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ORD LOH! Unpacking Singapore’s Enlistment Act
- Bryan Pak, Foo Yong Kun, and Tan Ding Rui
- Aug 13
- 10 min read
Updated: Aug 13
In this Explainer, find out...
What is the Enlistment Act 1970?
How has the Enlistment Act 1970 evolved over time?
How does the Enlistment Act 1970 contribute to Singapore’s defence policy?
Introduction
What does every Singaporean male turning 18 have in common?
Regardless of their family background, educational history or future plans, one thing binds them together: the legal obligation to serve their National Service (NS). It is backed by the Enlistment Act 1970, an important legislation that mandates one of the most defining experiences for Singaporean males.
The Enlistment Act 1970 forms the backbone of Singapore’s conscription policy. It outlines who must serve, when they must serve and what their National Service entails. In this article, we will examine the Enlistment Act 1970: how it works, how it has evolved since its inception, and how it continues to strengthen Singapore’s defence framework.
What Is The Enlistment Act 1970?
The Enlistment Act is a statute passed by the Parliament of Singapore, which caters for the enlistment of persons in the Singapore Armed Forces (SAF), the Singapore Police Force (SPF), and the Singapore Civil Defence Force (SCDF).
In the 1960s, the volatile geopolitical context of Southeast Asia deeply concerned the pioneer generation of post-independence Singaporean leaders. Then-Prime Minister Lee Kuan Yew, addressed the 1964 Legislative Assembly in a speech, mentioning the importance of the NS system, in “maintaining indefinitely a firm shield…and without draining our national resources”.
In order to build up its military capabilities, the Enlistment Act of 1970 was passed. Modelled after the Swiss and Israeli national conscription schemes, the Act formed the backbone of Singapore’s system of universal male conscription and reservist.
In modern times, the Enlistment Act has evolved past being a mere legal obligation to an integral pillar of Singapore’s survival amidst far larger neighbours. Beyond preserving its original purpose of an operationally-ready military force in the event of crisis, it has also become a rite of passage for men in Singapore.
Key Provisions of the Enlistment Act 1970
Under the Enlistment Act 1970, there are a few key provisions of National Service.
Non-Compliance with the Enlistment Act 1970
Notably, the Enlistment Act 1970 responds to non-compliance with harsh penalties. These penalties deter individuals from evading their NS responsibilities, making it fair for those who do comply with the mandatory service for the country.
Some of the more common offences include failing to register for NS, failing to comply with NS Reporting Orders, and failing to apply for an exit permit out of Singapore.
This approach reflects the Singapore Government’s stance on universality and equity with regards to NS. Such a stance is upheld through strong deterrence strategies which go a long way in upholding the integrity of the NS system. This aligns with the core belief behind the Enlistment Act 1970: treating sovereignty as a shared commitment as necessary for the defence of a nation with a small population
Why Did Singapore Need An Enlistment Act?
Withdrawal of British Forces
In the late 1960s, the United Kingdom experienced weak economic growth, in \part due to a high defence expenditure with large investments across military bases globally. To reduce its costs, the British decided to withdraw their military forces from the East of the Suez, including those stationed in Singapore, by 1971. As Singapore could no longer rely on the British to defend itself, it faced a dire need to build a reliable defence force to protect itself from external threats.
This was exacerbated by the fact that when Singapore gained independence, it had a weak military force. The Singapore Armed Forces (SAF) only consisted of the 1st and 2nd Battalions, Singapore Infantry Regiment, with a total of 50 officers and about 1,000 men. The National Service Bill – distinguished from the Enlistment Act 1970 – was passed in 1967 because the Government believed that more manpower was required to build a strong military to back Singapore’s continued sovereignty. Without a strong military, Singapore would not be able to defend itself without help from other nations.
Other Geopolitical Developments
Other geopolitical events further served to motivate the passage of the Enlistment Act 1970. The most notable event is the Indonesia-Malaysia Konfrontasi (1963-1966). Then-Indonesian President Sukarno opposed the formation of the Federation of Malaysia, of which Singapore was a member, and responded by having saboteurs bomb Singapore. Singapore experienced at least 42 Konfrontasi-related attacks, with the most significant attack being the MacDonald House bombing in March 1965, which resulted in three deaths and 33 injuries.
Another notable event in Singapore’s history is the Japanese Occupation (1942-1945). Despite being defended by the British, Singapore was eventually conquered by the Japanese. This incident marked an indelible and painful moment of Singapore’s history. This sent a clear message to Singaporeans – Singapore must never again rely on other countries to defend itself and must form its own line of defence to safeguard national sovereignty.
How Has The Enlistment Act 1970 Evolved?
The introduction of NS in 1967 was not Singapore’s first attempt at introducing compulsory military conscription. Before Singapore achieved full self-governance, the National Service Bill was read in the Singapore Legislative Council, with the aim of ensuring that everyone had an equal stake in defending Singapore. However, the Singapore Labour Party opposed the bill, claiming that it was unfair to ask the locals, who were predominantly immigrant Chinese, to defend the colony. This view was informed by the pragmatic perspective of the Singapore Labour Party, which believed that many Chinese were unwilling to defend the British leadership, who had not treated them as equals.
Nonetheless, the National Service Ordinance still came into effect in March 1954. This was met with violent protests where Chinese middle school students clashed with the police in May 1954. Eventually, due to widespread public unhappiness, the Government decided to postpone the enactment of the National Service Ordinance.
After Singapore gained independence in August 1965, several Acts were enacted by the Government. The Singapore Army Act 1965 and the People’s Defence Force Act 1965 provided for the establishment, administration and maintenance of a combat and a reserve combat unit respectively. In March 1967, Parliament further enacted compulsory national service for 18-year-old male Singaporeans via the National Service (Amendment) Act, which was the Act under which male Singaporeans were conscripted until 1970.
In May 1970, the Enlistment Bill was passed in Parliament; the Enlistment Act 1970 has been effective since August 1970. It repealed the Singapore Army Act 1965, the People’s Defence Force Act 1965, and the National Service (Amendment) Act 1967, consolidating and standardising enlistment procedures under one law. At first instance, it mandated that officers serve for three years and other ranks serve for two years, followed by ten years of reserve service for both.
The Enlistment Act 1970 has since undergone many changes, the most notable change being the length of service. In 1971, the length of service was extended to two-and-a-half years for servicemen holding the rank of Corporal and above. This was because the Ministry of Defence (MINDEF) determined that it took a longer period of time for commanders to become proficient in their duties. In 1983, the reservist training cycle was lengthened from 10 to 13 years. This was because Singapore’s nationwide family planning programme of “Stop at Two” during the 1970s led to a decrease in birth rates and in the number of full-time national servicemen available. Hence, to cushion this lack in manpower, all servicemen had to extend their reservist training cycles.
These changes were later reversed after the duration of full-time NS was reduced to two years in 2005, and the ORNS duration was shortened from 13 to 10 years. This was because the SAF relied more on technology, which reduced the need for manpower. Furthermore, more full-time National Servicemen were enlisted, as more males were born between 1988 and 1997 after the Government replaced its past policy of “Stop at Two” with “Have three or more, if you can afford it” in 1987, solving the issue of manpower shortage.
Another substantial change was made to the services that new enlistees could be enlisted into. In 1975, the Singapore Police Force had their first intake of full-time national servicemen, followed by the Singapore Civil Defence Force in 1981.
Recent Updates to the Enlistment Act 1970
In February 2024, there were three major changes made to the Enlistment Act 1970 in sections 27, 30 and 32.
Section 27
Section 27 covers periods that do not count towards one’s NS obligations. The change aims to clearly define these periods. Some examples of time away from service that are not counted towards NS obligations include: when a serviceman is imprisoned or detained either in Singapore or overseas, when he is held in custody before trial and is later found guilty, and when his medical leave is cancelled because he was fit for duty but misused his leave. This amendment makes it clearer when a serviceman’s absence does not count towards fulfilling his NS duties.
Section 30
Orders and notices to national servicemen are sent through many methods such as telephone calls, radio or television broadcasts. As technology progresses, they have also been sent through electronic methods, such as via Short Message Service (SMS) or through the OneNS portal. Since electronic communication has now become more accepted and reliable, the change to Section 30 formally includes electronic notices as an official method of disseminating information under the Enlistment Act 1970.
There have been many concerns raised, with the main concern being missing out on reading these electronic notifications due to the large number of digital notifications received on a daily basis. To address this, the MINDEF and the Ministry of Home Affairs will continue to use a combination of methods to serve notices. If someone does not respond to an electronic notice, other methods will then be employed. This will increase the likelihood that a serviceman receives the order or notice.
Another concern raised was the lack of explicit agreement. Some servicemen may only be familiar with traditional methods of disseminating information and may not be aware that they may receive orders and notices through newer electronic methods. To address this, the Government mandates that consent must be given before orders and notices sent via electronic methods can be deemed to have been received and read. This ensures that everyone who receives orders and notices through electronic methods is aware that it is an official method of disseminating information and cannot claim that they are ignorant, just to avoid any additional service or duties.
The last concern raised was the impact of potential digital attacks by criminals to undermine communication through electronic means. One of the solutions implemented was to not send clickable links in SMS messages, as scammers have used these links to con victims. MINDEF also carries out regular checks on key platforms like the OneNS portal, such that any suspicious activity is detected and stopped immediately. Lastly, the public is encouraged to report any suspicious messages claiming to be a legitimate notice or order, and to contact the NS Call Centre to confirm a message’s authenticity if they are unsure.
Section 32
Pre-enlistees from age 13 and full-time National Servicemen must have a valid Exit Permit if they want to travel overseas for more than three months. However, there have been past cases where pre-enlistees claimed they were not required to comply with Exit Permit laws because they had not received their NS Registration Notice.
To eliminate any ambiguity, Section 32 will explicitly state that all individuals liable for NS must follow Exit Permit requirements from age 13, regardless of whether they have registered for NS or received their Registration Notice. This means that individuals will still be held accountable if they commit an Exit Permit offence, even if they claim that they were not aware of their NS obligations.
How Does The Enlistment Act 1970 Contribute to Singapore's Defence Policy?
Singapore’s defence policy is fundamentally based on two key pillars—namely deterrence and diplomacy.
Strengthening Deterrence
Deterrence refers to the maintenance of peace by convincing potential aggressors that any attack will be met with a significant response. In order for deterrence to work effectively, the domestic military force must be credible and capable of inflicting severe consequences in retaliation. Singapore’s founding Prime Minister Lee Kuan Yew once used the “poisonous shrimp” as a metaphor to describe Singapore’s defence strategy, illustrating how the country can cause serious harm if provoked, which makes it difficult and painful for any aggressor to approach or attack due to its strong military.
The Enlistment Act 1970 contributes to strengthening deterrence by providing the prerequisites for Singapore to develop a strong and capable SAF, through NS. It also enables rapid mobilisation of substantial manpower and resources to effectively respond to any threats, showcasing the nation’s commitment to safeguarding its sovereignty. In fact, NSmen form the bulk of the SAF in terms of sheer number when fully mobilised.
Over the years, however, NS has evolved in response to evolving security threats towards a more holistic form of defence—Total Defence. Beyond military defence, Singapore also focuses on other non-traditional areas of security. For instance, in 2019, a sixth pillar—Digital Defence—was added to the list, which emphasises the ability to protect ourselves online so that we remain resilient and cohesive in the digital world. Singapore therefore stands as a powerful deterrent against potential aggressors, despite its small geographical size, since one would have to think twice before acting against the “poisonous shrimp”.
Enhancing Diplomacy
Defence diplomacy is built by establishing strong and friendly ties, through extensive cooperation with defence establishments and armed forces around the world. The SAF enjoys significant interactions with other militaries, ranging from exchanges of visits to joint exercises, allowing it to learn and acquire best practices from counterparts abroad.
The SAF also contributes actively to international security as well as humanitarian assistance and disaster relief (HADR) efforts. For instance, Singapore plays an important role in ensuring the security of global waterways. In 2018, Singapore successfully completed its fifth command of the Combined Task Force (CTF) 151, as part of the international counter-piracy efforts in the Gulf of Aden. This deployment was also the SAF’s last and 11th deployment to the Gulf of Aden. In terms of HADR missions, Singapore rendered assistance to Aceh in the aftermath of the 2004 Boxing Day tsunami, where more than 1,500 SAF personnel were deployed as part of the SAF’s largest overseas operation at that time.
The SAF’s active participation in these international efforts highlights the important role of the Enlistment Act 1970 in enhancing Singapore’s capability to mobilise forces and respond effectively.
Conclusion
In conclusion, the Enlistment Act 1970 is more than just a piece of legislation. It shows Singapore’s commitment to defence and national security. Over the decades, NS has become a rite of passage that is deeply ingrained in every Singaporean male and has shaped our way of life.
As Mr Lee Kuan Yew once said, “If you, who are growing up, do not understand that you have got to defend this, then I say in the end, we will lose.” This quote emphasises the importance of military defence and the idea that the nation can only be ours if every Singaporean son is willing to stand up and take ownership of it.
In this ever-changing world, where the plethora of opportunities available to Singaporeans can divert Singaporeans’ lives in different trajectories, the Enlistment Act 1970 is what binds Singaporeans together and reinforces a sense of patriotism and duty to the nation, to protect the country in times of crisis.
This Policy Explainer was written by members of MAJU. MAJU is a ground-up, fully youth-led organisation dedicated to empowering Singaporean youths in policy discourse and co-creation.
By promoting constructive dialogue and serving as a bridge between youths and the Government, we hope to drive the keMAJUan (progress!) of Singapore.
The citations to our Policy Explainers can be found in the PDF appended to this webpage.
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