Guarding Against the Invisible Enemy
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GUARDING AGAINST THE INVISIBLE ENEMY Lian Zhimin, Arvinder Singh, Rayna Tan & Tan Chermel Immigration & Checkpoints Authority ABSTRACT The emergence of the Coronavirus Disease 2019 (COVID-19) prompted many countries to impose stringent border control measures to mitigate the risk of importation of the infectious disease. Singapore was no exception. To guard against the invisible enemy, the Immigration & Checkpoints Authority (ICA) implemented tighter border control measures within a short span of time, constantly adjusting them to mitigate the fluid situation. As the global situation worsened, Singapore took the unprecedented step of closing its borders to short- term visitors. ICA also had to conduct heightened clearance operations for dedicated flights that brought home stranded Singapore residents from around the world. In anticipation of a protracted fight against COVID-19, ICA leveraged technology and fine-tuned its operational processes to alleviate the workload of the frontline officers. Beyond the borders, ICA was also responsible for implementing and enforcing the Stay-Home-Notice (SHN) regime to minimise the risk of community spread from residents returning from overseas. Many ICA officers also volunteered to be part of the Forward Assurance and Support Teams (FAST) at migrant worker dormitories to enforce Circuit Breaker Measures. This article documents ICA’s response to COVID-19 as guardians of our borders, protecting more than just a line on the map. It also describes how ICA adjusted a border control regime primarily designed to deal with security threats to manage COVID-19, providing a glimpse of border control in a post-COVID-19 world. FROM KEEPING OUT SECURITY THREATS TO checkpoints. For example, in 2018, ICA and MOH SAFEGUARDING PUBLIC HEALTH staged a joint exercise codenamed Exercise Sparrow Hawk to implement effective health screenings at the The Immigration & Checkpoints Authority (ICA) was land checkpoints. formed in April 2003 against a backdrop of heightened security risk arising from the 9/11 terrorist attacks in The Coronavirus Disease 2019 (COVID-19) is, the United States. A single border control authority however, not just another disease without borders. via the merger of the Singapore Immigration & Considered “the most crucial global health calamity Registration (SIR) and the checkpoint operations of of the century and the greatest challenge that … the Customs & Excise Department (CED), ICA has humankind [has] faced since the 2nd World War” since strengthened Singapore’s border security and (Chakraborty and Maity, 2020), it has in one year kept key external threats at bay. infected more than 81 million people and caused more than 1.8 million deaths worldwide (WHO Besides combating security threats, ICA also has to COVID-19 Dashboard, as of 31 December 2020). help contain the spread of infectious diseases, as it did during past pandemics such as SARS (2003), Since the global outbreak in early 2020, ICA has H1N1 (2011), Ebola Virus Disease (2014) and MERS- been at the forefront of Singapore’s national defence COV (2015). As Singapore’s first line of national against COVID-19. This article documents the defence, ICA formulates the Border Health Plan with four response phases ICA undertook to combat the Ministry of Health (MOH) and medical services COVID-19: (a) alert, (b) contain, (c) restore and (d) providers to institute border health measures at the adapt to a pandemic. It also details how ICA modified Issue 10 Service in the time of COVID-19 | 5 its border control regime from one that was primarily were also referred by ICA to the health screening designed to deal with security threats to one that also stations at the airport for further medical assessment. safeguards public health. Suspension of visa facilities. In the second half of MITIGATING THE RISK OF IMPORTING COVID-19: January 2020, Singapore had several confirmed FOUR RESPONSE PHASES COVID-19 cases involving Chinese nationals from Hubei province. As the infection had spread ALERT PHASE pervasively in Hubei and 95 percent of the confirmed cases in Chinese cities had been attributed to Hubei, During the alert phase, COVID-19 cases were mainly the Multi-Ministry Taskforce set up by the Singapore detected in China and the initial key response was Government decided to impose additional measures to detect and reduce the number of imported cases to contain the risk of importation (MOH, 2020). ICA in Singapore. suspended the issuance of new visas and halted visa-free transit facilities for travellers holding PRC On 31 December 2019, China alerted the World Health passports issued in Hubei. On 28 January 2020, ICA Organisation (WHO) to the detection of a new viral implemented the first set of rules of engagement disease linked to a wholesale food market in Wuhan, (ROE) at the checkpoints to sieve out travellers with the capital of Hubei province. This was followed travel history to Hubei, so that they could be placed by a rapid outbreak of the virus later identified as under quarantine. “severe acute respiratory syndrome coronavirus 2 (SARS-CoV-2)” within Wuhan and an unprecedented As part of the national effort to contain the number of lockdown on 23 January 2020 to halt the spread of imported and community cases, Singapore enforced the disease. The lockdown led foreign governments stricter border control measures in early February to scramble to evacuate their citizens from the city 2020 where ICA denied entry and transit facilities to (Nourah, 2020). On 30 January 2020, WHO Director- travellers with travel history to high-risk countries. General Tedros Ghebreyesus declared the outbreak The list of such high-risk countries also changed a Public Health Emergency of International Concern frequently. To sieve out these travellers, ICA analysts (WHO, 2020). conducted backend data-mining based on travellers’ flight routes, last ports of embarkation, and places of Temperature Screening. In response to the rising passport issuance. number of COVID-19 cases, ICA activated the Border Health Plan on 3 January 2020. One of the initial Mobile temperature screening at land checkpoints. precautionary measures was the implementation of In anticipation of an increase in travel volume temperature screening for inbound travellers arriving during the 2020 Lunar New Year holiday period, ICA from Wuhan at Changi Airport. Arriving Chinese extended temperature screening operations to both nationals with passports issued in Hubei province land checkpoints from 24 January 2020 (Figure 1). Figure 1. Mobile temperature screening at Woodlands Checkpoint 6 | Service in the time of COVID-19 Home Team Journal Repatriation and Special Operations. Following 2020. At the checkpoints, all short-term visitors travel restrictions in China, ICA also worked were refused entry into Singapore. with other government agencies to faciliate the clearance of several relief flights scheduled to Introduction of Approved Letter of Entry (ALE). bring home Singaporeans and residents from The closure of our borders affected a substantial Wuhan and Hangzhou. group of travellers who needed to enter Singapore. In response, ICA developed internal guidelines to At the sea checkpoints, ICA conducted similar determine which visitors could be granted entry special operations to facilitate the clearance of despite the border closure. These guidelines were travellers onboard a Singapore-based cruise ship, quickly translated into executable exemption Costa Fortuna. The cruise ship had earlier been rules at the checkpoints to aid frontline officers denied permission to dock in both Thailand and in the processing of affected travellers. For Malaysia as it carried about 115 travellers with travel example, travellers with roots in Singapore, or history to countries severely affected by COVID-19. had compassionate grounds, were issued with an Costa Fortuna arrived at Marina Bay Cruise Centre Approval Letter of Entry (ALE). At the checkpoints, Singapore on 10 March 2020 with 1,631 passengers these travellers were assessed and subjected to and 982 crew members. Except for crew members the prevailing health control measures before being who did not disembark, the entire end-to-end allowed entry into Singapore. operation from medical screening to immigration clearance of the passengers was completed within As the number of entry requests increased, ICA 14 hours. quickly established a new Entry Assessment Unit and developed an online form on FormSG as a Before Malaysia’s Lockdown. On 16 March dedicated channel to handle enquiries and process 2020, Malaysian authorities announced the applications for the ALE. To regulate the flow of enforcement of a Movement Control Order (MCO) arrivals, an e-booking module was developed for which would restrict the entry of foreigners and successful applicants to select their date of travel bar Malaysians from travelling abroad in two to Singapore. days. The announcement sparked a frantic rush amongst those who had been commuting daily Enforcement of the Stay Home Notice (SHN) Regime. across the border to work and study in Singapore With more countries affected by COVID-19 and as they rushed home to pack their belongings residents returning home from abroad, there was an and return to Singapore before the MCO was inevitable rise in imported cases in Singapore. imposed. To rein in the importation of the virus, the Multi- In anticipation of the heavy traffic, officers from Ministry Taskforce decided to put in place a “Stay other checkpoints were swiftly redeployed to Home Notice”