

The number of single unwed parents who apply to HDB for rental or purchase flats every year is not large. We take a holistic approach for every application, as our concern is to safeguard the best interests of the child, especially in situations where the parent is single, young, not working or drawing a low, or perhaps irregular income.

I want to assure Mr Ng and Members of this House that HDB will not outright turn away any single unwed parent who approaches us to seek housing assistance. In every case, HDB will engage the parent to understand more about their circumstances, including their financial and family situation. When purchasing or renting a flat of their own does seem to be the best arrangement for the parent and the child, HDB will support their application.

Finally, Mr Ng raised a few suggestions on how we can better communicate with and engage single unwed parents on their housing applications. He emphasised that single unwed parents should not be made to feel discriminated against. I wholeheartedly agree that we should review our communications and avoid unintentionally causing additional anxiety to single unwed parents, who may already feel tremendously stressed by their circumstances.

I have discussed this with the HDB Team, and there are a few that we will do.

First, we will conduct a comprehensive review of the various touch-points which single unwed parents may encounter in their housing journey, from the e-applications system to our HDB branches, to improve and align our communications. Second, we will review HDB's website to explicitly state that single unwed parents may approach HDB to apply to buy or rent an HDB flat, and how they can go about submitting their requests to HDB. Third, we will also look at the inclusion of a dedicated section in HDB’s website to address common housing queries from single unwed parents.

We hope that these measures will help allay the anxieties from single unwed parents. Single unwed parents and their children are our valued citizens. We are committed to do better and to engage with them better.

Mr Deputy Speaker, Sir, when I came into politics, I was determined to always interact with my residents with respect and empathy. I am not sure if I have succeeded as much as I would like to have, but I feel that I have tried my hardest. I believe that similarly that HDB's frontline staff do their best, but I suspect that the customer experience may not altogether be even.

Further, policies may not always be able to cater to every single citizen’s needs, which can result in frustration on both sides. But there must always be empathy in our interactions and this works both ways. I hope that when our citizens interact with HDB staff and officers, there is also mutual respect on both sides.

I have spoken with the HDB. They are working hard to improve their frontline services for every citizen. They handle a large volume of queries and feedback, around 2 million queries over the phone, walk-ins and emails every year. They have told me that they are committed to do their work well and uphold high service standards.

Mr Deputy Speaker: Ms Sun Xueling, under the Standing Order, the Adjournment Motion must end within 30 minutes. You have only two more minutes. Could you round up, please?

Ms Sun Xueling: Thank you. HDB will continue to improve their processes in engaging single unwed parents and in helping them find the best environment for their child to grow up in.

In conclusion, I would like to reiterate that we accept all applications from single unwed parents who approach HDB to apply to purchase or rent an HDB flat and will consider their applications holistically. We will review the various touch-points, experience and process of the housing journey for single unwed parents.

HDB is committed to doing better. I would like to assure Mr Ng and this House again that applicants will not be rejected merely due to their status as a single unwed parents. HDB will approach each and every single unwed parent who puts in an application to better understand their circumstances.

We seek everyone’s understanding and patience. At the heart of it, I want every single unwed parent to know that we share their desire to ensure the well-being of their children, and we will try our best to support them to this end.

Lastly, I thank Mr Ng for his suggestions and his work, and I hope that we can continue to work together to support our single unwed parents.

Mr Deputy Speaker: Order. The time allowed for the proceedings has expired.

The Question having been proposed at 7.15 pm and the time allowed having expired, Mr Deputy Speaker adjourned the House without Question put, pursuant to the Standing Order.

Adjourned accordingly at 7.45 pm.