december 2009 . Vol 2 . Issue 12 subcontinent. This joint training would This article will first provide not only help to improve basic skills ’s Approach to background on the history of terrorism and allow access to more sophisticated Counterterrorism in Singapore, including how the country equipment—both of which are severely has foiled a number of recent plots. lacking among many police officials in By Gavin Chua Hearn Yuit It will then identify the Singapore South —but it could also allow for government’s various programs to greater cooperation to take root and singapore represents a bastion o f establish social resiliency and reduce build the confidence that is necessary general stability amid low intensity jihadist radicalization within its society. to strengthen regional and bilateral conflicts in Southeast Asia. It has not Finally, the article will show the steps cooperation on intelligence sharing suffered a terrorist attack on its soil Singapore has taken most recently to that helps monitor and stifle terrorist in almost two decades. Nevertheless, stir the public’s imagination to the activity. Singapore’s counterterrorism community threat of terrorism to maintain public believes that the country could face vigilance. The challenges of forging a terrorist attack at any moment in counterterrorism cooperation in South the future, and by facing this reality Singapore’s Experience with Terrorism Asia are formidable, as is evident from it constantly attempts to respond to The last bombings to strike Singapore the limited results during the last 20 rapidly emerging terrorism trends.1 occurred in November-December 1987, years of efforts mounted within SAARC. targeting the American International Funding and support for a regional In the last year, for example, Asia Assurance building and Shell Tower. law enforcement cooperation center has experienced two major terrorist Before 1987, Singapore faced a number on the subcontinent will have to be attacks targeting hotels in Mumbai of other small-scale bombings, some bolstered by much needed police reform and Jakarta, both signifying an upward involving Palestinian terrorists.6 Then, efforts within individual countries in trend in sophistication and scale of in 1991, Singapore’s counterterrorism the where corruption and lack terrorist operations. To adequately apparatus received international of capacity remain major concerns. respond to these threats, Singapore attention when it successfully stormed Although there is no guarantee that has adopted social resilience as a key a hijacked airliner and killed four a willingness to cooperate among law counterterrorism strategy.2 Singapore’s terrorists claiming to be members of enforcement officials in the region will government considers race and religion the Pakistan Peoples’ Party.7 Terrorist take root as quickly as it has in other the country’s “most visceral and violence in Singapore faded out parts of the world, the urgent need for dangerous fault line.”3 It believes that thereafter. greater cooperation against terrorism reducing racial and religion tension4 demands bold action. in this multi-ethnic and multi-religious In the months after the 9/11 attacks, country is critical in preventing future however, the threat of terrorism Alistair Millar is Director of the Center on acts of terrorist violence in Singapore.5 returned. Singapore’s Internal Security Global Counterterrorism Cooperation in Department (ISD) prevented Singapore’s Washington, D.C. JI branch from launching a series of bomb 1 “The Fight Against Terror,” National Security Coordi- attacks targeting foreign embassies and nation Centre (NSCC), Singapore, 2004. U.S. interests in the country in December 2 Through the government’s community engagement 2001. The ISD detained a total of 13 programs and other initiatives to build social resilience, JI members, including their spiritual civilian communities are expected to develop capacities to “detect and prevent disruptions to a nation’s security, and where necessary, to absorb shocks and bounce back traditional Chinese religions, Buddhism and Taoism, ac- into a functioning condition after a crisis as quickly as count for 51% of the resident population. The proportion possible.” Definition provided by the Centre of Excel- of Muslims and Hindus have remained relatively un- lence for National Security’s Social Resilience program. changed since 1990 at 15% and 4% respectively. Among 3 Singapore Prime , National the Chinese, there were more significant shifts in -reli Day Rally Speech, August 16, 2009. gious affiliation, with Buddhism and Christianity- sur 4 In the 1950s and 1960s, Singapore experienced race passing Taoism as the main religions from 1990 to 2000. riots. One of the most prominent incidents was the In comparison, almost all Malays were Muslim without “Prophet Muhammad Birthday Riots” between Malays significant changes during the last 20 years. Among and Chinese, which occurred on July 21, 1964. A Malay the Indians, Hinduism had the largest following (55%) procession following the Prophet Muhammad’s birth- and Islam accounted for slightly more than a quarter of day celebrations attacked ethnic Chinese spectators. The Indians. The “Others” category refers to smaller ethnic country’s race and religion fault line was also fueled by minority groups, such as the Eurasians. See “Monthly the crackdown on Singapore’s Jemaah Islamiya branch Digest of Statistics Singapore,” Singapore Department of in December 2001, when the possibility of a Singaporean Statistics, November 2009; “Singapore Census of Popu- terrorism threat became a reality. See “Appeal for Calm,” lation, 2000,” Singapore Department of Statistics, May Straits Times, July 22, 1964; Norman Vasu, “(En)counter- 2001. ing Terrorism: Multiculturalism and Singapore,” Asian 6 “Faber House Explosion,” Straits Times, March 18, Ethnicity 9:1 (2008). 1985. 5 Of Singapore’s 4.9 million residents, 74% are Chinese, 7 “1991 – SQ 117 Rescue,” MINDEF History, Government 13% Malay, 9% Indian, and 3% other ethnicities. The of Singapore, 2006.

21 december 2009 . Vol 2 . Issue 12 leader, Ibrahim Maidin. Maidin trained Nevertheless, the escape dealt a major Building Social Resilience to Terrorism in Afghanistan in 1993, and wrote several blow to Singapore’s counterterrorism As a result of Singapore’s multi- letters to leader Mullah Omar and reputation. ethnic and multi-religious population, al-Qa`ida leader Usama bin Ladin.8 Upon its leaders consistently stress the his return to Singapore, Maidin arranged Kastari’s escape raised the possibility importance of social harmony. Inherent for JI members to receive training in of fissures developing within racial and in speeches is the concern that a “single Afghanistan.9 Subsequent arrests ensued religious harmony in Singapore. After flashpoint” such as a terrorist attack in September 2004 and July 2006, his escape, Singaporean authorities could destroy decades of harmony crippling JI’s network in Singapore. considered the possible scenario of building efforts.18 Singapore Minister Kastari being harbored by jihadist Mentor presented Singapore has also faced a threat from sympathizers in the country, which the public audience with a wildcard homegrown radicalization. This was would heighten sensitivities between scenario: most vividly seen through the case of Muslim and non-Muslim communities.14 Abdul Basheer Kader, a 28-year-old Minister Lim Swee Say described the If a Malay-Muslim Jemaah Singaporean lecturer with a background Islamiya member blew up a bomb in law.10 Abdul Basheer was about to in a Mass Rapid Transit station make contact with Lashkar-i-Tayyiba “The RRG’s objective is and the blast killed more Chinese in Pakistan to train for “militant jihad” to counsel detained JI and Indians than Malays, it would at the time of his arrest in Singapore lead to non-Muslims distancing in February 2007.11 According to members and to counter themselves from Muslims out of Singapore’s Ministry of Affairs, their ideological beliefs. fear [such as in the aftermath of Abdul Basheer was affected by the London 7/7 bomb attacks in radical jihadist discourse read on the Since 2003, the RRG has 2005].19 internet.12 performed more than 800 Singapore made early investments in In January 2008, Singapore authorities counseling sessions, and building social resilience, an effort that arrested three young men under the has progressively released would yield high dividends in the long Internal Security Act for involvement run. One month after the Singapore JI in activities that posed a potential some of the detainees on network was exposed in December 2001, terrorist threat, including attempts to restriction orders.” then Prime Minister make improvised explosive devices and proposed the concept of “Inter-Racial to join foreign “mujahidin networks” Confidence Circles” (IRCC) for each of to wage armed jihad in Afghanistan, the country’s 84 constituencies,20 and Palestine and Chechnya.13 Kastari escape as a “test in inter-racial “Harmony Circles” for schools, work cohesion” as certain communities might places and other local organizations.21 Luckily, however, vigilance by “take a position based on their racial or A National Steering Committee was Singapore’s authorities managed to religious groups and draw the line.”15 also established to provide broad prevent these plots from actualization. Fortunately, Singaporeans passed guidance for IRCCs to deepen inter- the test without creating any racial or racial and inter-religious rapport within In February 2008, however, Singapore religious tension. communities. faced a major security breach when JI operative Mas Selamat Kastari The Kastari incident also presented The total IRCC membership reached escaped from a jail in the country. a useful test for social resilience in 1,021 by June 2006, of which Chinese, Kastari remained on the loose for more Singapore. There was a period of Malays, Indians and other ethnicities than a year until he was recaptured in public outrage and confusion about the constituted 58%, 21%, 20% and 1% in May 2009 with the help escape directed at the government and respectively.22 The IRCC was renamed of Singapore’s intelligence services. expressed on various online blogs and “Inter-Racial and Religious Confidence forums,16 but there were also concerted Circles” in September 2007, to reflect 8 “Intelligence from Afghanistan Breaks Singapore Plot,” efforts made by various communities to CNN, January 11, 2002. “[put] up posters, [share] information emony for the Second Asia-Pacific Programme for Senior 9 “The Arrests and the Threat of Ter- on possible sightings and even offering National Security Officers (APPSNO), April 14, 2008. 17 rorism: White Paper,” Singapore Ministry of Home Af- rewards from their own pockets.” 18 “Racial Harmony is Not a Given: MM, PM,” Straits fairs, 2003. Times, July 19, 2009. 10 “ISD Detains Self-Radicalised Singaporean,” Channel 14 “More Likely Fugitive has Fled,” Straits Times, Janu- 19 Ibid. News Asia, June 8, 2007. ary 16, 2009. Also see “Capture of Mas Selamat: Lesson 20 Singapore is divided into 84 constituencies that serve 11 Ibid. for All in Weeding Out Terrorism,” Straits Times Forum, as electoral divisions and where community outreach ac- 12 Kumar Ramakrishna, “Self-Radicalisation: The Case May 12, 2009. tivities are concentrated. of Abdul Basheer Abdul Kader,” S. Rajaratnam School of 15 “S’poreans Get A+ for Response on Mas Selamat’s Es- 21 “Community Development: Promote Racial Harmony International Studies, June 11, 2007. cape: Swee Say,” Straits Times, March 12, 2008. & Community Bonding,” ’s 13 “Further Releases, Issuance of Restriction Orders & 16 See, for example, “90 days Since Escape…No More In- eCitizen portal, February 28, 2007. Detentions Under The Internal Security Act,” Singapore formation?” Online Citizen, May 26, 2008. 22 “Challenges for IRCCs,” Straits Times, January 14, Ministry of Home Affairs, January 24, 2008. 17 Speech by Professor S. Jayakumar at the Opening Cer- 2007.

22 december 2009 . Vol 2 . Issue 12 the new role of IRCCs in bridging The RRG has received attention from imagination a simulated Mumbai different religious groups at the local U.S. policymakers. In September terrorist attack scenario, focusing on level. In April 2008, the minister 2005, terrorism expert Bruce Hoffman “soft targets” such as hotels, food and for Community Development, Youth testified before the U.S. Congress on the beverage outlets, and transportation and Sports, , usefulness of Singapore’s RRG program networks. Prime Minister Lee Hsien announced a six-fold increase in IRCC to “actively [enlist] moderate clerics Loong commented that in Mumbai, membership from 2006, with 84% as a way to get insight and then to use Indian civilians must have seen the of all religious organizations joining the information from…those clerics, to terrorists moving through the streets as members.23 The key value of the construct very effective information carrying their equipment immediately IRCC network, according to Minister and psychological operations.”27 In before the attack. He wanted to make Balakrishnan, is “to make sure that in 2007, the U.S. military adopted parts sure that civilians would immediately times of peace, we build relationships, of the RRG program model in Iraq, notify authorities if such an event were trust and confidence. This will create a to offer an alternative to indefinite to occur in Singapore. “You must carry safety net for Singapore. If ever anything detention without trial. Marine Major- on living life as normal,” said Lee, “but unfortunate were to happen, at that point General Douglas M. Stone, a proponent at the same time always keep an eye in time, this safety net would be tested.”24 of detention reform, who oversaw open and be slightly suspicious and U.S. detention facilities in Iraq at the vigilant.”30 After the London 7/7 bomb attacks time, noted the progressiveness of the in 2005, the government launched RRG with its very low recidivist rate, Second, the Singapore government the Community Engagement Program “making the Singapore model the most introduced a series of measures to (CEP) in February 2006 to provide successful.”28 harden “soft targets” in the public more integrated and comprehensive sphere. A new Singapore Standard efforts in preparing the populace to be Even with the IRCC, CEP and RRG for Hotel Security was launched to psychologically and socially resilient programs in place, clear signs remain to enhance the conduct of systematic to terrorism. Example initiatives over be seen that members of the public feel and regular reviews of emergency the past few years include introducing like equal stakeholders when it comes operating procedures, security plans Safety and Security Watch Groups at to countering terrorism and its threats and equipment.31 The Police Mass Rapid industrial and commercial premises; to social resilience. The terrorist threat Transit (MRT) Unit was enlarged to form outreach to foreign worker populations is not directly palpable to the public, in the Public Transport Security Command, through the foreign worker dormitories; part an outcome of the “silent sentinel” where 400 policemen will patrol the and expanding the scope of Emergency effect of security and intelligence bus interchanges and MRT stations.32 Preparedness Exercises to cover the agencies operating behind the scenes Finally, the Singapore Infocomm readiness to detect and prevent the effectively. A possible reason is the lack Technology Security Authority was fallout from potential communal of terrorist attacks in Singapore. Yet, the established to protect critical IT tensions in a crisis. recent Kastari escape has now sensitized infrastructure against increasing global the public to deal more directly with the trends of cyber-espionage and cyber- Aside from the IRCC and CEP, the effects of terrorism. New opportunities terrorism.33 government also formed (formally have arisen for closer public engagement in October 2005) the Religious toward building resilience to counter The third and final event was the Rehabilitation Group (RRG), which is an terrorism. Total Defense Display and “pledge unpaid, all-volunteer grouping of Islamic moment” at the National Day Rally scholars and teachers who possess Keeping the Public Aware of the Threat in August 2009. The purpose of the formal Islamic educational credentials In 2009, there were three notable Total Defense Display was to showcase from both local madrasas and foreign events and initiatives spearheaded by Singapore’s defense capability through universities.25 The RRG’s objective is the government to engage the public an integrated demonstration of the to counsel detained JI members and to about the dangers of terrorism. The country’s military, civil and social counter their ideological beliefs. Since first was Exercise Northstar VII, one defense. The rally organizers sprung a 2003, the RRG has performed more of the most complex military exercises surprise on the public audience with a than 800 counseling sessions, and conducted in Singapore, involving more simulated event of a bomb discovery at has progressively released some of the than 2,000 people from 15 agencies.29 the rally venue, prompting momentary detainees on restriction orders.26 The exercise brought to the public confusion and subsequently general

23 Speech by minister for Community Development, Rehabilitation Group, located at www.rrg.sg. 30 “Exercise Northstar Tests Singapore’s Response to Youth and Sports, Dr. Vivian Balakrishnan, at the Na- 27 Bruce Hoffman, “Evolving Counterterrorism Strat- Terrorist Attack,” Channel News Asia, July 15, 2009. tional Inter-Racial and Religious Confidence Circle egy,” statement to the House Committee on International 31 “Launch of SS 545 Singapore Standard for Hotel Secu- Workshop, April 5, 2008. Relations, September 29, 2005. rity,” SPRING Singapore, August 27, 2009. 24 “Religious Groups Roped into IRCCs,” Straits Times, 28 “Singapore Scheme Helps De-Radicalise Detainees in 32 “Public Transport Security Command to Enhance September 7, 2007. Iraq,” Malaysian Insider, April 20, 2009. Train, Bus Safety,” Channel News Asia, August 4, 2009. 25 For an in-depth analysis of the RRG, see Kumar Ra- 29 Background on the exercises can be located in the 33 “Singapore Infocomm Technology Security Author- makrishna, “A Holistic Critique of Singapore’s Counter- Singapore Ministry of Defense’s Cyberpioneer magazine, ity Set Up to Safeguard Singapore against IT Security Ideological Program,” CTC Sentinel 2:1 (2009). available at www.mindef.gov.sg/imindef/publications/ Threats,” Singapore Ministry of Home Affairs, October 26 For more information, see the website of the Religious cyberpioneer/index.html. 1, 2009.

23 december 2009 . Vol 2 . Issue 12 awe at the Total Defense Display where under surveillance. Before his arrest, the (SAF) Recent Highlights in Afzali had been used as an informant by and the Home Team (Ministry of Home Terrorist Activity the New York police. Prosecutors allege Affairs and affiliate agencies) were that Zazi admitted to taking explosives able to showcase their capabilities and November 1, 2009 (GLOBAL): The leader courses at an al-Qa`ida training camp in instill public confidence in Singapore’s of al-Qa`ida in the Arabian Peninsula Afghanistan, and that he was planning vigilance toward external threats.34 called on militants to bomb airports and to detonate bombs in the . trains in Western countries, explaining – , November 2 Furthermore, the rally also introduced that explosives can easily be acquired for the first time a “pledge moment” from household materials. Nasir al- November 2, 2009 (PAKISTAN): where at exactly 8:22 PM Singaporeans Wahayshi, the leader of the group, Pakistan’s government announced were invited to spend 30 seconds wrote in the jihadist magazine Sada al- $5 million in monetary rewards for reciting the country’s pledge to foster Malahim that “you do not need to exert information leading to the capture of national unity. Participants also great effort or spend a lot of money to top Pakistani Taliban commanders. The included 700 establishments and make 10 grams of explosives, more or three most wanted commanders include overseas Singaporeans residing in less. Do not spend a long time searching Hakimullah Mehsud, Waliur Rahman different time zones. for materials as they already exist in and Qari Hussain, who each carry a your mother’s kitchen. Make them $600,000 reward for their capture, Conclusion [explosives] in the shape of a bomb dead or alive. – BBC, November 2 All of these efforts show that the you hurl, or detonate through a timer Singapore government is continuing or a remote detonator or a martyrdom- November 2, 2009 (PAKISTAN): forward with proactive measures to seeker belt or any electrical appliance.” Pakistani troops gained control of cope with emerging terrorist threats, Al-Wahayshi also wrote that “it is a Kaniguram, an important stronghold and to foster national unity in the face duty that a Muslim mujahid be busy of Tehrik-i-Taliban Pakistan (TTP) of jihadist attempts to create divisions. planning to reap the heads of infidels.” in South Waziristan Agency of the Although the government hopes to – Reuters, November 2 Federally Administered Tribal Areas. avoid a terrorist attack in the future, it On October 17, the Pakistan Army is cognizant of the various terrorist cells November 1, 2009 (IRAQ): Two suicide deployed at least 30,000 ground operating in the region that have killed bombers—one in an explosives-laden troops in a major offensive against TTP scores of civilians in attacks on hotels vehicle and the other on foot wearing militants in South Waziristan. – BBC, and other civilian venues. Moreover, a suicide belt—killed two people just November 4 militants associated with JI continue to outside the city of Ramadi, Anbar target Singapore, and the only reason Province. Iraqi authorities believe the November 2, 2009 (PAKISTAN): the country has not become a victim is bombers were targeting a passing police A suicide bomber on a motorbike due to its success in foiling these plots patrol. – Reuters, November 1 detonated his explosives next to workers thus far. waiting for their salaries outside a bank November 1, 2009 (IRAQ): A bomb on a near the four-star Shalimar Hotel in Gavin Chua was a former civil servant bus near a police checkpoint in Karbala Rawalpindi. The blast killed at least 30 at the National Security Coordination killed at least three people, including a people. The attack occurred not far from Secretariat (Risk Assessment and Horizon policeman. – Reuters, November 1 the Pakistan Army headquarters. – AFP, Scanning Program) at the Prime Minister’s November 1; Guardian, November 2 Office, Singapore. He is currently November 1, 2009 (IRAQ): Explosives Co-Founder and Managing Partner attached to a bicycle ripped through November 3, 2009 (AFGHANISTAN): (Strategy) at IntSight (www.intsight. a popular market in Mussayab, a Five British soldiers were shot to death net), a Singapore-based venture helping predominately Shi`a town that is 40 by an Afghan policeman they were organizations to anticipate and manage miles south of Baghdad. The explosion training in Helmand Province. The emerging threats and opportunities. The killed at least five people. – Reuters, assailant managed to flee the scene. The views expressed do not necessarily reflect November 1 Taliban claimed responsibility for the those of the Government of Singapore. attack, although it was not immediately November 1, 2009 (SOMALIA): A clear whether they were involved. – AP, remotely-detonated bomb killed five November 4 senior military officers in northern Somalia’s Sool region. – Shabelle Media November 3, 2009 (PAKISTAN): Network, November 1; UPI, November 1 Pakistani troops marched into Srarogha, an important stronghold of Tehrik- November 2, 2009 (UNITED STATES): i-Taliban Pakistan (TTP). Srarogha, Ahmad Wais Afzali, a New York City located in South Waziristan Agency imam charged with four counts of making in Pakistan’s tribal areas, is where false statements to the Federal Bureau former TTP leader Baitullah Mehsud of Investigation, pleaded not guilty. signed his first peace accord with the 34 “Multi-Sensory NDP Defence Display Set to Thrill Afzali is accused of alerting suspected government in February 2005. On Audiences,” Cyberpioneer, June 29, 2009. terrorist Najibullah Zazi that he was October 17, the Pakistan Army deployed

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