Paper 1 · Planning & Development
Planning & Development Control in Singapore (URA, Zoning, GFA)
What can be built on a site — its use and how intensively it can be developed — is controlled by the Urban Redevelopment Authority (URA), the national planning authority. The exam tests the planning instruments and the plot-ratio/GFA relationship.
Concept Plan vs Master Plan
| Concept Plan | Master Plan | |
|---|---|---|
| Horizon | Long-term, 40–50 years | Medium-term, 10–15 years |
| Nature | Strategic / broad direction | Statutory — legally binding |
| Reviewed | About every 10 years | About every 5 years |
| Sets | Big-picture land & infrastructure | Zoning + plot ratio for each parcel |
Zoning — what a site may be used for
| Zone | Typical use |
|---|---|
| Residential | Homes (landed, flats, condos) |
| Commercial | Offices, shops, retail |
| Business 1 / Business 2 | Light industry / heavier industry |
| White site | Flexible mix decided by developer |
| Civic & Community / Open Space | Institutions, parks |
Plot ratio & GFA (the most-tested calculation)
Plot ratio (Gross Plot Ratio, GPR) is the ratio of maximum permitted gross floor area (GFA) to the land area. The formula: GFA = plot ratio × site area. Higher plot ratio = more buildable floor area = greater development potential and value.
Worked example: a site of 1,000 m² with a plot ratio of 2.8 has a maximum GFA of 1,000 × 2.8 = 2,800 m². Raise the plot ratio to 3.5 and the GFA jumps to 3,500 m² — same land, more sellable space.
| Built form | Indicative plot ratio |
|---|---|
| Landed housing | ~1.4 |
| Low-rise flats/condos | ~1.4 |
| Mid-rise | ~1.6 – 2.1 |
| High-rise | ~2.1 – 2.8 |
| Very high density | ~3.5+ |
What counts as GFA is largely the covered floor area of a development; URA rules set out certain exclusions (e.g. some void/communal spaces). Knowing GFA is conceptually 'the sellable area cap' is enough for the exam.
Development Charge (DC) & betterment
When you intensify or change the use of a site (e.g. raise the plot ratio, or switch residential → commercial), you capture an increase in land value — and the State takes a share via a Development Charge. DC is based on the uplift from the Development Baseline to the Development Ceiling, using rates in URA's DC Table (revised roughly half-yearly, by use group and geographical sector).
Approvals, change of use & other controls
- Written permission from URA is needed to develop or change use — even with no building works. Provisional Permission precedes the formal Grant.
- Temporary permission may be granted for a time-limited use.
- Conservation status limits alterations to gazetted buildings; URA Guidelines govern setbacks, height and use.
- Other agencies matter too — e.g. BCA for structural/building works.
- A high plot ratio underpins en-bloc / collective-sale potential — redevelopment value that can offset an ageing lease.
The trap
Confusing plot ratio with GFA. Plot ratio is the multiplier; GFA is the result (GFA = plot ratio × site area). Also: a change of use needs planning permission even with zero construction — many candidates miss that.
Exam takeaway
Trace a site's potential through the chain: Master Plan → zoning (what use) → plot ratio (how much GFA) → development charge if you intensify. That sequence answers almost every planning question.
Common questions
- What is plot ratio?
- Plot ratio is the ratio of a development's maximum permitted gross floor area (GFA) to its land area. Multiply plot ratio by site area to get the allowable GFA.
- Do I need planning permission to change a property's use?
- Generally yes. A change of use (for example, residential to commercial) usually requires URA planning permission even when no building works are involved.
Keep learning
Study material aligned to the public CEA syllabus. Not financial or legal advice — verify current figures with the relevant authority (IRAS, HDB, CEA, MAS).