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Viewing cable 09HONGKONG354, MACAU PASSES ARTICLE 23 LEGISLATION WITHOUT

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Reference ID Created Released Classification Origin
09HONGKONG354 2009-02-26 10:07 2011-08-30 01:44 CONFIDENTIAL Consulate Hong Kong
VZCZCXRO3061
OO RUEHCN RUEHGH RUEHVC
DE RUEHHK #0354/01 0571007
ZNY CCCCC ZZH
O 261007Z FEB 09
FM AMCONSUL HONG KONG
TO RUEHC/SECSTATE WASHDC IMMEDIATE 6973
INFO RUEHOO/CHINA POSTS COLLECTIVE
C O N F I D E N T I A L SECTION 01 OF 02 HONG KONG 000354 
 
SIPDIS 
 
DEPT FOR EAP/CM; ALSO FOR DRL 
 
E.O. 12958: DECL: 02/25/2019 
TAGS: PGOV PHUM MC
SUBJECT: MACAU PASSES ARTICLE 23 LEGISLATION WITHOUT 
SERIOUS OPPOSITION 
 
REF: (A) HONG KONG 335 (B) HONG KONG 232 AND PREVIOUS 
 
Classified By: Consul General Joe Donovan for reasons 1.4 (b) and (d) 
 
1. (C) Summary and Comment: The Macau Legislative Assembly 
(LA) passed Macau's Article 23 Bill into law February 25 by a 
24-2 vote, with one abstention; the law is expected to take 
effect March 3.  The opposition, led by the proto-democratic 
New Macau Association (NMA), was able to muster only thirteen 
participants to a candlelight vigil held near the LA meant to 
motivate public vigilance and call on the government to 
balance protecting national security with safeguarding 
fundamental freedoms.  NMA has focused much of its energy 
recently on criticizing increasingly frequent incidents of 
Hong Kong politicians, activists, and even accredited media 
being denied entry into Macau, which observers have argued 
suggests the Macau government is using a blacklist against 
perceived critics.  Meanwhile, despite fears that Macau's 
action would push Hong Kong to revisit Article 23, a senior 
Hong Kong government official told the Consul General as 
recently as February 20 that the Hong Kong government had no 
plans to re-open the issue in the near future.  With the 
overwhelming majority of even Macau's few directly-elected 
legislators squarely in the government camp, Macau's passing 
an Article 23 law was a done deal from the start.  End 
summary and comment. 
 
-------------------------- 
Final Cries of Indignation 
-------------------------- 
 
2. (C) The proto-democratic NMA, led by legislators Au 
Kam-san and Antonio Ng Kuok-cheong, invited the people of 
Macau to join a "candlelight sit-in" outside the Legislative 
Assembly February 24.  Perhaps bowing to the inevitable, NMA 
chose to forgo any attempt to oppose or stall the bill, and 
merely called for citizens to be vigilant about their rights 
and for the government to "achieve a balance between 
protecting national security and safeguarding human rights." 
NMA also warned the government and law enforcement "not to 
abuse police powers in order to interfere in or suppress 
dissidents or dissent activities or create terror (kongbu)." 
Media reported only thirteen people (and thirty police) 
appeared at the vigil, which contrasted with the hundred or 
so who turned up on the 25th to support the passage of the 
bill.  Media covered the events, and has given respectable 
coverage to the NMA's failed attempts to pass amendments to 
the bill (ref B). 
 
3. (C) The only other voices raised in opposition were 
Amnesty International and the Hong Kong Journalists' 
Association (HKJA).  Amnesty somewhat vaguely called for work 
on the bill to be halted pending revision of "the bill's 
potential threats to human rights."  HKJA mentioned 
specifically the bill's lack of a public interest defense for 
journalists and its vague language regarding "preparatory 
acts," and generally found the bill to be at odds with the 
Johannesburg Principles on national security legislation. 
Both Amnesty and HKJA feared the bill would have a 
"demonstration effect" on Hong Kong, leading to a renewed 
push to pass Article 23 legislation there. 
 
------------------ 
The Inevitable End 
------------------ 
 
4. (C) The Legislative Assembly (LA) held its final, 
clause-by-clause vote on the "Law on Safeguarding National 
Security" on February 25.  As expected, the bill passed 
easily, with a solid block of 24 votes for each of the 
clauses.  (Note: 27 of Macau's 29 legislators voted on the 
bill; the LA President by tradition does not vote and one 
legislator was absent.  End note.)  Proto-democratic New 
Macau Association (NMA) legislators Antonio Ng and Au Kam-san 
voted against provisions regarding "preparatory acts", the 
vague language surrounding "prying into" classified matters, 
and some of the other areas their failed amendments (ref B) 
had meant to address.  Au's concluding words on the law were 
that, while it should not immediately cause a clampdown on 
the political environment, its grey areas required vigilance 
from the public and restraint on the part of government and 
law enforcement.  Democratic-leaning "New Hope" legislator 
Jose Pereira Coutinho did not vote against any part of the 
law, but abstained on a handful of clauses. 
 
5. (C) The Macau government, in a statement issued that 
night, praised this expression of the Macau people's "love 
China, love Macau spirit", pledged to faithfully implement 
the law and, in language which appeared lifted from NMA, 
promised "to achieve a balance in protecting national 
 
HONG KONG 00000354  002 OF 002 
 
 
security and safeguarding fundamental rights and freedoms." 
Media expect the law to be gazetted March 2, which would put 
it in force March 3. 
 
--------------------------- 
Illuminating the Black List 
--------------------------- 
 
6. (C) In recent days, the NMA has focused more of its 
attention on what appears to be tighter control of Macau's 
border, with security officials citing (but not explaining) 
Macau's internal security law as grounds to turn away outside 
activists and even media.  Ref B and previous report the 
growing numbers of Hong Kong activists and pan-democratic 
legislators denied entry to Macau, even when traveling for 
leisure.  What has caught the attention of even the Hong Kong 
government, however, was the decision to block a South China 
Morning Post (SCMP) photojournalist from entering Macau, 
despite the Macau government's accrediting him to cover the 
Ao Man-long corruption trial.  The SCMP and local media 
groups have made strident protests, and even Chief Secretary 
for Administration Henry Tang raised the matter with Macau 
Secretary for Economy and Finance Francis Tam on the margins 
of a Pearl River Delta cooperation meeting February 19. 
While Tang and Hong Kong Secretary for Security Ambrose Lee 
have expressed varying levels of unease at the bans, the Hong 
Kong government has held to the line that each jurisdiction 
has its own immigration procedures, a stance criticized on 
the editorial page of respected centrist daily Ming Pao.  The 
same photojournalist was turned away a second time on 
February 25, when he went to Macau to cover passage of 
Article 23. 
 
7. (C) For its part, NMA issued a statement condemning the 
moves as akin to the imposition of an "iron curtain."  NMA 
argues the internal security law is meant to prevent the 
entry into Macau of those known or believed to be intent on 
committing violent acts threatening the well-being and/or 
social order of Macau, such as terrorists or those connected 
to organized crime.  NMA criticized what it described at the 
abuse of this law to prevent those traveling to Macau to take 
part in academic exchanges and peaceful political events, 
warning that these actions cast a pall on an economy 
dependent on tourism. 
 
---------------------------- 
Hong Kong: No Rush to Resume 
---------------------------- 
 
8. (C) Throughout Macau's consideration of Article 23 
legislation, a primary concern expressed by Hong Kong 
democrats and activists has been the possibility that Macau's 
passage of a national security law would lead to the central 
government's insisting Hong Kong do the same.  Hong Kong 
debated Article 23 legislation in 2003, but massive public 
opposition and a lack of support within Hong Kong's 
Legislative Council led to the bill's ignominious withdrawal 
and the resignations of two cabinet officials, followed by 
the early departure of then-Chief Executive Tung Chee-hwa. 
Hong Kong government officials, echoed by the Central 
Government Liaison Office, have said on several occasions 
that Hong Kong's focus right now is on the economy and there 
are no plans to re-introduce an Article 23 bill at this time. 
 Secretary for Constitutional and Mainland Affairs Stephen 
Lam reiterated this view to the Consul General February 20 
(ref A).  A government spokesman said much the same thing to 
the press yesterday following passage of Macau's law. 
 
9. (C) Local observers are generally in agreement that it 
would be a mistake for Hong Kong to take on Article 23 
anytime soon.  Where they split is on whether Hong Kong will 
have a choice.  One scenario holds that the bill will be 
brought up toward the end of Chief Executive Donald Tsang's 
current term, on the grounds that he has no further need of 
political capital.  A counter-argument to this view is the 
expected boost that thus would be given to the pan-democrats 
in the 2012 Legislative Council Elections.  The second theory 
holds that the next Chief Executive will be told to get it 
out of the way early in his or her term. 
DONOVAN