Please lor... HDB allow the owner to rent out the place outside the shop one lor... if the owner do not purchase the area that was labeled, HDB will rent it out instead.
They always like that one lah... can earn money can liao... HDB belong to the Gahmen, fine also like that... money just go into circulation within the system... Private is a different case... fining them will means that adding funds to the treasury which in terms ended up in their big fat salary...
