An exploration of housing in Singapore: the trappings of colonial legacies, social control, discrimination, and inequality
An overview of Singapore's colonial rule and subsequent housing policy decisions
29 January 1819: British statesman and Lieutenant-Governor of Bencoolen Sir Stamford Raffles lands on an island known as Singapura (meaning “lion city” in Sanskrit).
6 February 1819: Seeking new territory to counter expanding power of the Dutch in the region, he signs a treaty with Sultan Hussein Shah of Johor to allow the British East India Company to set up a trading port.[1] Singapore officially becomes a British settlement.[2]
Singapore was an ancient port by the time Raffles re-discovered it. By the 14th century, the port was connected to the "Silk Road of the Sea," facilitating the movement of "pottery, glass, rare stones, and foreign coins, and spices from Southeast Asia to places as far as the Nile in Egypt." Before it was called Singapura/Singapore, the island was known as Temasek.[3]
Before the treaty was signed, the island had approximately 1,000 inhabitants: “500 Orang Kallang, 200 Orang Seletar, 150 Orang Gelam, and other orang laut (Malay for “people of the sea”).”[4] These were names of different tribes of orang laut who had settled in Singapore prior to Raffles’ arrival.[5]
Late 1822: Raffles develops a master town plan demarcating different, segmented zones for Europeans, Chinese, Malay/Arabs, and Indians.[6] Europeans and Chinese got the best spots: north and south of the Singapore River respectively.[7]
Raffles had picked up lessons from previous colonial towns he had worked on, such as Georgetown in Penang and Calcutta. He believed urban planning would mitigate poor sanitary conditions and disorganized growth.[8]
The British painted indigenous Malays as lacking in intelligence and lazy, in line with other ‘lazy native’ stereotypes of other colonial areas.[9] Alatas writes that the Malay people were “[unwilling] to become a tool in the production system of colonial capitalism,” which “earned [them] a reputation of being indolent.”[10] Conversely, Chinese people were lauded as hardworking, entrepreneurial, and “capable of civilization of the highest kind”: closer to Europeans in the latter’s self-constructed racial hierarchy.[11] These preferences were reflected in the zoning of the town around the Singapore River (as seen below).
Raffles' master town plan in 1823. People were divided by race/ethnicity and sorted into spaces around the river. Raffles allocated Europeans the most ideal space, and the Chinese the second. Malays were placed further away from the city center. European Town was for the Europeans, Eurasians and rich Asians; Kampong Glam (kampong: Malay for "village") was for the ethnic Malays, the Muslims and the Arabs; the Chinese Kampong (or Chinatown) was for the Chinese immigrants and Chulia Kampong for the Indian community.
Ellen C. Cangi, “Civilizing the people of Southeast Asia: Sir Stamford Raffles’ town plan for Singapore, 1819–23,” Planning Perspectives 8, no. 2 (1993): 178 via https://newnaratif.com/if-you-talk-like-a-coloniser-and-eat-like-a-coloniser/.
1824: The island reaches 10,000+ residents.[12]
1836: The Chinese become the majority racial group in Singapore[13] and that trend continues to the present day.
1840s: Shophouses start being built in Singapore. These typically two-story buildings are mainly erected in the downtown area. Residents can set up shop on the ground floor and live upstairs. (Both stories can also be used for living; these are terrace houses.) Shophouses are a curious mix of East and West architectural styles. Five-foot ways (walkways that were five feet in width) were also constructed in front of shophouses to provide continuous verandahs and a shelter from the elements as shopkeepers sold their wares. Five-foot ways were part of Raffles' master town plan.[14]
Shophouses are still around in Singapore today, preserved as sites of cultural heritage.
"Features of a Typical Shophouse," Urban Redevelopment Authority, accessed December 20, 2021, via https://remembersingapore.org/2016/05/07/from-villages-to-flats-part-3/
These shophouses were built in the 1920s, "designed in colorful Chinese Baroque style and decorated with glazed porcelain tiles, motifs, intricate base relief moldings and stained glass windows."
"Shophouses, Geylang Road," Remember Singapore, May 5, 2016, https://remembersingapore.org/2016/05/07/from-villages-to-flats-part-3/.
The Peranakan-style (Peranakan: people of mixed Chinese and Malay/Indonesian heritage) terrace houses pictured above had influences from Transitional, Late, Art Deco and Modern styles. They were gazetted for conservation by the Urban Redevelopment Authority of Singapore in 1991.
"Terrace Houses, Koon Seng Road," Remember Singapore, May 5, 2016, https://remembersingapore.org/2016/05/07/from-villages-to-flats-part-3/.
1850s: Downtown Singapore starts to get crowded. Residents venture to reside in 'rural' parts of the island. Chinese agricultural immigrants set up pepper and gambier plantations along river banks. The first kampongs outside of Raffles' master plan were also set up, like Nee Soon Village in the north of the island (one of the oldest Chinese kampongs).[15]
This photo shows a map from the 1960s of Nee Soon Village and the smaller, mini villages within it. Most of these villages were Chinese ones except for Jalan Mata Ayer (north), where some Malays lived.
"The Villages at Nee Soon 1960s," Remember Singapore, April 4, 2012, https://remembersingapore.org/2012/04/04/from-villages-to-flats-part-1/.
This photo shows typical kampong houses in Punggol, a neighborhood in northeast Singapore. Built near rivers, these houses had attap roofs (a type of palm), were made of wood, and had to be on stilts in case of flooding or high tide.
"Kampong Houses in Punggol 1958," Remember Singapore, April 4, 2012, https://remembersingapore.org/2012/04/04/from-villages-to-flats-part-1/.
1927: The colonial government officially constitutes the Singapore Improvement Trust (SIT) to review the living conditions in central Singapore. It was initially meant only to build housing for residents left homeless by its improvement schemes. However, in 1932, the commission was given more authority to build housing for the rapidly growing population.[16]
These are the Singapore Improvement Trust (SIT) flats in Tiong Bahru, the earliest flats built as part of the SIT Project. The four-story tall flats are still around today.
“SIT flats: side view,” National Library Board, 2007, accessed on December 20, 2021, https://eresources.nlb.gov.sg/pictures/Details/a1db8989-083f-4eae-a325-e9aaf234671e.
1959: The Anglicized, Chinese-dominated People’s Action Party (PAP)[17]—formed in 1954—'inherits’ Singapore from the waning British forces weakened after WWII.[18] They get power over internal self-governance while the British handle the country’s foreign affairs. There is continued one-party dominance until the present day.[19]
During this process, the British mentored and favored English-educated, local-born Chinese and nominated members of this new class to various roles in the government.[20] In doing so, the British displayed their intent to “transfer power eventually to the English-educated section of the population who felt at ease with colonial rule.”[21] They could thus continue enacting and imparting Western values to the rest of the country.
3-10 December 1959: Singapore holds National Loyalty Week to “encourage a sense of loyalty among the diverse citizens of the new state of Singapore.”[22]
1960: Singapore establishes the Housing and Development Board (HDB) to replace SIT. By now, the country is facing a housing shortage, overcrowding, and the formation of squatter colonies. HDB’s main objective is to provide public housing for lower-income residents.[23]
1968-1982: The Jurong Town Corporation (JTC), another governmental authority (under the Ministry of Trade and Industry), constructs a small number of public flats in industrial areas for low-income residents.[24]
These are 40-year-old abandoned flats in Jurong, in western Singapore. They are one of the few remnants of JTC construction, as most other JTC flats were demolished in the previous two decades.
"Taman Jurong “H-Shaped” JTC Flats," Remember Singapore, last modified August 7, 2013, https://remembersingapore.org/taman-jurong-jtc-flats/.
1974-1982: The Housing and Urban Development Company (HUDC) constructed housing for middle-income residents.[25] The government introduced this option for Singaporeans who could afford a place beyond the regular HDB flat but found private housing unaffordable. According to PropertyGuru: "HUDCs were typically larger, better built and also had better amenities compared to regular HDB flats, such as covered carparks and sheltered grounds. The largest HUDC flat was 1,700 sq ft, which is amongst the biggest HDB flats ever constructed."[26]
HUDC flats were a housing option between an average HDB flat and a private condominium unit.
"HUDC Flats in Singapore: The "OG" Public Housing For Our Sandwich Class," PropertyGuru, last modified December 28, 2020, https://www.propertyguru.com.sg/property-guides/hudc-flat-singapore-37683.
1976: HDB flats have housed half of the local population[27] (half of the 1976 population is about 1.15 million[28]).
1982: HDB takes over the management of JTC and HUDC flats and becomes the sole housing authority (and it continues to be until today).[29]
1989: The HDB introduces the Ethnic Integration Policy (EIP), which limits the total percentage of a certain race in a block or neighborhood. These percentages largely follow the Singaporean population. This policy applies to the buying and selling of all new and resale HDB flats, as well as HDB’s allocation of rental flats.
According to the government’s website, the EIP was introduced to “ensure a balanced mix of ethnic groups in HDB estates, and to prevent the formation of racial enclaves. It seeks to promote racial integration in Singapore by allowing residents of different ethnicities to live together and interact on a regular basis in public housing.”[30]
1995: The government introduces plans to privatize HUDC apartments, granted at least 75% of owners approve of the switch. As of 2020, all 18 HUDC apartment estates are privatized.[31]
2020: HDB flats house almost 80% of the 4.04 million local resident population.
Click here to see how HDB design has evolved over the years.
[1] Herwin Mohd Nasir, “Stamford Raffles’s career and contributions to Singapore,” last modified January 2019, https://eresources.nlb.gov.sg/infopedia/articles/SIP_715_2004-12-15.html.
[2] “1819 Singapore Treaty,” Singapore Infopedia, May 15, 2014, https://eresources.nlb.gov.sg/infopedia/articles/SIP_2014-05-16_133354.html.
[3] "The Singapore story, before Raffles," National University of Singapore (NUS) News, April 26, 2019, https://news.nus.edu.sg/the-singapore-story-before-raffles/.
[4] “1819 Singapore Treaty.”
[5] Wee Ling Soh, “The forgotten first people of Singapore," last modified August 24, 2021, https://www.bbc.com/travel/article/20210824-the-forgotten-first-people-of-singapore.
[6] Bonny Tan, “Raffles Town Plan (Jackson Plan),” last modified 2016, https://eresources.nlb.gov.sg/infopedia/articles/SIP_658_2005-01-07.html.
[7] Gregory Ng Yong He, “If You Talk Like a Coloniser and Eat Like a Coloniser…,” August 10, 2019, https://newnaratif.com/if-you-talk-like-a-coloniser-and-eat-like-a-coloniser/.
[8] Tan.
[9] Charles Hirschman, “The Making of Race in Colonial Malaya: Political economy and racial ideology,” Sociological Forum 1, no. 2 (1986): 343-345.
[10] Syed Hussein Alatas, The Myth of the Lazy Native: A Study of the Image of the Malays, Filipinos and Javanese from the 16th to the 20th Century and its function in the ideology of colonial capitalism (London: Frank Cass, 1977), 73.
[11] Alatas, 345.
[12] Charles Burton Buckley, An anecdotal history of old times in Singapore 1819-1867 (Singapore: Oxford University Press, 1984), 154.
[13] Swee-Hock Saw, The population of Singapore (Third Edition) (Singapore: ISEAS Publishing, 2012), 29.
[14] "From Villages to Flats (Part 3) – The Traditional Shophouses," Remember Singapore, May 7, 2016, https://remembersingapore.org/2016/05/07/from-villages-to-flats-part-3/.
[15] "From Villages to Flats (Part One) -- The Kampong Days," Remember Singapore, last modified May 16, 2016, https://remembersingapore.org/2012/04/04/from-villages-to-flats-part-1/.
[16] Valerie Chew, “Public housing in Singapore,” last modified 2010, https://eresources.nlb.gov.sg/infopedia/articles/SIP_1585_2009-10-26.html.
[17] Chong Guan Kwa, “The Political Dilemmas and Transformation of the Straits-born Chinese Community: The Era of Decolonization,” in Peranakan Communities in the Era of Decolonization and Globalization, ed. Leo Suryadinata (Singapore: Chinese Heritage Centre and NUS Baba House, 2015), 20.
[18] Kwen Fee Lian, Multiculturalism, Migration, and the Politics of Identity in Singapore (Singapore: Springer Singapore, 2016), 14.
[19] Cheryl Sim, “People’s Action Party: Post-independence years,” last modified March 21, 2018, https://eresources.nlb.gov.sg/infopedia/articles/SIP_2015-02-04_103701.html.
[20] Su Yin Lee, British Policy and the Chinese in Singapore, 1939 to 1955: The Public Service Career of Tan Chin Tuan (Singapore: Talisman Publishing, 2011), 13.
[21] Lee, British Policy and the Chinese in Singapore, 116.
[22] Ruth Creamer, “National Loyalty Week," last modified 2018, https://eresources.nlb.gov.sg/infopedia/articles/SIP_633_2005-01-06.html.
[23] Chew.
[24] Chew.
[25] Chew.
[26] "HUDC Flats in Singapore: The "OG" Public Housing For Our Sandwich Class," PropertyGuru, December 28, 2020, https://www.propertyguru.com.sg/property-guides/hudc-flat-singapore-37683.
[27] Chew.
[28] “Population, total – Singapore,” The World Bank, accessed December 15, 2021, https://data.worldbank.org/indicator/SP.POP.TOTL?locations=SG.
[29] Chew.
[30] “HDB’s Ethnic Integration Policy: Why it still matters,” gov.sg, last modified April 13, 2020, https://www.gov.sg/article/hdbs-ethnic-integration-policy-why-it-still-matters.