The
Internal Security Act 1960 (ISA) (Malay: Akta Keselamatan Dalam Negeri) is a
preventive detention law in force in Malaysia. The legislation was inherited
by Malaysia after it gained independence from Britain in 1957. In essence, it
allows for the arrest of any person without the need for trial in certain
defined circumstances. Malaysia is one of the few countries in the world whose
Constitution allows for preventive detention during peacetime without
safeguards that elsewhere are understood to be basic requirements for
protecting fundamental human rights.
History
Preventive detention first became a feature of the then Malaya in 1948
primarily to combat the armed insurgency of the Malayan Communist Party. The
Emergency Regulations Ordinance 1948 was made, following the proclamation of
an emergency, by the British High Commissioner Sir Edward Gent. It allowed the
detention of persons for any period not exceeding one year. The 1948 ordinance
was primarily made to counter acts of violence and, conceivably, preventive
detention was meant to be temporary in application. The emergency ended in
1960 and with it ended the powers contained in the that ordinance as it was
repealed. The power of preventive detention was however not relinquished and
in fact became an embedded feature of Malaysian law. In 1960 itself, the
government passed the Internal Security Act under Article 149 of the Malaysian
Constitution. It permitted the detention, at the discretion of the Home
Minister, without charge or trial of any person in respect of whom the Home
Minister was satisfied that such detention was necessary to prevent him or her
from acting in any manner prejudicial to national security or to the
maintenance of essential services or to the economic life in Malaysia. The ISA
is one of the most controversial Acts enacted under Article 149 of the
Malaysian Constitution.
Section 8(1) of the ISA provides that ‘(i)f the minister is satisfied that the
detention of any person is necessary …’ then s/he may issue an order for
his/her detention. The three grounds given in Section 8(1) upon which the
order may be based is where a person has acted in any manner prejudicial to
the:
a) security of Malaysia or part thereof; or
b) maintenance of essential services; or
c) economic life.
The power to detain seems to be restricted by Section 8(1) to a period not
exceeding two years but the restriction is really illusionary because, by
virtue of Section 8(7), the duration of the detention order may be extended
for a further period not exceeding two years and thereafter for further
periods not exceeding two years at a time. The extension to the detention
order may be made on the same ground as those on which the original order was
based or on different grounds. In delivering the judgment of the Court, Steve
L. K. Shim CJ (Sabah & Sarawak) in Kerajaan Malaysia & 2 Ors. v Nasharuddin
bin Nasir (2003) 6 AMR 497 at page 506, has accepted that under Section 8 of
the ISA the Minister has been conferred powers of preventive detention that
‘can be said to be draconian in nature’ but nevertheless valid under the
Malaysian Constitution. In addition, preventive detention is also now allowed
by the Dangerous Drugs (Special Preventive Measures) Act 1985 and the
Emergency (Public Order and Prevention of Crime) Ordinance 1969. The Human
Rights Commission of Malaysia (SUHAKAM) has recently recommended that the ISA
be repealed and replaced by new comprehensive legislation that, while taking a
tough stand on threats to national security (including terrorism), does not
violate basic human rights.
Article 149 of the Constitution of Malaysia under which a person may be
detained is characterized by subjective language. Such terms as ‘substantial
body’, ‘substantial number’, ‘cause to fear’, ‘excite disaffection’, ‘promote
feelings of ill-will and hostility’, all embody wide areas of discretionary
interpretation.
Article 151 of the Malaysian Constitution gives to any person detained without
trial (under the special powers against subversion) certain administrative
rights. By the terms of Article 151 the authority, on whose order a person is
detained, shall, as soon as may be, inform the detainee of the grounds of
detention and the allegations of fact on which the order is based. The
detainee shall also be given an opportunity within three months, of making
representations against the order to an Advisory Board . The Advisory Board as
the name implies is not a court. Its determinations are also mere
recommendations that the government is under no obligation to accept. It may
also be handicapped in its deliberations by the discretionary power of the
government to withhold facts, the disclosure of which would, in the
executive’s opinion be against national interest.
Any person may be detained by the police for up to 60 days without trial for
an act which allegedly threatens the security of the country or any part
thereof. After 60 days, one may be further detained for a period of two years
each, to be approved by the Minister of Home Affairs, thus permitting
indefinite detention without trial. In 1989, the powers of the Minister under
the legislation was made immune to judicial review by virtue of amendments to
the Act, only allowing the courts to examine and review technical matters
pertaining to the ISA arrest.
Legislation
Relevant sections of the legislation are as follows:
Section 73(1) Internal Security Act 1960: "Any police officer may without
warrant arrest and detain pending enquiries any person in respect of whom he
has reason to believe that there are grounds which would justify his detention
under section 8; and that he has acted or is about to act or is likely to act
in any manner prejudicial to the security of Malaysia or any part thereof or
to maintenance of essential services therein or to the economic life thereof."
Section 8 ISA: Power to order detention or restriction of persons. "(i) If the
Minister is satisfied that the detention of any person is necessary with a
view to preventing him from acting in any manner prejudicial to the security
of Malaysia or any part thereof or to the maintenance of essential services
therein or the economic life thereof, he may make an order (hereinafter
referred to as a detention order) directing that that person be detained for
any period not exceeding two years."
A detenu can make representations against his/her detention if an order of
detention has been made against the detenu by the Minister under Section 8(1)
of the ISA but under Section 73 however, the detenu seems to have no such
right. Generally, the attitude of the Malaysian courts in respect of detention
under Section 73 is that the courts have jurisdiction only in regard to any
question on compliance with the procedural requirements of the ISA and they
seldom grant any substantive rights to the detenu.
The stated purpose of the ISA was to deter communist activity in Malaysia
during the Malayan Emergency and afterwards. The first Prime Minister of
Malaysia, Tunku Abdul Rahman, defined the purpose of the act as to "be used
solely against the communists...My Cabinet colleagues and I gave a solemn
promise to Parliament and the nation that the immense powers given to the
government under the ISA would never be used to stifle legitimate opposition
and silence lawful dissent". The third Prime Minister, Tun Hussein Onn, stated
at the same time that his administration had enforced the act only with a view
to curbing communist activity, and not to repress "lawful political opposition
and democratic citizen activity".
In response to criticism that the ISA was not democratic or was too open to
abuse, the first internal security minister, Ismail Abdul Rahman, stated:
“I maintained then and I maintain now the view that the Internal Security
Act is essential to the security of this country especially when democracy is
interpreted the way it is interpreted in this country. To those in opposition
to the government democracy is interpreted to mean absolute freedom, even the
freedom to subvert the nation. When cornered by the argument that democracy in
the Western sense means freedom in an ordered society and an ordered society
is one in which the rule of law prevails, they seek refuge in the slogan that
we should imitate Western democracy one hundred per cent.
I am convinced that the Internal Security Act as practiced in Malaysia is not
contrary to the fundamentals of democracy. Abuse of the Act can be prevented
by vigilant public opinion via elections, a free Press and above all the
Parliament.”
Detention
ISA detainees are typically held at the Kamunting Detention Center.
First 60 days
A person detained under the ISA during the first 60 days is held
incommunicado, with no access to the outside world. Furthermore, lawyers and
family members are not allowed access to the detainee during this initial
period. If a two-year detention order is signed, the detainee is taken to the
Kamunting Detention Center to serve his or her two-year term, during which
family members are allowed to visit. Otherwise, the detainee may be released.
Release
Although the government may release detainees unconditionally, in some cases,
it has required those being released to make a public "confession" on
television and radio.
Detainees
The following lists are of known current and former detainees under the
Internal Security Act.
| Year |
Name |
Detention Period |
Role |
Detention Reason |
| 1974 |
Anwar Ibrahim |
20 months |
student protester |
|
| 1987 |
Lim Kit Siang |
2 Years |
DAP Secretary General |
Operation Lalang |
| 1987 |
Chandra Muzaffar |
released either conditionally or unconditionally |
ALIRAN President Chandra Muzaffar |
Operation Lalang |
| 1987 |
Chan Kit Chee |
released either conditionally or unconditionally |
MCA Vice President and Perak |
Operation Lalang |
| 1987 |
Karpal Singh |
2 Years |
DAP Deputy Chairman |
Operation Lalang |
| 1987 |
Halim Arshat |
released either conditionally or unconditionally |
PAS Youth Chief |
Operation Lalang |
| 1987 |
Ibrahim Ali |
released either conditionally or unconditionally |
UMNO MP for Pasir Mas |
Operation Lalang |
| 1987 |
Fahmi Ibrahim |
released either conditionally or unconditionally |
UMNO Youth Education |
Operation Lalang |
| 1987 |
Dong Jiao Zhong |
released either conditionally or unconditionally |
Chinese Education Associations |
Operation Lalang |
| 1987 |
Lim Fong Seng |
released either conditionally or unconditionally |
Chairman Chinese Education Associations |
Operation Lalang |
| 1987 |
Kua Kia Soong |
released either conditionally or unconditionally |
Publicity Chief of the Civil Rights Committee |
Operation Lalang |
| 1987 |
Irene Xavier |
released either conditionally or unconditionally |
WAO Member |
Operation Lalang |
| 1987 |
Hilmy Noor |
released either conditionally or unconditionally |
accused for "disrupting the Malay culture by being a Christian" |
Operation Lalang |
| 1990 |
Abdul Rahman Ahmad |
|
Assistant Superintendent of Police, Special Branch |
arrested during
Operation Talkak |
| 1990 |
Albinus Yudah |
|
opposition party member, member of
Kadazan Cultural Association |
arrested during Operation Talkak |
| 1990 |
Benedict Topin |
|
opposition party member, Executive Secretary of
Kadazan Cultural Association |
arrested during Operation Talkak |
| 1990 |
Damit Undikai |
|
retired Special Branch police officer |
arrested during Operation Talkak |
| 1990 |
Jeffrey Kitingan |
|
opposition politician, director of the Institute for Development
Studies |
arrested during Operation Talkak |
| 1990 |
Maximus Ongkili |
|
deputy chief director of the Institute for Development Studies |
arrested during Operation Talkak |
| 1990 |
Vincent Chung |
|
administrator, Sabah Foundation |
arrested during Operation Talkak |
| 1998 |
Anwar Ibrahim |
|
Sodomy and corruption (Deputy Prime Minister) |
|
| 2001 |
Yazid Sufaat |
|
Jemaah Islamiyah suspected terrorist |
|
| 2001 |
Raja Petra Kamarudin |
52 days |
Blogger of
Malaysia Today |
|
| 2007 |
K. Kengadhadran |
|
Hindu
Rights Action Force activist (Lawyer) |
Organize Hindraf mass rally in KL December 2007 |
| 2007 |
M. Manoharan |
|
Hindu
Rights Action Force activist (Lawyer) |
Organize Hindraf mass rally in KL December 2007 |
| 2007 |
P. Uthayakumar, |
|
Hindu
Rights Action Force activist (Lawyer) |
Organize Hindraf mass rally in KL December 2007 |
| 2007 |
T. Vasantha Kumar |
|
Hindu
Rights Action Force activist (Lawyer) |
Organize Hindraf mass rally in KL December 2007 |
| 2007 |
K. Ganabathi Rao |
|
Hindu
Rights Action Force activist (Lawyer) |
Organize Hindraf mass rally in KL December 2007 |
| 2008 |
Raja Petra Kamarudin |
|
Blogger of
Malaysia Today |
Accused of insulting islamic religion |
| 2008 |
Tan Hoon Cheng |
18 hours |
Journalist,
Sin Chew Jit Poh |
|
| 2008 |
Teresa Kok Suh Sim |
7 days |
Member of Parliament, Seputeh | |
Criticism
Due to the alleged draconian nature of the ISA, several human rights
organizations and opposition political parties have strongly criticized the
act and called for its repeal. Foreign governments, notably that of the United
States, have also pressured the government to repeal the act.
Domestic
Several opposition parties such as the Pan-Malaysian Islamic Party (PAS), the
Democratic Action Party (DAP) and Parti Keadilan Rakyat (PKR) have spoken out
against the ISA. Many of them have leaders or prominent members who were held
under the ISA, such as Muhammad Sabu of PAS, Lim Kit Siang, Karpal Singh and
Lim Guan Eng of the DAP, and Anwar Ibrahim of the PKR. Previously in the
1960s, the law had been denounced by such opposition leaders as Tan Chee Khoon,
who said:
“This infernal and heinous instrument has been enacted by the Alliance
Government at a time when the emergency was supposed to be over. Then it
promptly proceeds to embody all the provisions of the Emergency Regulations
which during the Emergency had to be re-enacted every year, but now it is
written into the statute book ad infinitum...”
However, several politicians from the Barisan Nasional coalition, including
its largest component party, the United Malays National Organisation (UMNO or
Umno), that has governed Malaysia since independence have also criticized the
ISA. The fifth Prime Minister of Malaysia, Abdullah Ahmad Badawi, went on the
record in 1988 to state "If we want to save Malaysia and Umno, Dr Mahathir
(then Prime Minister) must be removed. He uses draconian laws such as the
Internal Security Act to silence his critics." The year before, he had also
stated "Laws such as the Internal Security Act have no place in modern
Malaysia. It is a draconian and barbaric law." In 2003 when he became Prime
Minister, however, Abdullah called the ISA "a necessary law," and argued "We
have never misused the Internal Security Act. All those detained under the
Internal Security Act are proven threats to society." But opposition parties
believe it is a threat to Umno rather than a threat to the country.
Prior to becoming Prime Minister, Mahathir had also adhered to a critical view
of the ISA. In 1966, when Mahathir spoke out in support of the Internal
Security (Amendment) Bill 1966 as a backbencher, he stated that "no one in his
right senses like[s] the ISA. It is in fact a negation of all the principles
of democracy." After becoming Prime Minister however the former premier had
little if any hesitation using the law to suppressed what he termed racialism
but was seen by some as a move against his political opponents, the most
notable of events being the infamous Operasi Lalang in 1987.
Recently former rapporteur to the United Nations Param Cumaraswamy, who is on
record for his opposition of the ISA, suggested its use on former Malaysian
Prime Minister Dr. Mahathir for alleged racial incitement by the latter at a
speech in Johor Bahru on May 17, 2008, arguing that the reasoning of the
former premier in the use of the law would be applicable against him now in
light of his own racial excesses Such tit for tat justification however was
condemned by various groups, notably PAS for inconsistency and double standards
shown by the former rapporteur in his position as regards the ISA.
Foreign
In the past, the United States government has criticized the Malaysian
government for implementing the ISA, but it has muted its criticism since the
advent of the "war on terror."
Notable uses of the ISA
Since 1960 when the Act was enacted, thousands of people including trade
unionists, student leaders, labor activists, political activists, religious
groups, academicians, NGO activists have been arrested under the ISA. Many
political activists in the past have been detained for more than a decade.
The ISA has been consistently used against people who criticize the government
and defend human rights. Known as the "white terror", it has been the most
feared and despised, yet convenient tool for the state to suppress opposition
and open debate. The Act is seen by some as an instrument maintained by the
ruling government to control public life and civil society.
The ISA was used extensively during the 1987 Operation Lalang in which
Opposition members were silenced by the UMNO government through the use of
ISA. Many opposition leaders were detained without trial, evidence or reason.
The ISA was also used to detain Anwar Ibrahim.
The most recent application of ISA was against Hindu activists belonging to
the group HINDRAF who voiced out against the UMNO government's racist policies
that resulted in Malaysian Indians being marginalized and sidelined from the
country's development. In response, Prime Minister Abdullah Ahmad Badawi
personally signed the detention order that allows the leaders of
HINDRAF to be
detained without trial for two years, with the option for the detention order
to be renewed indefinitely.
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