Rethinking Redevelopment and Green Preservation

ADJOURNMENT MOTION

The Deputy Leader of the House (Mr Zaqy Mohamad): Mr Speaker, Sir, I beg to move, "That Parliament do now adjourn."

Question proposed.

Rethinking Redevelopment and Green Preservation

Mr Speaker: Mr Dennis Tan.

6.48 pm

Mr Dennis Tan Lip Fong (Hougang): Mr Speaker, I speak today on a matter of increasing urgency and public concern. The need to fundamentally rethink how we assess and justify the trade-offs between essential development and the preservation of our existing green spaces. The question is how we move our planning calculus from measuring gross inputs to ensuring net positive outcomes for our environment and our people.

Part one: context and scarcity trap as a policy decision. Mr Speaker, Singaporeans broadly understand and accept the real constraints we face: land scarcity, the need for new housing, infrastructure, renewal and climate adaptation. We support the need for development, but Singaporeans also care deeply about the quality of life, the neighbourhood liveability, the mental well-being afforded by nature and the preservation of mature landscapes.

A tension we observe on the ground arises not because of development and preservation are inherently incompatible, but because in practice these two commitments are not weighted equally in our decision making. For too long, the default notion used to justify redeveloping green spaces we need to develop in land scarce Singapore has been used as a thought terminating cliche. It is factually correct, but it serves to end deliberation rather than begin it.

This position was clearly articulated by the then Minister for National Development, Mr Desmond Lee, when addressing similar development trade-offs. In his reply to my written Parliamentary Question on the development of Clementi Forest on 4 January 2021, and I quote: "after weighing the alternatives and trade-offs, there will be areas that we cannot avoid developing. Nonetheless, for these sites, possible environmental impacts will still be carefully managed, and natural elements will be integrated within developments where possible."

While the intent to manage impacts is welcome, my Motion questions the starting premise, whether this insistence on development is truly unavoidable, or if our current framework has a structural tilt that forces the conclusion of no choice. No choice too early in the process, sometimes before assessment can be done for a fully informed deliberation. Likewise, once a land is zoned B2 Industrial, rightly or wrongly, should the Ministry of National Development (MND) or the Urban Redevelopment Authority accept that it will always be irreversible, even if there is rich biodiversity from 10 to 20 years, 25 years or more of forestation, including the existence of vulnerable birds?

Mr Speaker, land scarcity in Singapore is real, but it is not neutral and it is not value free. It is shaped not only by geography, but by a series of long-standing planning assumptions that I would urge the Government to revisit. When green spaces, whether greenfield or brownfield sites are presented as inevitable sacrifices, we must ask, have we genuinely exhausted all options to better rationalise existing cleared land? Have we truly intensified underutilised spaces, gone underground or rethink land intensive systems before concluding that forest must once again bear the cost?

The issue, therefore, is not whether Singapore should develop, but whether our decision frameworks adequately account for what we lose. We must ask whether our structures truly account for the cumulative long-term and irreversible losses. They are the inevitable consequence of endless densification.

Part two: the Serangoon River Forest, a case study of policy failure. Mr Speaker, this structural tilt is vividly illustrated by the ongoing works at the Serangoon River Forest, a mature ecological space officially named by some of my residents, which has been earmarked for a B2 industrial estate. Works to develop a bus depot in the middle of the part of the forest between Tampines Road and Buangkok East Drive began a few months ago to the chagrin of my residents living less than 200 metres away, including residents at Kingsford Waterbay Condominium. I have been engaged by my residents and many others in Hougang, who highlight this area's role as a last green lung in their vicinity, indeed in the east of Singapore.

Their concerns have also been reflected in media coverage. The most striking policy issue here is the lack of transparency in the process of assessing the site's current value and whether the process can be further enhanced. It is clear from the response to my Parliamentary Question in November 2025 by MND, that no environmental impact assessment (EIA) or baseline biodiversity study was required before the Government decided on and commence the bus depot construction. The justification given for this exemption is that the site is classified as a brownfield site, comprising primarily young regrowth scrubland. This classification appears to rest on the historical use of the surrounding area stretching up to Lorong Halus, which included two kampungs, agricultural, sewage and landfill activities before the land naturally reforested over the last 10 to 25 years between Tampines Road and Pasir Ris Industrial Drive 1.

Mr Speaker, this is where the structural tilt becomes a structural failure of imagination. A brownfield destination prioritises the past commercial zoning over the present ecological function. It allows the Government to look at a 10- to 25-year forest and call it scrubland, simply because it was historically a developed site. Thus, the mere fact that the site was once developed, stripped a current mature forest of its ecological and social worth. Thus, the label "brownfield" gave us a permanent exemption from the duty to conduct an EIA or a baseline biodiversity study, regardless of the vegetation's age and density.

If we are committed to regreening Singapore, we must acknowledge that natural rewilding is a success story, not a planning inconvenience. When we encounter brownfield sites where natural rewilding has occurred, could we assess them not solely by what they were, or even what they are at this moment, but by what they are demonstrably becoming? By proceeding without an EIA, we lose the opportunity to gather essential objective data on the exact species, including vulnerable birds cited by residents and groups like the Nature Society of Singapore, the actual maturity and cooling capacity, and the critical ecological connectivity at the site.

This absence of data means the decision to clear is made in an information vacuum, relying on decades old zoning, rather than current, verifiable ecological reality. The question is not whether such sites meet a narrow threshold of environmental significance today, but whether they are on a clear ecological trajectory that, if allowed to continue, will support meaningful biodiversity over the next 10, 15 or 20 years or more.

A second policy question is whether all planning assumptions have been revisited to site the bus depot on existing developments in the area instead of the developing on new space. This is not an issue pertinent to Lorong Halus Bus Depot alone, but for all pending development on green spaces. Are there unpopular but critical planning choices we could make to preserve the little greenery we have left? For example, Singapore's road network occupies 12% of our total land area today, remaining at the same percentage for the past decade, even though car ownership per household has declined and is estimated to serve 481,000 households.

At the same time, public housing occupies only 8% of land take per data from a 2019 Parliamentary response, yet serves more households, and nearly 80% of the 1.46 million resident household in Singapore. Is there a symmetry in our planning outcomes where some land users consume a disproportionate share of land relative to the households they serve, yet are rarely subjected to scrutiny with green spaces bearing the cost?

These figures are not cited to argue against roads or transport or any form of infrastructure development, which are clearly essential. Rather, they illustrate an asymmetry in how land use trade-offs are examined. When housing, transport or other established systems require land, their footprints are often treated as given. When green spaces are involved, however, the conclusion that I must give away is often treated as the more convenient choice.

The policy question I urge the Government to review is, are we prepared to more aggressively review and make difficult decisions for land hungry systems, either by reducing usage or going underground or above ground, rather than repeatedly clearing the remaining greenery?

Mr Speaker, there is also a profound inter-generational dimension to this issue that we cannot ignore. When we defer the hard task of rationalising land hungry systems today, we effectively pass the burden of rationalisation to future generations, while simultaneously depriving them of the very green spaces that could have provided environmental resilience, cooling and liveability. So, in other words, future Singaporeans will inherit the same land intensive system, but with even less natural capital left to work with.

When we clear a mature green space and replace it with hard permanent infrastructure, we lock in a particular development pathway, often for decades, sometimes permanently. Built infrastructure can be more easily and quickly adapted, intensified or removed as needs change. Green spaces are not like that. When we clear an established forest or green corridor, the loss is immediate, but recovery is slow. The cooling effect, ecological function and the biodiversity that took decades to develop cannot simply be reconstructed on demand. Even with replanting, it may take many years of equivalent functional value to return. The clearing of green spaces should be subjected to a higher justification threshold than land uses that can be undone for as long as alternatives exist, whether through co-location, going underground, intensifying existing sites, or reconfiguring underutilised land.

As we face rising temperatures, more intense rainfall and increased urban stress, the ability to redeploy land for cooling, absorption or ecological buffering becomes more valuable, not less. Decisions that permanently eliminate these possibilities should therefore be subject to especially careful scrutiny. A more balanced decision framework would explicitly ask, does the development lock us into a path that cannot easily be undone? If so, is that loss of flexibility justified by truly exceptional public benefit?

Part three: the true cost of loss, functional value and irreversibility. Mr Speaker, our current metric of success often stops at gross numbers. We will plant one million more trees. But this target, while laudable, obscures the net loss when mature greenery is cleared, especially when the decision is not informed by an EIA.

Loss of functional value, cooling and ecology. The Serangoon River Forest is not just a collection of trees. It is a vital part of the climate control system for this part of the northeast of Singapore.

Heat mitigation. Studies showed a pronounced urban island effect in densely built areas. Mature-dense canopies provide the most effective passive solution to shade and cooling through evapotranspiration. By removing this forest, we are imposing an immediate permanent environmental cost on the surrounding Hougang, Sengkang, Punggol, Tampines and Pasir Ris residents. Higher ambient temperatures reduce shade and degraded thermal comfort.

Ecological and social value. Ecological science tells us that green spaces function as systems, not isolated plots. Clearing these mature land risks fragmentations of a key corridor. This is a bigger stretch of green spaces on the eastern half of Singapore, from Tampines Road to Pasir Ris Industrial Drive 1. Yet all zone industrial B2.

Beyond nature, further development would result in residents in Hougang, Sengkang, Punggol and elsewhere in north-east losing a space that provides a unique sense of wellbeing and community life, an intangible asset that no number on a balance sheet can capture. The building and a bus depot are sadly the first step in that direction.

Water absorption studies conducted by the Nanyang Technological University in 2021 showed that forested areas provide a critical sponge effect, intercepting rainfall and regulating run-off. Given the increasing unpredictability of rainfall and the greater incidence of ponding, removing this function, especially near a river, is a decision that must be weighed with the utmost care against potential flood risk.

Finally, exercising along a natural forest offers far greater mental health benefits than walking along a sterile concrete canal. Economic valuation confirms that preserving the Serangoon Forest provides superior welfare for residents using the park connector all the way to Punggol.

The cost of time and interim conditions.

Mr Speaker, if the replacement benefit takes decades to materialise, are those years of increased heat, reduced air quality and the degraded surroundings treated as real cost in the project balance sheet? When we evaluate mitigation, we must factor in time and irreversibility. If a functional loss is permanent or requires a recovery period of say, five, 10 or 20 years, it must face a substantially higher justification threshold than a minor reversible inconvenience.

Next, part four: a new framework – net outcomes and functional value. To address this structural tilt and prevent further decisions based on historical zoning instead of current functional value, we need a balanced decision framework that explicitly values what we preserve. I propose the following elements for a revised planning and assessment framework.

One, net outcomes over gross inputs. We must measure the net change in unfragmented canopy cover, cooling effect and ecological function. We must factor in the time to replacement when evaluating mitigation, acknowledging the ecological premium of mature established greenery.

Two, mandatory functional assessment. The brownfield classification must no longer provide an automatic exemption from environmental studies before development. Any vegetated site above a certain maturity or size must undergo a mandatory functional assessment, regardless of its zoning history to determine its current role in heat mitigation, flood absorption and ecological connectivity and preservation.

Three, functional value and strategic green belts. We must prioritise green spaces by what they do in a regional context. As the Government plans the massive new Housing and Development Board (HDB) town at the Paya Lebar Air Base site, it must recognise that large parts of the limited existing green spaces within and on the eastern fringe of the air base will be developed or severely affected by the construction. These air base green spaces may be smaller or have less ecological merit than the current Serangoon River Forest, stretching from Tampines Road to Serangoon East Dam and Coney Island. It would make far greater ecological and planning sense to preserve and utilise the current well developed Serangoon River Forest as an established green belt to mitigate against the heat impact from the future big new town. This is strategically superior to relying on artificially-created neighbourhood parks or park connectors at the air base site.

Four, alternative first approach in justification. Agencies must clearly demonstrate that avoidance and minimisation were explored before mitigation is proposed, specifically when my residents appealed to the Land Transport Authority (LTA) or MND for the bus depot site to be shifted to the current heavy vehicle park along Tampines Road. Other than mitigation measures, no reason has yet been given for not agreeing to the shift, nor was there any reason given to justify why the bus depot had to be sited in the middle of the forested area between Buangkok East Drive and Tampines Road.

Five, irreversibility and time horizons. Apply a higher justification threshold to any decision that results in an irreversible loss or requires a recovery period.

Six, cumulative and area level impact. We must evaluate impacts in the neighbourhood or corridor level, not project by project. Multiple compliant decisions when accumulated over time in a small area can still lead to a degraded, less liveable environment.

Seven, transparency in communication. When trade-offs are made, we must clearly state what is gained and what is lost in clean terms, ensuring that the environmental cost do not disproportionately fall on the immediate neighbours, while the benefits are distributed citywide. They should also be actively communicated to stakeholders early on, rather than leaving it to consultation exercise.

Eight, symmetrical scrutiny of land intensive system. We must hold planning decisions across all existing land uses to the same level of scrutiny as green spaces. When development is proposed on vegetated land, we must ask whether existing land hungry system have been reviewed, intensified, co-located or rationalised to avoid further loss of natural capital.

Mr Speaker, our success as a mature city depends not just on our ability to overcome physical land scarcity, but on our wisdom in how we manage the scarcity of natural capital. If we allow the label of brownfield to exempt us from doing a basic baseline biodiversity study on EIA on a mature self-reforested site, and if we fail to see the strategic value of this established green lung in the face of major future regional development, like the Paya Lebar Air Base Town, we risk making decisions that are blind to current ecological reality and future climate needs.

I urge MND and all planning agencies to review their decision framework to ensure that our decisions are based on net outcomes, functional value and long-term resilience. What we choose to preserve today is what will define Singapore's livability tomorrow.

Finally, I plead with the Government to fully consider the interest of the residents living near the Serangoon River Forest. Please review and consider relocating the bus depot to the heavy vehicle park at Tampines Road, and please consider retaining as much as possible of this vital green lung of the north east, which is home to one of the largest collection of birds, including conservation status birds in Singapore, stretching from Tampines Road to Pasir Ris Industrial Drive 1, for the benefit of residents living in the north east and all Singaporeans.

Mr Speaker: Minister of State Alvin Tan.

7.07 pm

The Minister of State for National Development (Mr Alvin Tan): Mr Speaker, Sir, I thank the Member Dennis Tan for his Adjournment Motion.

I wanted to say that our objectives are the same. Our objectives to balance different land use are the same, but we have different views on this, and I disagree with how he has characterised the approach we have been taking all these years, and it is fine to have these different views.

But let me architect and let me frame how we look at land use planning.

The Government takes a long-term and very careful approach when planning how we use our limited land to support the diverse needs and aspirations of generations of Singaporeans, and we are balancing many competing needs, including the need for green spaces, education, transport, defence, recreation and many more that the Member has outlined.

In recent years, for example, as Members of this House know, and we have debated. Singaporeans' demand for housing has grown and the Government has, therefore, ramped up public and private housing supply in the past few years, and we will continue keeping up a steady housing supply if demand remains strong. And to meet Singaporeans needs, we must maximise how we use our limited land. Let me explain how we already are doing so.

First, we are redeveloping brownfield sites, such as golf courses, industrial areas, and also activating underused spaces, such as via ducts and carpark rooftops. We are also building higher where possible, and the relaxation of aviation height limits near airports will open new possibilities for future intensification while maintaining liveable spaces.

As the Member alluded to, we are also exploring the use of more underground spaces to free up surface land for more liveable uses, including at Gali Batu and this builds on earlier efforts, such as the Jurong Rock Caverns and the deep tunnel sewerage system. So, we are already looking down, we are already looking up. And through our North-South corridor project, we are also diverting vehicular traffic underground to free up more ground level space for cycling, walking, green spaces and other spaces that Singaporeans enjoy.

At the same time, we are also co-locating suitable uses within integrated developments to optimise our land use, while also bringing convenience to Singaporeans. This includes our Tampines Hub and Bukit Canberra as well as upcoming integrated community hubs in Siglap and Toa Payoh. These hubs will bring together sports facilities, healthcare, community spaces in one convenient location – all things which Singaporeans want.

But even as we do our best to optimise existing build up areas, we will still need to strike that balance between development and conserving and preserving our green spaces. Today, we have safeguarded more than 7,800 hectares of green spaces for our nature reserves, nature parks and other green spaces, such as parks and park connectors, and these include our four nature reserves, which contain some of our most sensitive and biodiverse habitats.

We have also identified key ecological corridors between core habitats. We have established nature park networks and nature corridors along these corridors, such as the Labrador Nature Park Network and the Clementi Nature Corridor, that is alongside them. And the National Parks Board's ecological profiling exercise also guides our conservation strategies, including to sensitively integrate nature into our urban landscape upfront within our land use plans. We also ensure our green spaces are accessible and near homes. By 2030, every household will be within a 10-minute walk of a park.

Because of these efforts, in fact, we are recognised. Singapore today is recognised as one of the world's greenest cities. The Massachusetts Institute of Technology's Green View Index shows that we are in fact ahead of most cities in our provision of urban tree coverage, including those with lower population densities.

And we will do more. We have in place supporting efforts that allow us to contribute more effectively to enhance green cover, biodiversity and ecological connectivity. By 2030, we aim to restore and enhance 80 hectares of forest, marine and coastal habitats as well as to establish 300 kilometres of nature ways.

But to achieve all this, we adopt a robust systematic and science-based framework to balance developmental needs and conserving our green spaces. We rigorously study the trade-offs and alternatives and consult stakeholders where relevant.

Under our EIA Framework, we start by consulting technical agencies on the sites' potential ecological and biodiversity value. And if there is potentially significant environmental impact from the development, we require an EIA study to assess in greater detail – the nature and the magnitude of the impact and to develop more mitigating measures. And based on the EIA findings, agencies will then carefully consider the extent of the potential impact and the adequacy of the proposed mitigation measures in consultation with nature groups and community stakeholders.

These stakeholders' expertise and feedback inform the mitigation recommendations in the EIA. We then make the environmental study reports publicly available online so that the public can provide feedback, and this is our default practice unless there are national security concerns where confidentiality is required. So, I wanted to correct the mischaracterisation of the Member when he said that no EIA is needed as it is brownfield and zone B2.

In fact, I just mentioned that it is not true that brownfield sites automatically do not require EIA. We make those assessments.

On his specific point about Serangoon Forest, he spoke about the east of Sungai Serangoon and Serangoon Forest, and I previously explained in Parliament in November that this area has been zoned for industrial use since 1998.

In fact, the Members of Parliament were briefed in February 2018. And on 1 December 2023, a Gazette Notice was published for rezoning to B2 to transport facilities for this bus depot. Member Gerald Giam was informed of the rezoning and gave no comments.

The site is intended to be progressively developed to help us to achieve a few objectives.

First, it is to bring economic development and jobs for residents in the area closer to them, to their homes in nearby towns such as Hougang and Sengkang, and to future residents of the upcoming new town at Defu and Paya Lebar Air Base.

The planned bus depot, which the Member raised, at the southern part of this area is intended to improve public transport services for residents. So, there is value and benefit to residents living in the area.

The area was previously a municipal waste landfill known as the Tampines Tipping Ground. Technical agencies have assessed that this site is not a sensitive nature area and the environmental impact of the bus depot is limited. Hence, an environmental study was not required.

The vegetation on the site is a result of regeneration of the last 10 to 15 years, comprising young exotic dominated secondary forests, scrubland, grassland and ponds. These habitats are commonly found in cleared or disturbed areas and generally have lower ecological value than more mature forest habitats such as native dominated secondary forests.

So, this is a considered decision. We will not revisit the matter.

Nevertheless, to mitigate any environmental impact and disamenities to residents, LTA has agreed to put in place necessary measures during the construction. This includes hoarding the work site, which also serves to prevent wildlife vehicular collisions, and conducting checks for birds' nests and other wildlife before site clearance.

Mr Speaker: Minister of State, you have about a minute left.

7.16 pm

Mr Alvin Tan: Sir, beyond the bus depot, agencies are reviewing potential development plans for the remaining areas along the eastern bank of Sungei Serangoon. Agencies will continue to carefully plan for the provision of greenery and recreational spaces in the area.

In conclusion, Sir, I would like to thank the Member for raising the matter, to grassroots advisor Marshall Lim for engaging residents and agencies, to Tony O'Dempsey and our friends at Nature Society Singapore for advocating to protect their surrounding environment and to the residents themselves for sharing their views.

I know it matters to all of you. And it does matter. It matters because we all want our green spaces, we all want our homes, our hospitals, our schools, our jobs, our workspaces and transport facilities to get us around. I wish we have an abundance of land and space to do all that without trade-offs. But the reality is that we are a city state. Unique.

And unlike other countries where choices are less stark, Singapore has always been about making the best of what we have and not what we wish we had.

Our survival and present quality of life are the result of deliberate, often difficult, trade-offs. We build upwards and downwards and constantly repurpose our land for evolving uses. At the same time, it is our responsibility to be upfront about we can do and what we cannot do. We must mitigate impact where we can and make adjustments where possible. But ultimately, we must take a view and make a decision. And that is on us.

These decisions will continue to confront us as we build our city in nature and provide homes and jobs to Singaporeans – just as it has confronted our predecessors.

Mr Speaker and to all who are concerned about this matter, I ask for your support and your understanding. I thank you for partnering us in this collective effort to build Singapore into a home that we are all proud of, for our generation and generations to come. [Applause.]

Question put, and agreed to.

Resolved, "That Parliament do now adjourn."

Adjourned accordingly at 7.18 pm.