Singapore society has traditionally leaned towards values of meritocracy and self-reliance, with conditional assistance being a longstanding feature of the public welfare system. More recently, however, new experiments in social assistance programming suggest a willingness to venture beyond status quo approaches.
Over 18 months across 2022 and 2023, local non-government organisation AWWA (formerly known as Asian Women's Welfare Association) trialled an unconditional cash transfer scheme targeted at some of the low-income families in its network — a departure from the norm of conditional financial support in government policy and social services. Named the Family Empowerment Programme (FEP), the new scheme provided 75 qualifying low-income families with a monthly cash stipend of $300 to $550 (depending on family size) to use as they deemed necessary. To evaluate the impacts of the scheme, AWWA also conducted research which culminated in a
report published in 2024.
To explore the outcomes, strengths and challenges of the programme, and to discuss whether unconditional support could provide a longer-term solution to poverty alleviation and income security, the Social Inclusion Project at the Lee Kuan Yew School of Public Policy (LKYSPP), National University of Singapore (NUS), organised a public panel discussion involving Dr Prassanna Raman (Impact and Evaluation Lead, AWWA); Ms Ng Bee Leng (Divisional Director, Strategy & Transformation Division, Allkin); and Dr Ng Kok Hoe (Senior Research Fellow and Head, Case Insights Unit and the Social Inclusion Project, LKYSPP). The panel was chaired by Associate Professor Teo You Yenn, Provost’s Chair in Sociology and Director of the Centre for the Study of Social Inequality at Nanyang Technological University.
An unprecedented mode of assistance
The FEP’s field research involved two groups: a treatment group of 75 families who received the cash transfers, and a control group of 95 families who did not. Surveys were run every six months assessing the impact of the cash payouts on the lives of those in the treatment group versus those in the control group.
According to Dr Prassanna Raman, the goal was to develop a solution that helped recipients upstream “by respecting their agency and autonomy in being the experts in their own lives.”
This unconditional approach differs from conditional schemes such as the Workfare Income Supplement, where recipients must be employed to receive the payouts. Of those eligible for payouts, 60 per cent of the amount was deposited into Central Provident Fund (CPF) accounts that remain inaccessible until they reach the minimum age of withdrawal.
Successes of the programme
The FEP pilot proved effective, with significant improvements in several aspects of recipients’ lives. Presenting on findings from the research AWWA conducted for the scheme, Dr Raman shared that the most important qualitative result was the “notable improvement in mental health among the treatment group, right from six months [into the trial].”
Many participants shared that the cash transfer reduced their anxiety and allowed them to focus on long-term planning rather than just meeting immediate needs. A key behavioural shift observed was an increased willingness to seek medical attention. Unlike before, when many would delay or avoid doctor visits due to financial constraints, participants in the treatment group reported proactively seeking medical care for themselves and their families. This change in healthcare access contributed to improved overall well-being.
Dr Raman noted that participants shared a marked reduction in stress levels and that they were “now able to breathe”. At the 18-month mark, 60 per cent of the treatment group were deemed psychologically well, compared to only 36 per cent of the control group.
Mental well-being aside, the FEP also positively impacted employment opportunities. The cash transfers offered families much needed "mental bandwidth", which enabled them to seek better job opportunities. As stated in the report, these were better in terms of quality (skills matching, autonomy and task discretion, training/learning/structured advancement opportunities); benefits (such as CPF contributions, annual leave provisions, etc.); and security (more permanent contracts than ad hoc-contracts or gig jobs).
Higher quality jobs also went towards improving long-term employee retention in positions that were permanent and secure.
Women were especially impacted by the programme, since they are usually not the family breadwinners, and the stipend offered some independent decision making and less reliance on others for money.
This was the case with participant "Angie”, who said the new approach had increased her confidence and independence in managing her finances, with the effect of benefitting her interpersonal relationships.
Overall, a key strength of unconditional support schemes is that they offer recipients greater autonomy, which in turn can increase their opportunities for social participation.
Remarking on the FEP, Ms Ng Bee Leng lauded the way it gives participants dignity, control and agency, reasserting her belief that “people are experts of their own lives,” and that the scheme “supports families and parents in ways that recognise their autonomy and the diversity of their circumstances.”
The FEP as 'runway' for other forms of support
The FEP was presented as an interim measure that families can tap on as they work towards other financial assistance schemes, providing families with the stability to meet basic needs as they access other conditional payouts.
During the panel,
Dr Ng Kok Hoe pointed out that the FEP has, among other benefits, challenged the idea that any employment is better than unemployment. He argued that “inadequate social assistance can create a permanent supply of people who have no choice but to take up short-term, low-wage work, and are trapped in a churn of economic insecurity. If people don't have to jump into the first job that comes their way, but have the resources to tide them through, they will be more likely to find a stable, decent-paying job that can provide long-term security.”
What does long-term empowerment look like?
The FEP serves as a progressive example of how policymakers can build a fairer, more inclusive society. This begins with dismantling
flawed assumptions about how lower-income families use financial aid services.
With FEP a proven success, the programme will receive Temasek Trust’s support to launch the next iteration of the programme, Family Empowerment Programme 2. FEP 2 will refine key aspects of the programme — such as eligibility criteria, target demographics, cash transfer amounts, and duration — to better tailor support for families. It will also introduce stronger wraparound services alongside unconditional cash transfers to address deeper, systemic challenges. This shift responds to participant feedback highlighting the need for greater support in caregiving, chronic health issues, special needs education, tuition, parenting, and peer networks.
Ultimately, the FEP raises new questions on how to effectively tackle inequality, societal fragmentation, and evolving concepts of citizenry. Moreover, ensuring that programme managers and their teams are properly resourced is also front and centre for policymakers.