HUMAN “Kill the Chicken RIGHTS to Scare the Monkeys” WATCH Suppression of Free Expression and Assembly in Singapore “Kill the Chicken to Scare the Monkeys” Suppression of Free Expression and Assembly in Singapore Copyright © 2017 Human Rights Watch All rights reserved. Printed in the United States of America ISBN: 978-1-6231-35522 Cover design by Rafael Jimenez Human Rights Watch defends the rights of people worldwide. We scrupulously investigate abuses, expose the facts widely, and pressure those with power to respect rights and secure justice. Human Rights Watch is an independent, international organization that works as part of a vibrant movement to uphold human dignity and advance the cause of human rights for all. Human Rights Watch is an international organization with staff in more than 40 countries, and offices in Amsterdam, Beirut, Berlin, Brussels, Chicago, Geneva, Goma, Johannesburg, London, Los Angeles, Moscow, Nairobi, New York, Paris, San Francisco, Sydney, Tokyo, Toronto, Tunis, Washington DC, and Zurich. For more information, please visit our website: http://www.hrw.org DECEMBER 2017 ISBN: 978-1-6231-35522 “Kill the Chicken to Scare the Monkeys” Suppression of Free Expression and Assembly in Singapore Glossary .............................................................................................................................. i Summary ........................................................................................................................... 1 Criminal Penalties for Peaceful Speech .................................................................................... 2 Restrictions on Peaceful Assembly ............................................................................................ 3 Non-Criminal Penalties for Peaceful Speech ............................................................................. 6 Regulatory Restrictions on Online Media .................................................................................. 6 Access to Funding and Venues, and “OB” Markers .................................................................... 7 Fear and Self-Censorship ......................................................................................................... 8 Key Recommendations ...................................................................................................... 11 To the Prime Minister and the Government of Singapore.......................................................... 11 Methodology .................................................................................................................... 12 Background ...................................................................................................................... 13 Detention Without Trial in Singapore’s First Decades ............................................................... 13 Use of Defamation and Contempt Laws against Political Opponents ........................................ 15 Restrictions on Public Assemblies .......................................................................................... 18 Control Over the Media ........................................................................................................... 22 I. International and Domestic Legal Standards .................................................................. 25 Constitution of Singapore ...................................................................................................... 28 II. Criminalization of Peaceful Expression ......................................................................... 30 Contempt ............................................................................................................................... 30 Sedition Act ............................................................................................................................ 43 Penal Code Section 298: Wounding Religious Feelings ............................................................ 50 Parliamentary Elections Act .................................................................................................... 56 Regulation of Assemblies: The Public Order Act ....................................................................... 61 “Unrestricted” Areas: Speakers’ Corner ................................................................................... 75 Censorship in the Arts: The Films Act ..................................................................................... 88 Censorship in the Arts: Theatre ............................................................................................... 93 III. Non-Criminal Penalties for Speech ............................................................................... 96 Civil Defamation .................................................................................................................... 96 Protection from Harassment Act ............................................................................................ 100 Regulatory Restrictions on Online Media ............................................................................... 103 Control over Venues and Arts Housing .................................................................................. 110 Denial or Withdrawal of Funding ............................................................................................ 111 Discriminatory Media Guidelines and Censorship of LGBT issues ...........................................113 IV. Other Laws that Restrict Freedom of Expression ......................................................... 115 Internal Security Act .............................................................................................................. 115 Penal Code Section 298A: “Hate Speech” ............................................................................. 116 Penal Code Sections 499-502: Criminal Defamation ............................................................... 117 Penal Code Section 504: “Insults” that Provoke a Breach of the Peace .................................. 118 Penal Code Section 503: Criminal Intimidation ...................................................................... 120 Penal Code Section 509: Insults to Modesty .......................................................................... 121 V. Recommendations ...................................................................................................... 122 To the Government of Singapore ........................................................................................... 122 To the Attorney General’s Chambers ..................................................................................... 127 To the Director General of Police ........................................................................................... 127 To the Minister of Foreign Affairs ........................................................................................... 128 To Concerned Governments and Intergovernmental Bodies ................................................... 128 Appendix I: Letters to the Singapore Government ........................................................... 129 Glossary FEER Far Eastern Economic Review ISA Internal Security Act MDA Media Development Authority NAR “Not allowed for all ratings” NParks National Parks Board NPPA Newspaper and Printing Presses Act PAP People’s Action Party PEMA Public Entertainments and Meetings Act POA Public Order Act POHA Protection from Harassment Act PPSSO Preservation of Public Security Ordinance SPH Singapore Press Holdings TOC The Online Citizen TRS The Real Singapore Summary In Singapore, there is this culture of fear. Don’t speak up against the government or the government will “fix” you. —Leslie Chew, cartoonist, Singapore, October 2015 In Singapore, even if it is true you aren’t supposed to say it. —Alan Shadrake, author, London, November 2015 Singapore promotes itself as a bustling, modern city-state and a great place to do business. Beneath the slick surface of gleaming high-rises, however, it is a repressive place, where the government severely restricts what can be said, published, performed, read, or watched. Those who criticize the government or the judiciary, or publicly discuss race and religion, frequently find themselves facing criminal investigations and charges, or civil defamation suits and crippling damages. Peaceful public demonstrations and other assemblies are severely limited, and failure to comply with detailed restrictions on what can be said and who can participate in public gatherings frequently results in police investigations and the threat of criminal charges. The suppression of speech and assembly is not a new phenomenon in Singapore. Leaders of the ruling Peoples’ Action Party (PAP), which has been in power for more than 50 years, have a history of bankrupting opposition politicians through civil defamation suits and jailing them for public protests. Suits against and restrictions on foreign media that report critically on the country have featured regularly since the 1970s and restrictions on public gatherings have been in place since at least 1973. Although there has been some relaxation in the rules on public assemblies, they remain extraordinarily strict, and restrictions on participation by foreigners have only increased over time. The government has also enacted new regulations to control online media. The government now uses a combination of criminal laws, oppressive regulatory restrictions, access to funding,