Urban planning in Singapore

Urban planning in Singapore refers to the direction of infrastructure development in Singapore. It is done through a three-tiered planning framework, consisting of a long-term plan to plot out Singapore's development over at least 50 years, a Master Plan for the medium term, and short-term plans, the first two of which are prepared by the Urban Redevelopment Authority (URA) and the last by multiple agencies.

While planning in Singapore first began with the Jackson Plan in 1822, which divided up Singapore town into multiple ethnic areas, the colonial authorities in Singapore were not very involved in its development until the 1890s, when they began engaging in back lane schemes and building regulation. Further involvement came with the establishment of the Singapore Improvement Trust (SIT) in 1927, but as the SIT only had limited powers, its initial impact was limited. Detailed urban planning for Singapore eventually started in the 1950s, with the preparation of the 1958 Master Plan using British planning concepts. After Singapore's independence in 1965, planning policies were revised, and the State and City Planning Project was initiated to produce a new plan for Singapore, which became the 1971 Concept Plan. This plan laid out the basic infrastructure for Singapore's development and brought about the integrated planning process used ever since. Planning in Singapore started to incorporate additional priorities from the 1980s, such as quality of life and conservation, while the 1991 revision of the Concept Plan introduced the notion of regional centres to promote decentralisation. To improve the implementation of the Concept Plan's strategies, in the 1990s, Singapore was divided into multiple planning areas, and comprehensive plans for each area's development were produced and compiled into a new plan. From the 2000s, Singapore's urban planners began to incorporate public feedback and opinions into the planning process, while industrial areas became increasingly planned as mixed-use developments.

History

Under colonial rule

The first plan for Singapore, the Jackson Plan, was drawn up by 1823 to ensure that Singapore developed in an orderly manner. Under the plan, the town's road network was laid out in a regular grid, and the town was divided into different areas to be occupied by specific ethnic groups. An area south of the Singapore River was set aside as a commercial and administrative centre, while the river's east bank was to be used for defence. The plan spawned the concept of Singapore undergoing pre-planned urban growth. Moreover, it influenced the location of Singapore's central business district and the street pattern of the Central Area, while the divisions of the town along ethnic lines remained largely intact until the 1960s.^[1]

For the rest of the 19th century, there was little involvement by the colonial authorities in the planning of Singapore, with the urban area allowed to grow largely independently, and while the authorities occasionally modified Raffles' plan, they did not make any plans of their own. With the Municipal Bill of 1896 making the Municipality responsible for development works, the authorities became more involved in urban development from the 1890s, constructing back lanes and introducing building regulations. Nevertheless, these efforts were far from able to control urban development, and by the 20th century, Singapore faced congestion and squatter problems.^[1]

In response to a Housing Committee's findings regarding unsanitary living conditions in 1918,^[1] the Singapore Improvement Trust (SIT) was established in 1927. Tasked with carrying out urban improvement and rehousing works,^[2] but having few powers to control urban development, it initially only handled minor development schemes with the Municipality.^[3] In the years preceding the Second World War, the SIT concentrated mostly on building and improving roads and open spaces, and constructing public housing.^[1]

The 1958 and 1965 Master Plans

After the Second World War, a comprehensive plan for Singapore's development was drafted during the British Military Administration, but was not carried out after the return of civilian rule.^[3] Nevertheless, to provide more housing and raise living standards in the central area, the government initiated work on a Master Plan in 1951.^[1] Prepared by the SIT, the plan was passed to the government in 1955^[3] and was adopted in 1958.^[1]

Utilising blueprints and survey data and influenced by contemporary British planning concepts, the plan consisted of zoning throughout the urban area, open spaces, and several new towns away from the city centre. ^[1] In addition, in response to a predicted large increase in traffic volumes on roads, significant road network upgrades were proposed as part of the plan,^[3] and two-thirds of the slum residents were to be rehoused in formal housing. Expected to last for 20 years, the Master Plan, having been conceived with the expectation that Singapore would grow gradually,^[2] was unable to deal with the social and economic change, rapid population growth and the Central Area's expansion in the early 1960s. Nevertheless, the 1958 Master Plan laid the groundwork for detailed urban planning in Singapore.^[1]

With the 1958 Master Plan having been found wanting, the 1965 Master Plan was drawn up, taking into account Singapore's political circumstances in the early 1960s. Utilising the same planning methods as the 1958 plan, but including regional elements, the 1965 Master Plan envisioned Singapore as a centre for industry and producing items to be exported to Malaysian industries. Moreover, with a higher expected population, the 1965 plan included additional urban centres across Singapore, and expressway and rail networks. However, with Singapore's direction of development unclear, the 1965 Plan was not expected to last past 1972.^[1]

Post-independence and the Concept Plan

After Singapore's independence in 1965, planning policies were revised yet again, with plans made based on the concept of Singapore being closely connected with the global economy, and to make sure land was utilised most appropriately. Foreign planning talent and methods were brought in while locals were sent abroad for training.^[1] Work to prepare a new plan for Singapore was also initiated, with the assistance of the United Nations Development Programme, as the State and City Planning Project. Through the cooperation of multiple agencies such as the Housing and Development Board (HDB), Planning Department and the Public Works Department, the project released a draft plan in 1969, which, with several amendments, was approved in 1971 as the Concept Plan.^[4]

Under the 1971 Concept Plan, areas across Singapore were earmarked for development based on a "ring city" concept, with industrial areas and public housing estates spread out across the island, outside the city centre, while the city centre was to be dedicated to financial and commercial uses. A rail network and an expressway system were planned to connect the developed areas with one another, while plans were also made to construct a new airport at Changi.^[1] Moreover, under the "ring city" concept, the areas outside the city centre were planned as independent new towns, with residential, commercial and industrial areas, forming a ring around the central area.^[4]

The 1971 Concept Plan marked a change in the nature of Singapore's urban planning from one based on the possible directions Singapore's development could take to one based on the path its development should take, and the introduction of an integrated planning process brought about by inter-agency cooperation.^[2] Moreover, it also laid out the basic infrastructure from which Singapore developed further.^[4]

The 1980s and 1990s

While Singapore's development focused mainly on economic success during the initial post-independence years, with the increased affluence of Singaporeans from the 1980s, planners started taking into account quality of life factors. Additional land within new towns was allocated for parks and open spaces, while gardens^[5] and common facilities were incorporated into public housing estates to foster a sense of community among public housing residents.^[6] Moreover, with the release of a 10-year master Plan in 1980, industrial planning shifted towards infrastructure and areas suited for higher value industries. To achieve such an aim, industrial areas started to be constructed as "business parks", with cleaner environments than previous industrial areas.^[7]

In addition, the planning of the Central Area was reviewed, culminating in the Structure Plan in 1984. Under the Structure Plan, several districts in the city centre were identified for conservation, open spaces and parks were clearly marked out, and other districts, such as the Golden Shoe and Orchard Road districts, were designated as areas for high-density development.^[8] More attention was also paid to conservation, with the Urban Redevelopment Authority (URA) setting aside certain parts of the city centre for conservation in 1986, and announcing the Conservation Master Plan in 1989, under which entire areas in the city centre could be conserved.^[9]

With the 1971 Concept Plan's plan period ending in 1992, a revised Concept Plan was released in 1991.^[1] The 1991 Concept Plan divided Singapore into five regions, each of which consisted of several new towns with multiple housing types, and several areas across Singapore were designated as regional and sub-regional centres, with these areas acting as commercial centres, in a bid to reduce congestion in the city centre. Moreover, industrial areas were to be distributed across Singapore,^[10] and under the "Green And Blue Plan", a network of linear parks and open spaces along waterways was to be created.^[5]

To aid the implementation of the Concept Plan's aims, Singapore was divided into 55 planning areas. Development Guide Plans, comprehensive plans for each planning area, were drawn up between 1993 and 1998, and the resulting plans were compiled into a plan for the whole island.^[10]

In a bid to make sure Singapore could stay competitive in the global market, Singapore's industrial planning shifted towards the development of industrial clusters in the 1990s. These clusters were industrial areas in which multiple businesses in the same industry were consolidated, in order to foster mutual support between companies and increase economies of scale. Furthermore, to ensure optimal land use, minimum plot ratios were introduced and older industrial areas were redeveloped for more productive industries. Land reclamation was also carried out to increase the land available for industrial use.^[7]

2000s to present

Public consultation and feedback started playing a greater role in Singapore's urban planning from the early 2000s, and for the preparation of the 2001 Concept Plan, focus groups were formed to discuss urban planning issues.^[9] The 2001 plan brought an increased focus on quality of life, with an increased variety of residental and recreational developments, and to balance the goals of liveability and economic growth.^[2]

With the focus groups during the 2001 Concept Plan review recommending the formation of a conservation trust to foster more public engagement, a Conservation Advisory Panel was formed in 2002. Consisting of members from many parts of society, it was intended to provide feedback on the URA's conservation proposals, and to encourage the public to learn more about Singapore's built heritage. In addition, Identity Plans were introduced in the same year for fifteen districts across Singapore. For these plans, studies of the districts were made, and public feedback and forums were handled by Subject Groups formed for each district.^[9]

The 2000s heralded a shift in the nature of industrial areas towards mixed-use developments. Planned as areas in which multiple industries can coexist together, these areas consisted of plots that could be used in multiple ways, with multiple open spaces in between developments, and were intended to foster the development of knowledge-based and creative industries in Singapore.^[7] Furthermore, in response to population changes in the 2000s, the Land Transport Authority (LTA) released the Land Transport Master Plan 2008, which called for bus route planning to be handled by the LTA, a significant expansion of the rail network, and for the integration of the bus and rail systems in a hub-and-spoke network. The subsequent Master Plan, released in 2013, also called for more sheltered walkways and cycling path networks within new towns, so as to improve pedestrian and cycling access.^[11]

In the subsequent revision of the Concept Plan in 2011, sustainable development was prioritised,^[12] and industrial areas in the 2010s were planned to be further integrated, with districts comprising residential, recreational and industrial developments closely linked together.^[7] In addition, building conservation saw the greater involvement of the public and the National Heritage Board, through the establishment of a Heritage Advisory Panel and the Our Heritage SG Plan for the heritage sector, while the Conservation Advisory Panel was replaced by a Heritage and Advisory Partnership in 2018. This partnership, besides providing feedback for conservation proposals, was also intended to generate new proposals regarding building heritage in Singapore.^[13]

Current planning policy

Singapore's planning framework comprises three tiers, a long-term plan, the Master Plan, and detailed plans.^[12] The long-term plan, formerly called the Concept Plan,^[14] plots out Singapore's developmental direction over at least five decades. Intended to ensure optimal land use to meet economic growth targets and handle expected population increases, it is revised every 10 years. The Master Plan, intended for the medium term, comprises land use plans across Singapore, and is revised every five years, while the detailed plans, issued by agencies supervising certain aspects of urban development, plot out short-term development. Preparation of the long-term plan and Master Plan is done by the URA.^[12]

Under Singapore's current planning policy, development outside the central area comprises independent new towns, with residential, commercial and industrial areas, linked by expressways and a rail network. These new towns are in turn served by four regional centres, one in each region of Singapore, which carry out some of the functions of the central area.^[12] Moreover, the new towns are planned out with the intent to foster community interaction, improve connectivity, and to improve quality of life, with common areas, integrated cycling and pedestrian path networks, and widespread greenery.^[6]

Transport planning in Singapore is guided by the Land Transport Master Plan, the latest of which was released in 2019. The current plan aims to increase connectivity with better pedestrian and cycling infrastructure, and to promote public transport use.^[15] Singapore's public transport system is also planned as an integrated entity to further encourage its use.^[12]

References

^ ^a ^b ^c ^d ^e ^f ^g ^h ⁱ ^j ^k ^l Teo, Siew Eng (April 1992). "Planning Principles in Pre- and Post-Independence Singapore". The Town Planning Review. 63 (2): 163–185. JSTOR 40113142. Retrieved 1 August 2021.
^ ^a ^b ^c ^d Yuen, Belinda (2011). "Centenary paper: Urban planning in Southeast Asia: perspective from Singapore". The Town Planning Review. 82 (2): 145–167. JSTOR 27975989. Retrieved 1 August 2021.
^ ^a ^b ^c ^d Jensen, Rolf (July 1967). "Planning, Urban Renewal, and Housing in Singapore". The Town Planning Review. 38 (2): 115–131. JSTOR 40102546. Retrieved 1 August 2021.
^ ^a ^b ^c Choe, Alan F.C. (December 2016). "Chapter 1 The Early Years of Nation-Building: Reflections on Singapore's Urban History". In Heng, Chye Kiang (ed.). 50 Years of Urban Planning in Singapore. World Scientific. pp. 3–21. ISBN 978-981-4656-48-1.
^ ^a ^b Yuen, Belinda (June 1996). "Creating the Garden City: The Singapore Experience". Urban Studies. 33 (6): 955–970. JSTOR 43100334. Retrieved 6 August 2021.
^ ^a ^b Cheong, Koon Hean (December 2016). "Chapter 7: The Evolution of HDB Towns". In Heng, Chye Kiang (ed.). 50 Years of Urban Planning in Singapore. World Scientific. pp. 101–125. ISBN 978-981-4656-48-1.
^ ^a ^b ^c ^d Tang, Hsiao Ling (December 2016). "Chapter 9: Industrial Planning in Singapore". In Heng, Chye Kiang (ed.). 50 Years of Urban Planning in Singapore. World Scientific. pp. 153–176. ISBN 978-981-4656-48-1.
^ Goh, Hup Chor; Heng, Chye Kiang (December 2016). "Chapter 12: Shaping Singapore's Cityscape through Urban Design". In Heng, Chye Kiang (ed.). 50 Years of Urban Planning in Singapore. World Scientific. pp. 211–234. ISBN 978-981-4656-48-1.
^ ^a ^b ^c Kong, Lily (December 2016). "Chapter 13: Conserving Urban Heritage: Remembering the Past in a Developmental City-State". In Heng, Chye Kiang (ed.). 50 Years of Urban Planning in Singapore. World Scientific. pp. 237–256. ISBN 978-981-4656-48-1.
^ ^a ^b Liu, Thai Ker (December 2016). "Chapter 2: Planning & Urbanisation in Singapore: A 50-Year Journey". In Heng, Chye Kiang (ed.). 50 Years of Urban Planning in Singapore. World Scientific. pp. 23–44. ISBN 978-981-4656-48-1.
^ Singh, Mohinder (December 2016). "Chapter 8: Transportation: Mobility, Accessibility, and Connectivity". In Heng, Chye Kiang (ed.). 50 Years of Urban Planning in Singapore. World Scientific. pp. 127–151. ISBN 978-981-4656-48-1.
^ ^a ^b ^c ^d ^e Meng, Meng; Zhang, Jie; Wong, Yiik Diew (February 2016). "Integrated foresight urban planning in Singapore". Urban Design and Planning. 169 (DP1): 1–13. Retrieved 7 August 2021.
^ Tan, Elaine; Tan, Andy Xin Wei. "Place-making and Identity in Singapore: The Role of Integrated Planning and Our Built Heritage" (PDF). Cultural Connections. 4. Retrieved 7 August 2021.
^ "Past Long-Term Plans". ura.gov.sg. Urban Redevelopment Authority. Retrieved 8 August 2021.
^ "LTA LTMP 2040 eReport" (PDF). lta.gov.sg. Land Transport Authority. Retrieved 8 August 2021.