Heng wouldn't quote a politically sensitive figure like 10m if that the case.
PAP modus operandi is they will usually get some crony and ally ( academic,ex civil servant,unionists etc) to warm the public to unpopular idea and test water.
if the resistance is overwhelming, they can retreat and claim things like it just a 'planning parameter' . If the opposition is manageable, they will then move forward to the next stage to win public acceptance and implement the idea eventually.