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FAC News -
Wednesday, September 18, 2002 8:19 PM
IN THE FEDERAL COURT OF MALAYSIA
IN KUALA
LUMPUR
(APPELLATE DIVISION)
CRIMINAL APPEAL NO. 05-8-2001(W)
(Criminal Appeal No. 44-15-2001
In The Court of Appeal,
Malaysia at
Kuala Lumpur)
BETWEEN
MOHAMED EZAM BIN MOHD. NOR
… APPELLANT
AND
KETUA POLIS NEGARA … RESPONDENT
CRIMINAL APPEAL NO. 05-9-2001(W)
(Criminal Appeal No. 44-16-2001
In The Court of Appeal,
Malaysia at
Kuala Lumpur)
BETWEEN
RAJA PETRA
BIN RAJA KAMARUDDIN … APPELLANT
AND
KETUA POLIS NEGARA … RESPONDENT
CRIMINAL APPEAL NO. 05-10-2001(W)
(Criminal Appeal No. 44-17-2001
In The Court of Appeal,
Malaysia at
Kuala Lumpur)
BETWEEN
CHUA TIAN CHANG … APPELLANT
AND
KETUA POLIS NEGARA … RESPONDENT
CRIMINAL APPEAL NO. 05-11-2001(W)
(Criminal Appeal No. 44-18-2001
In The Court of Appeal,
Malaysia at
Kuala Lumpur)
BETWEEN
HISHAMUDIN BIN RAIS … APPELLANT
AND
KETUA POLIS NEGARA … RESPONDENT
CRIMINAL APPEAL NO. 05-12-2001(W)
(Criminal Appeal No. 44-19-2001
In The Court of Appeal,
Malaysia at
Kuala Lumpur)
BETWEEN
SAARI BIN SUNGIB … APPELLANT
AND
KETUA POLIS NEGARA … RESPONDENT
Coram:
MOHAMED DZAIDDIN ABDULLAH, CJ
WAN ADNAN ISMAIL, PCA
STEVE SHIM LIP KIONG, CJ (Sabah & Sarawak)
ABDUL MALEK AHMAD, FCJ
SITI NORMA YAAKOB, FCJ
JUDGMENT OF STEVE L. K. SHIM, CJSS
1. The Threshold Issue
I have read the judgments in draft of the learned Chief Justice
Mohamed Dzaiddin and my learned brother Abdul Malek, FCJ as well
as my learned sister Siti Norma, FCJ. Subject to what I have to
say hereafter, I agree with their reasons and conclusions on the
issues raised in these appeals. There is one significant point I
need to elaborate on. This relates to the threshold issue of the
reviewability of justifiability of the exercise of discretion under
S. 73(1)(a) and (b) of the Internal Security Act, 1960 (hereafter
“the Act”). For completeness, the whole section 73 states:-
“73. (1) Any police officer may without warrant arrest
and detain pending enquiries any person in respect of whom he has
reason to believe –
(a) that there are grounds which would justify his detention
under section 8; and
(b) that he has acted or is about to act or is likely to
act in any manner prejudice to the security of Malaysia or any part
thereof or to the maintenance of essential services therein or to
the economic life thereof.
(2) Any police officer may without warrant arrest and detain
pending enquiries any person, who upon being questioned by the officer
fails to satisfy the officer as to his identity or as to the purposes
for which he is in the place where he is found, and who the officer
suspects has acted or is about to act in any manner prejudicial
to the security of Malaysia or any part thereof or to the maintenance
of essential therein or to the economic life thereof.
(3) Any person arrested under this section may be detained
for a period not exceeding sixty days without an order of detention
having been made in respect of him under section 8:
Provided that –
(a) he shall not be detained for more than twenty-four hours
except with the authority of a police officer of or above the rank
of Inspector;
(b) he shall not be detained for more than forty-eight hours
except with the authority of a police officer of or above the rank
of Assistant Superintendent; and
(c) he shall not be detained for more than thirty days unless
a police officer of or above the rank of Deputy Superintendent has
reported the circumstances of the arrest and detention to the Inspector-General
or to a police officer designated by the Inspector-General in that
behalf, who shall forthwith report the same to the Minister.
(4) – (5) (Repealed)
(6) The powers conferred upon a police officer by subsections
(1) and (2) may be exercised by any member of the security forces,
any person performing the duties of guard or watchman in a protected
place and by any other person generally authorized in that behalf
by a Chief Police Officer.
(7) Any person detained under the powers conferred by this
section shall be deemed to be in lawful custody, and may be detained
in any prison, or in any police station, or in any other similar
place authorized generally or specially by the Minister.”
On this issue, I will take the same approach as Wee Cong Jin, CJ
Singapore in Chng Suan Tze v The Minister Of Home Affairs &
Ors And Other Appeals (1989) 1 MLJ 69 and examine it from 2 perspectives,
namely, (a) whether the objective or the subjective test applies
to the exercise of discretion under section 73(1) of the Act; and
(b) the effect of national security considerations on the reviewability
of such discretion.
(2) Whether objective or subjective test applies
In construing the words “reason to believe” in S.73(1), the learned
High Court Judge has adopted the subjective test in line with the
2 Federal Court decisions in the Re Tan Sri Raja Khalid Bin Raja
Harun (1988) 1 MLJ 182 and Theresa Lim Chin Chin & Ors v Inspector
General Of Police (1988) 1 MLJ 293. To better appreciate the propositions
advanced in those cases, I find it necessary to highlight in extenso,
the relevant passages therein. In Re Tan Sri Raja Khalid (supra),
Salleh Abbas, LP said inter alia:-
“ The arrest and detention under section 73(1) is pending enquiries
to see if an order under section 8 should be made by the Minister.
It is clear from the language of the two sections that section 73
provides for the initial detention and cannot be divorced from section
8 of the Act which provides for the final detention.”
And he later stated:-
“In simple language, what section 73(1) of the Act provides is
that a police officer may arrest any person in respect of whom the
officer has reason to believe there are grounds to justify the person’s
detention under section 8 of the Act and that person either has
acted or is about to act in a manner prejudicial to the security
of the nation. The penal Code defines ‘reason to believe’ to mean
‘sufficient cause to believe’. Who then is to decide what is sufficient
cause under section 73(1) of the Act? That is the crux of the matter.
We hold that since section 73(1) and section 8 of the Act are so
inextricably connected, the subjective test should be applied to
both. The court cannot require the police officer to prove to the
court the sufficiency of the reason for his belief under section
73(1).”
This proposition was restated and expanded by Salleh Abbas LP in
Theresa Lim (supra) as reflected in the following passages of his
judgment:-
“Looking at the provision relating to preventing detention, we
cannot see how the police power of arrest and detention under section
73 could be separated from the ministerial power to issue an order
of detention under section 8. We are of the opinion that there is
only one preventive detention and that is based on the order to
be made by the minister under section 8. However, the minister will
not be in a position to make that order unless information and evidence
are brought before him, and, for this purpose, the police is entrusted
by the Act to carry out the necessary investigation and, pending
inquiries, to arrest and detain a person, in respect of whom the
police has reason to believe that there exist grounds which would
justify the detention of such person under section 8. There can
be no running away from the fact that the police power under section
73 is a step towards the ministerial power of issuing an order of
detention under section 8, which the Attorney-General referred to
as the initial stage in the process of leading to preventive detention.
….
It is clear from these provisions of the Constitution, and of the
ISA, that the intention of the framers of the Constitution is that
judges in the matter of preventive detentions relating to the security
of the Federations are the executive. This is further supported
by clause (3) of Article 151, which says that the Article does not
impose an obligation on ‘any authority’ – a term much wider that
the “the authority on whose order any person is detained” – to disclose
facts, whose disclosure would in its opinion be against the natural
interest. The authority here, in our view, includes those with powers
dealing with preventive detention, not only the Minister and his
staff but …. also the police who are involved in arresting and detaining
a person pending the enquiry under section 73 of the Act. ….
To show further that evidence or information relating to arrests
and detentions, either at the initial stage, or in pursuant to a
ministerial order, is excluded from public disclosure is section
16, which says that the Minister or any member of an Advisory Board
or any public servant shall not be required to disclose facts or
to produce documents which he considers to be against the national
interest to disclose. Encik Sri Ram contended that this section
is only confined to the provision of ‘this chapter’, and since the
chapter under which section 16 enacted is preventive detention pursuant
to a ministerial order under section 8, it therefore cannot apply
to the arrest at the initial stage pursuant to police power under
section 73. This argument could only be right if we accept that
there are two preventive detentions. We do not accept that argument.
We regard that arrest and detention by the police and detention
pursuant to a ministerial order or further detention after the matter
has been considered by the Advisory Board as one continuous process
beginning with the initial arrest and detention under section 73.
We accept that the initial arrest and detention may or may not result
in the issuing of the ministerial order of detention under section
8, but nevertheless, it is within one scheme of the preventive detention
legislation.”
From the excerpts above, it seems clear that both Re Tan Sri Raja
Khalid and Theresa Lim are decided principally on the basis that
S.73(1) and S.8 are inextricably linked and as such, S.16 of the
Act which expressly applies to S.8, should, by implication, also
apply to S.73(1), thereby giving rise to a situation where the court
would be precluded from inquiring into the existence and/or sufficiency
of the grounds under the section aforesaid. On that basis and reinforced
by the provisions of clause (3) of Article 151 of the Constitution,
they hold that the subjective test should apply in determining the
words “reason to believe” in S.73(1). Everything, it seems, turns
upon this inextricable connection between S.73(1) and S.8. Thus,
it becomes an issue for consideration.
By “inextricably connected” I would take it to mean that S.73(1)
and S.8 are wholly dependant on each other – that there has to be
a police investigation under S.73 before the Minister can properly
exercise his discretion to issue a detention order under S.8 or
conversely, that no detention order under S.8 can properly be issued
by the Minister without the necessary investigation by the police
under S.73. In my view, such a proposition would have the effect
of inhibiting or restricting the unfettered discretion of the Minister.
It would mean that the Minister could not, on his own and independent
of the police, conduct any investigation or take into consideration
factors extraneous to those arising from police investigation under
S.73. What matters of national interest are infinitely varied. So
are matters of national security of the State. These are the concerns
of the Minister. In the exercise of his discretion, he need not
necessarily have to consider and rely on police investigation. This
is implicit in the very nature of an unfettered discretion. There
may well be other public considerations of a political, social or
economic nature having an impact on national security which are
purely within his peculiar knowledge and which he considers relevant
to his decision. Furthermore, police investigation under S.73 may
stop short of submission or reference to the Minister where circumstances
reveal insufficient evidence to warrant the continued detention
of the detainee. In such a case, the matter would, quite conceivably,
never reach the door of the Minister. Does it then follow that the
powers of the Minister under S.8 have become impotent and stagnant?
Clearly, if it was the intention of Parliament to impose a mandatory
obligation on the part of the Minister to consider the police investigation
under S.73 before he could issue a detention order under S.8, Parliament
would have expressly provided for it as she did in the Dangerous
Drugs (Preventive Measures) Act, 1985, wherein S.3(1) states:-
“3(1). Any police officer may, without warrant, arrest and detain,
for the purpose of investigation, any person in respect of whom
he has reason to believe there are grounds which could justify his
detention under subsection (1) of section 6.”
And section 6(1) states:-
“6(1): Whenever the Minister, after considering –
(a) the complete report of investigation submitted under
subsection (3) of section 3; and
(b) the report of the Inquiry Officer submitted under subsection
(4) of section 5,
is satisfied with respect to any person that such person has been
or is associated with any activity relating to or involving the
trafficking in dangerous drugs, the Minister may, if he is satisfied
that it is necessary in the interest of public order that such person
be detained, by order (hereinafter referred to as a “detention order”)
direct that such person be detained for a period not exceeding two
years from the date of such order.”
Quite clearly, in the case where the Minister is deciding whether
or not to issue a detention order under the Dangerous Drugs (Preventive
Measures) Act, he has to consider the police investigations or reports
submitted to him. There is a mandatory obligation for him to do
so. Such express provisions are conspicuously absent in S.8 or S.73
of the Act.
Examined in the context stated, it must mean that although S.73(1)
and S.8 are connected, they can nevertheless operate quite independently
of each other under certain circumstances. Section 8 is not necessarily
dependent on S.73(1) and vice versa. In the circumstances, it cannot
therefore be said that they are “inextricably connected”. In this
respect, I must, with greatest respect, defer from the view expressed
in Re Tan Sri Raja Khalid and Theresa Lim.
3. Section 16 of the Act
Given the conclusion above, the applicability of S.16 to S.73(1)
becomes untenable. S.16 states:-
“Nothing in this Chapter or in any rules made thereunder shall
require the Minister or any member of the Advisory Board or any
public servant to disclose facts or to produce documents which he
considers it to be against the national interest to disclose or
produce.”
The learned High Court Judge, following the decisions in Re Tan
Sri Raja Khalid and Theresa Lim, takes the view that the right of
non-disclosure under S.16 makes the test under S.73(1) a subjective
one. Here, I think it is important to note the actual wording in
S.16. It is expressly stated to be applicable only in relation to
Chapter II, Part II of the Act. To read it as applying to S.73 which
falls under Part IV would clearly be contradicting the expressed
intention of Parliament. It is interesting to note that this line
of argument was canvassed before the Federal Court in Theresa Lim.
In rejecting it, Salleh Abbas LP said this:-
“This argument could only be right if we accept that there are
two preventive detentions. We do not accept that argument. We regard
that arrest and detention by the police and detention pursuant to
a ministerial order or further detention after the matter has been
considered by the Advisory Board as one continuous process beginning
with the initial arrest and detention under section 73. We accept
that the initial arrest and detention may or may not result in the
issuing of the ministerial order of detention under section 8, but
nevertheless, it is within one scheme of the preventive detention
legislation.”
In my view, it must surely be a matter of common sense that any
detention involves the restriction or curtailment of the liberty
of an individual. Any detention order must necessarily result in
the deprivation of freedom without trial and constitutes a serious
transgression upon the fundamental liberty of a person. So serious
indeed that Abdoolcader J. in Yeap Hock Seng v Minister Of Home
Affairs, Malaysia (1975) 2 MLJ 279 was prompted to say at page 281:-
“The heavy musketry of the law will always be brought to bear upon
any suggestion of unlawful invasion or infringement of the personal
liberty of an individual in the form of habeas corpus and kindred
orders where necessary to grant relief when warranted. It was aptly
put in the American case of State Ex Rel.; Evans v Broaddus that
at least in times of peace every human power must give way to the
writ of habeas corpus and no prison door is stout enough to stand
in its way.”
Under S.73(1), a person can be arrested and detained by the police
pending enquiries for a maximum period of 60 days. This is quite
different from the detention effected by order of the Minister under
S.8 which may extend to 2 years. Quite clearly, there are 2 separate
detentions involved although they may conceivably fall within one
scheme of the preventive detention legislation.
I pause here for a moment to reflect on that illuminating observation
by Suffian FCJ (as he then was) in Karam Singh v Menteri Hal Ehwal
Dalam Negeri Malaysia (1969) 2 MLJ 129 when he said:
“Our law is quite different from that of India.
First, as already stated, the power of detention is here given to
the highest authority in the land, acting on the advice of the Minister
responsible to and accountable in Parliament, not to mere officials.”
The highest authority referred therein was the Yang di-Pertuan
Agong. This was the position before the amendments to S.8 was effected
by the Internal Security (Amendment) Act, 1971 (Act A61) which came
into effect on 1st September
1971. It was the Yang di-Pertuan Agong who would issue
the detention order through the Minister under S.8 if satisfied
that detention was necessary. In this connection, case authorities
have taken the subjective test approach. In all of them, the detaining
authority had been the Minister or the equivalent, someone representing
the highest echelons of the executive and not mere officials. Indeed,
Viscount Maugham had, as far back as 1942, sounded the alarm when
he said in Liversidge v Sir John Anderson & Anor (1942) Ac 206
at page 222:
“….. It is to be noted that the person who is primarily entrusted
with these most important duties (in connection with detaining persons
without trial in England)
is one of the Principal Secretaries of State, and a member of the
government answerable to Parliament for a proper discharge of his
duties. I do not think he is at all in the same position as, for
example, a police constable.”
In my view, that observation is even more poignant when one takes
into consideration the scope and extent of subsection (6) of section
73 which states:-
“(6) The powers conferred upon a police officer by subsections
(1) and (2) may be exercised by a member of the security forces,
any person performing the duties of guard or watchman in a protected
place and by any other person generally authorized in that behalf
by a Chief Police Officer.”
Given the enormous powers conferred upon police officers including
minor officials such as guards and watchmen and the potentially
devastating effect or effects arising from any misuse thereof, it
could not have been a matter of accident that Parliament had thought
it fit that the right of non-disclosure under S.16 should only be
confined to those personalities and circumstances falling within
the ambit of Chapter II of the Act and not beyond. It therefore
makes sense that the subjective judgment accorded to the Minister
under S.8 cannot be extended to the police in the exercise of their
discretion under S.73(1).
4. Article 151(3) of the Constitution
In Theresa Lim, Salleh Abbas LP has also relied on the provisions
of clause (3) of Article 151 of the Constitution as a significant
factor in restraining or inhibiting the court’s power of judicial
review concerning the exercise of discretion by the detaining authority
under S.73(1). This is reflected in the following passage of his
judgment:-
“Secondly, section 16 of the ISA and Article 151 clause (3) clearly
authorize the executive not to disclose any information relating
to national security. In that event, the court could only be limited
to what has been presented before it. ….
It there has been no provision of clause (3) of Article 151 and
section 16, the matter, of course, could be decided by the court,
whether it was really in the interest of the security that such
information should be withheld. …. In this case, whether the objective
or subjective test is applicable, it is clear that the court will
not be in a position to review the fairness of the decision-making
process by the police and the Minister because of the lack of evidence
since the Constitution and the law protect them from disclosing
any information and materials in their possession upon which they
based their decision. Thus it is more appropriately described as
a subjective test.”
It is, I think, convenient to look at the whole Article 151 which
states:-
“151(1) Where any law or ordinance made or promulgated in pursuance
to this Part provides for preventive detention –
(a) the authority on whose order any person is detained
under that law or ordinance shall, as soon as may be, subject to
Clause (3), the allegations of fact on which the order is based,
and shall give him the opportunity of making representations against
the order as soon as may be;
(b) no citizen shall continue to be detained under that
law or ordinance unless an advisory board constituted as mentioned
in Clause (2) has considered any representations made by him under
paragraph (a) and made recommendations thereon to the Yang di-Pertuan
Agong within three months of receiving such representations, or
within such longer period as the Yang di-Pertuan Agong may allow.
(2) An advisory board constituted for the purposes of this
Article shall consist of a chairman who shall be appointed by the
Yang di-Pertuan Agong and who shall be or have been, or be qualified
to be, a judge of the Federal Court, the Court of Appeal or High
Court, or shall before Malaysia Day have been a judge of the Supreme
Court and two other members who shall be appointed by the Yang di-Pertuan
Agong.
(3) This Article does not require any authority to disclose
facts whose disclosure would in its opinion be against the national
interest.”
There are 2 points to make on clause (3) of Article 151. First,
it relates to non-disclosure of facts upon which the detention order
is based and not the grounds for the detention. And grounds are
quite distinct from allegations of fact: (see Karam Singh v Menteri
Hal Ehwal Dalam Negeri Malaysia
(1969) 2 MLJ 129). In this regard, the observations made by Arulanandom
J. in P.E. Long & Ors v Menteri Hal Ehwal Dalam Negeri Malaysia
& Ors (1976) 2 MLJ 133 when construing S.3(1) of the Emergency
(Public Order & Prevention Of Crime) Ordinance 1969 are particularly
instructive. He said as follows:-
“…. Counsel for the applicants argues that the affidavits of the
officer does not give the grounds and that it is the duty of the
courts to look into the grounds and see if the grounds are reasonable
and if the grounds are not reasonable, Article 5(3) of the Constitution
has been contravened. This submission is wholly without substance.
Article 5(3) of the Constitution only states that the person arrested
shall be informed as soon as may be of the grounds of his arrest
and section 3(1) of the Emergency (P.O.P.C) Ordinance, 1969, only
states that 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 4(1). No further conditions are required for a police
officer to arrest a person under this section.”
Subsequently, in the case of Inspector-General Of Police &
Anor v Lee Kim Hoong (1979) 2 MLJ 291, Harun J. (as he then was)
expressed a similar view but in a different context when he said:-
“I should make it clear that the police are not being called upon
to disclose the evidence which led to the arrest and detention but
merely the grounds of arrest. All the Police have to say, for example,
is that ‘Lee was arrested because we have reason to believe that
it is necessary for the prevention of crimes involving violence.”
Still later in Karam Singh, Suffian FCJ (as he then was) took the
opportunity to explain the difference between “grounds” and “purposes”
with reference to the order of detention issued by a minister under
S.8 of the Act. This is what he said:-
“The order of detention and the grounds, when read together, mean
that because the executive thinks (grounds) that the appellant has
since 1957 consistently acted in a manner prejudicial to the security
of Malaysia, therefore the Yang di-Pertuan Agong is satisfied that
it is necessary to detain the detainee with a view to (purposes)
preventing him from doing the things specified in the order.
Just as purposes are distinct from grounds of detention, so are
grounds of detention distinct from allegations of fact on which
the order of detention is based.”
From the authorities cited, it seems clear that the grounds to
be given by the detaining authority need merely consist of general
information and not the evidential details more relevant to allegations
of fact. It is in this light that, I think, S.73(1)(a) ought to
be construed. I shall expand on this shortly. In the meantime, I
turn to the second point concerning Article 151(3). Here, I take
the view that it must be read and construed in the context of clause
(1) thereof. It relates to non-disclosure of allegations of fact
specifically to the detainee by the detaining authority on grounds
of national security. In this respect, the comments by M.P. Jain
in his book “Administrative Law Of Malaysia
& Singapore,
Third Edition, at page 647 relating to Re Tan Sri Raja Khalid are
pertinent. It reads:-
“But, on appeal by the government, the Supreme Court took an extremely
restrictive view of the scope of judicial review of preventive detention
orders. It ruled that the test for the exercise of the executive
discretion in such cases was subjective, and the court could not
insist on evidence being given for the existence of the security
aspects in the specific case as there was no obligation on the part
of the concerned authority to disclose any evidence to the court.
The court referred to Article 151(3) of the Constitution under which
the authority cannot be required to furnish facts whose disclosure
would in its opinion be against national interest. It may, however,
he argued that Article 151(3) bars information from being disclosed
to the detainee but not to the court. Article 151(3) obviously has
reference to Article 151(1) and (2) under which the detaining authority
has to supply the grounds of detention to the concerned detainee.
The court is under a constitutional obligation to be satisfied that
the detention was lawful. This obligation has been placed on the
court by Article 5(1) and (2) of the Constitution. How is the court
going to discharge this obligation if it is denied all relevant
information.”
I think there is merit in the proposition that Article 151(3) merely
bars information concerning matters of national security from being
disclosed to the detainee and not to the court as such. Indeed,
there is nothing to indicate or suggest any such prohibition from
disclosure to the courts for the purpose of judicial review.
5. Whether preconditions in S.73(1) complied with
Given the reasons stated above, I take the view that as the arrest
and detention by the police officer entail the curtailment of the
liberty of a subject involving, as I have said, as basic and fundamental
right, his exercise of discretion under S.73(1) is therefore subject
to the objective test and thus reviewable by a court of law. The
decision of the police officer is objectively justifiable. This
means that the question whether a police officer has the required
“reason to believe” when he makes the arrest and detention in reliance
on S.73(1) is objectively justiciable. The burden is on the police
officer to satisfy the court that the preconditions constituting
the said section which set out the jurisdictional threshold requisite
to the exercise of arrest and detention have been complied with.
Only if the preconditions specified therein are fulfilled can the
police officer be said to have the rights flowing from the section:
(see Minister Of Law & Order & Ors v Pavlicevic (1989) SA
679).
What are these preconditions in S.73(1)? Therein, the police officer
must have reason to believe (a) that there are grounds which would
justify detention of the detainee under S.8 and (b) that the detainee
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 the maintenance
of essential services therein or to the economic life thereof. In
this case, I think the affidavits filed by the respondent to indicate
that at the time of their arrests, the detainees were told that
they were arrested and detained for having acted in a manner likely
to prejudice the security of the country. Based on the authorities
cited earlier, this would be sufficient to comply with S.73(1)(a).
However, the situation is quite different with respect to S.73(1)(b).
Here, the burden is on the respondent to satisfy the court by way
of material evidence that the detaining authority had reason to
believe that the detainees had acted or were about to act or were
likely to act in a manner prejudicial to the security of Malaysia.
A thorough perusal of the affidavits filed by the respondents find
them to contain nothing more than bare denials in response to the
allegations contained in the affidavits affirmed by the respective
appellants. This is hardly surprising given his reliance on S.16
of the Act and Article 151(3) of the Constitution. No particulars
have been disclosed in the respondent’s affidavits to show that
the appellants had acted or were about to act or were likely to
act in any manner prejudicial to the security of Malaysia,
etc. In the circumstances, paragraph (b) of subsection (1) of section
73 has not been discharged by the respondent. Furthermore, the matters
disclosed in those affidavits do not seem to have any bearing on
the press statement issued by the Inspector-General of Police. In
effect, the respondent has not discharged the initial burden of
satisfying the court as to the jurisdictional threshold requisite
under S.73(1).
6. Effect of national security considerations
I mentioned at the outset the necessity for examining the effect
of national security considerations on the reviewability of the
exercise of discretion of the detaining authority under S.73(1).
Indeed, this is one of the focal points in the respondent’s case.
Dato’ Azahar has submitted that it is important to look at the subject
matter on which the authority is called upon to decide – that if
it concerns a matter of national security which is entirely the
responsibility of the Government, the courts should not intervene.
In short, the judicial process is unsuitable for reaching decisions
on national security. He relies, quite obviously, on the English
case of Council Of Civil Service Unions & Ors v Minister For
The Civil Service (1985) IAC 374. He cites at length various passages
in the speeches of the Law Lords who heard the case but I think
the following observation of Lord Fraser seems to sum up the thrust
of his submission:-
“Those who are responsible for the national security must be the
sole judges of what the national security requires. It would be
obviously undesirable that such matters should be made the subject
of evidence in a court of law or otherwise discussed in public.”
I accept the correctness of that proposition. The executive, by
virtue of its responsibilities, has to be the sole judge of what
the national security requires. However, although a court will not
question the executive’s decision as to what national security requires,
the court will nevertheless examine whether the executive’s decision
is in fact based on national security considerations. Here, I would
subscribe to the observation of Wee Chong Jin CJ (Singapore)
in Chng Suan Tze (supra) when he said:-
“It is clear that where a decision is based on considerations of
national security, judicial review of that decision would be precluded.
In such cases, the decision would be based on a consideration of
what national security requires, and the authorities are unanimous
in holding that what national security requires is to be left solely
to those who are responsible for national security. The Zamora
and GCHQ case. However, in these cases, it has to be shown to the
court that considerations of national security were involved. Those
responsible for national security are the sole judges of what action
is necessary in the interests of national security, but that does
not preclude the judicial function of determining whether the decision
was in fact based on grounds of national security.”
It is in the light of the principle enunciated that the present
case has to be examined. In my view where the arrests and detentions
of the appellants are said to be based on the belief of the detaining
authority relating to the preconditions specified in S.73(1)(a)
& (b) of the Act, the Court is perfectly entitled to inquire
whether those preconditions have been complied with. I have held
earlier that the respondent has adduced sufficient grounds in compliance
with S.73(1)(a). However, the same cannot be said in respect of
S.73(1)(b). Here, the Court is entitled to inquire into the basis
for the detaining authority’s reason to believe that the appellants
had acted or were about to act or were likely to act in a manner
prejudicial to the security of Malaysia.
As I have said before, on the basis of the affidavits filed by the
respondent, there is nothing to indicate or suggest of the detaining
authority’s reason to believe in terms of S.73(1)(b) aforesaid.
7. Conclusion
For all the reasons stated, I find it appropriate to agree with
the learned Chief Justice and my learned brother and sister Judges
in holding that the detentions of the appellants by the police under
S.73(1) of the Act are therefore unlawful. In that context, I agree
that the appeals should be allowed and the appellants be released
accordingly. However, as the undisputed facts show that the appellants
i.e. 1st, 3rd, 4th and 5th appellants have now been detained by
order of the Minister under S.8 of the Act, the issue of whether
or not to grant the writ of habeas corpus for their release from
current detention does not concern us. That is a matter of a different
exercise.
(STEVE SHIM LIP KIONG)
Chief Judge, Sabah & Sarawak
Date of delivery of judgment: 6.9.2002
Date of hearing: 6.6.2001, 10.7.2001,
6.8.2001, 15.10.2001, 29-30.10.2001, 17-18.10.2001,
19.11.2001, 25-28.2.2001
Counsel for the Appellant: Tuan Hj. Sulaiman Abdullah
Encik Sivarasa Rasiah
Encik Christopher Leong
Encik Malik Imtiaz Sarwar
Cik Moganambal Murugappan
Messrs Daim & Gamany Advocates, Kuala
Lumpur
Counsel for the Respondent: Dato’ Seri Ainum Bt. Mohd. Saaid
(Attorney General)
Dato’ Abdul Ghani Bin Patail (Attorney General)
Dato’ Azahar Bin Hj. Mohamed
Mohd. Yusof Bin Hj. Zainal Abiden
Dato’ Mary Lim Thiam Suan
Encik Tun Abdul Majid Tun Hamzah
Encik Kamaludin bin Mohd. Said
Attorney General Chambers, Kuala
Lumpur.
Watching Brief: Encik Roy Rajasingham
Bar Council Malaysia
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