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Combating Domestic Violence in Malaysia: Issues
and Challenges
Aspalella A. Rahman
School of Law
Universiti Utara Malaysia
Sintok, Malaysia
lella@uum.edu.my
Nazli Mahdzir
School of Law
Universiti Utara Malaysia
Sintok, Malaysia
nazli@uum.edu.my
Che Thalbi Md Ismail
School of Law
Universiti Utara Malaysia
Sintok, Malaysia
chet1048@uum.edu.my
Asmar Abd Rahim
School of Law
Universiti Utara Malaysia
Sintok, Malaysia
asmar@uum.edu.my
Abstract— Domestic violence is not an uncommon phenomenon
throughout the world. In Malaysia, domestic violence is
considered one of the most serious social problems. It is reported
that nine percent of women in Malaysia have experience some
form of domestic violence by their intimate partner in their
lifetime. This paper aims to examine the issues and challenges in
combating domestic violence in Malaysia. Apart from the
discussion on the Domestic Violence Act 1994, this paper also
highlights the reports from non –government organizations
which play an active role in assisting the domestic violence
victims. It is submitted that domestic violence remains a problem
in Malaysia. Although many strategies and plans have been
implemented in attempting to combat this social problem, it
remains unresolved. This is due to inefficient implementation of
the law and few significant barriers that women are facing in
seeking protection under the law. Therefore, effective
collaboration between all stakeholders such as police, welfare,
health and judicial services is critical in ensuring the victims get
the assistance needed and more importantly, bring the
perpetrators to justice. Indeed, domestic violence victim’s access
to justice and protection is fundamental in combating the
menace.
Keywords—challenges; domestic violence; issues; law;
Malaysia
I. INTRODUCTION (HEADING 1)
Domestic violence may be defined as a pattern of abusive
behaviour used by one partner to gain or maintain power and
control over another intimate partner which could be physical,
psychological, social and financial in nature. This behaviour
includes destruction of property, threats, harassment and
ridicule. The key element in all of these actions is controlled
through the exercise of force or destructive verbal or
emotional harassment [1].
Domestic violence is a global issue reaching across
national boundaries as well as socio-economic, cultural, racial
and religion differences. It also is considered as a violation of
human rights and an offence under the law. According to
World Health Organization, 35% of women worldwide have
experienced some form of domestic violence by their intimate
partner in their lifetime [2], while in Malaysia a survey
revealed that 9 percent of married women in Malaysia have
experienced the same [3]. According to 2014 survey, 40% of
domestic violence victims experienced domestic violence for
more than five years; 41% of between one and five years and
19% less than one year. This means 81% could be classified as
having faced sustained and prolonged violence at home. The
victims suffered multiple forms of abuse where psychological
abuse remains as the most common form of domestic violence
[4].
As such, it can be said that domestic violence is one of the
most serious social problems in Malaysia and combating the
menace poses significant challenges. This paper mainly relies
on statutes as its primary sources of information. As such, the
relevant provisions of the Domestic Violence Act 1994 will be
analyzed. Apart from the analysis of the law, this paper will
also highlight the issues and challenges faced by the
authorities in the implementation of the law.
II. DOMESTIC VIOLENCE LAW IN MALAYSIA
Malaysia passed the Domestic Violence Act (Act 521)) in
1994 (hereafter referred to as DVA 1994) and it was
implemented two years later. The Act must be read together
with the Penal Code (Act 574) or any other written law
involving offences relating to domestic violence (section 3
DVA 1994).
Generally, the Domestic Violence Act 1994 provides
protection to women and all family members against violence
committed within the domestic sphere. It gives a wide
interpretation of domestic violence which includes attempting
to place fear of physical injury, causing physical injury,
compelling by force or threat to engage in sexual conduct,
confining or detaining the victim against her or his will and
causing mischief or damage to the property of the victim with
intent to cause distress or annoyance to her or him (section 2,
DVA 1994). The victim can seek protection by making a
complaint to the police or welfare officer and criminally
charge the husband, or apply for a protection orders from the
court. Besides these measures, the DVA 1994 also provides
rights for compensation to the victim due to the injury
sustained from the violence and for counselling sessions to
enable reconciliation and rehabilitation in order to facilitate
preservation of the family.
Apart from the remedies available under the DVA 1994,
the victim may also find refuge in several other laws enacted
prior to the said Act. The perpetrator may be charged under
the Penal Code per se for causing personal injury to the wife
under the provisions pertaining to offences against a person
that apply to any person generally.
It must be noted that the DVA 1994 has been amended
several times to further strengthen the law. The latest
amendment was made in 2012.The 2012 amendment expands
the definition of domestic violence to include mental,
emotional, and psychological abuse. The amendment also
expands the application of protection orders beyond the
perpetrator to prevent third parties from physically abusing, or
even communicating with victims of domestic violence and
allows police to arrest a perpetrator when a protective order
has been violated.
The 2012 amendment further elevates the categorization
of domestic violence to a seizable offence (crimes for which
the perpetrator can be arrested without a warrant). Under the
Criminal Procedure Code, the police must first determine the
nature of the offence, i.e. whether it is seizable or non-
seizable. The police are only required to conduct immediate
investigations in cases of seizable offences. Prior to the
amendment, victims of domestic violence would have to file a
private summons in a Magistrate Court themselves to
prosecute the perpetrator as domestic offence is categorized as
non- seizable offence. This rule posed significant problem to
the victims and only very few would go through this process
as it is time-consuming and costly. As such, the amendment is
most welcomed and has solved one of the biggest hurdles
faced by the victims and law enforcement authorities.
The DVA 1994 also provides for interim and long-term
protection orders. The orders aim to protect the victim’s
safety. Interim protection order can be applied by the victim
during the investigation of domestic violence case (section 4
DVA1994). Whilst in the past both interim and long term
protection orders only prohibited the perpetrator from further
domestic violence, the 2012 amendment now allows for a
protection order to constitute an order to maintain a specified
distance from the victim including restraining the perpetrator
from entering a shelter (section 6 DVA 1994). Anyone who
willfully contravenes a protection order by using violence
against a protected person may be punished by imprisonment
of up to one year and a maximum fine of RM4,000 (section
8(2) DVA 1994).
Besides these measures, the DVA 1994 also provides
rights for compensation to the victim due to the injury or
damage to the property sustained from the violence (section 10
DVA 1994). Before allowing the compensation, the court may
consider the following;
a) the pain and injuries of the victim;
b) the cost of medical treatment;
c) any loss of earning;
d) the amount of value of property destroyed or
damaged;
e) any other relevant expenses.
In addition to this, the Court may refer the victims to the
Department of Social Welfare or in the case the victims are
Muslims, the Islamic Religious Affairs Department for
counselling services. It must be noted, apart from the remedies
available under the DVA 1994, the victims may also find
remedies in several other written laws. For example, the
perpetrator may be charged under any offences against a
person under the Penal Code. This may include causing hurt or
grievous hurt, criminal force, assault and even murder.
Although marital rape is not legally recognized in Malaysian
law, victims may invoke section 375A of the Penal Code
which provides an offence for husband causing fear of death
or hurt to his wife in order to have sex. If found guilty, he can
be punished with imprisonment for term which may extend to
five years. This is a really excellent development which
provides more protection against domestic violence victims.
III. ISSUES AND CHALLENGES
It is submitted that domestic violence remains a problem
in Malaysia. Although many strategies and plans have been
implemented in attempting to combat this social problem, it
remains unresolved. This paper highlights two significant
reasons namely the weaknesses of the law and barriers faced
by the victims.
A. Weakness of the Law
While the amendments to the DVA 1994 are welcomed, it
can be said that certain weaknesses of the law still exist.
Firstly, domestic violence is not recognized as a specific
crime, but is defined as consisting of a number of abuses such
as threatening to injure, causing injury, force, detention, etc.,
against a spouse, a former spouse, a child, an incapacitated
adult or other members of the family. In order for the abuse to
be categorized as a crime under the DVA 1994, the victims
have to invoke the current provisions for offences affecting the
human body under the Penal Code. These offences however,
do not reflect the serious, persistent and often repetitive nature
of domestic violence. Therefore, domestic violence must be
addressed as a specific crime punishable by new penalties
under the Penal Code so that it can be read harmoniously with
the DVA 1994. In addition to this, the definition of domestic
violence is still lacking. Stalking and intimidation are common
forms of domestic violence and should be included into the
definition of what constitutes domestic violence in the DVA
1994 [5].
Secondly, the legal enforcement of the DVA 1994 still
focuses more on physical injury rather than non-physical form
of violence. Furthermore, despite the Act includes sexual and
psychological abuse in its definition, the power of arrest by
police officials is still based on any physical injury caused by
the perpetrator. Section 7(1) of the Act states: “Where the
court is satisfied that the person against whom a protection
order or interim protection order is made is likely to cause
actual physical injury to the protected person or persons, the
court may attach a power of arrest to such protection order, as
the case may be.” For this reason, victims who suffer non-
physical form of abuse will face difficulties to prove their case
since only physical evidence is considered by the court.
Thirdly, domestic violence which occurs between non-
married couples or those in a dating relationship is not
recognized by the DVA 1994. This happens since Malaysia
did not recognize any intimate relationship outside the
institution of marriage. Therefore, if there are any domestic
violence cases being reported by non-married couples, they
will be handled under Chapter XV of the Penal Code, for
offences affecting the human body such as criminal force,
assault and causing injury. As a matter of fact, this loophole
should be overcome since in reality there are many unmarried
couples living together in Malaysia and that most people are
involved in a relationship. Women are individuals in their own
right and not merely constituent elements of a family unit.
Indeed, the rights and safety of the woman should prevail over
the sanctity of the family unit [6].
Fourthly, section 11(1) of DVA 1994 need to be
amended. The section empowers the court to make an order to
refer the victim and perpetrator concerned to a conciliatory
body. It can be argued that the court should not be able to
order any form of reconciliation between the parties.
Requiring a victim to attempt to participate in reconciliatory
efforts with a perpetrator places her in danger. The safety of
the victim must always be the priority. In fact, it is an
international best practice to prohibit mediation in domestic
violence cases. The United Nations Expert Group Meeting on
Global Good Practices on Domestic Violence Legislation
recommend that mediation in all cases of violence against
women should be explicitly prohibited both before and during
legal proceedings [7].
Finally, the provision relating to protection order under
the DVA 1994 should be reviewed. Currently, a protection
order can only be obtained when victims lodge a police report
so that the investigation and prosecution can invoked against
the perpetrators. However, it must be said that domestic
violence normally involve a very complex circumstances.
There are cases where the victims do not wish their abusive
partners to be prosecuted for certain reasons. In this scenario,
the protection order cannot be issued against the victims and
therefore may jeopardize their safety. For this reason, it is
critical to provide a specific remedy for this kind of victims so
that their abusive partners can be prohibited from committing
further violence on the victims.
These weaknesses of the law need to be addressed
seriously by the law enforcement agencies so that the victims
are well protected under the law and the perpetrators will be
successfully prosecuted and thereby reduce the problems of
domestic violence in Malaysia.
B. Barriers Faced by the Women
Apart from weaknesses of the law, combating domestic
violence in Malaysia poses significant challenges due to some
barriers facing by women in bringing their abuse partners to
justice. The main barrier strongly related to the victim’s
cultural values and beliefs. These beliefs have affected their
decision to hide their abuse from others. At the same time, the
feelings of shame and self-blame combined with financial
dependency on the abuser make the problem worse [8].
Normally, the victims were convinced that their husband
will change his behavior in time if he is given opportunity and
time. Not only that, the religious understanding of the victims
influenced help-seeking behaviors. For example, Muslim
women talked about submission to fate while Buddhists
mentioned about karma. These belief have led them to their
acceptance of abuse. A Muslim victim was threatened to be
nusyuz by her husband and his family [9]. Therefore, her fear
had stopped her from making any effort to ask for help.
Another barrier is the perception that domestic violence is
a marital problem that needs to be solved between the couple
and is best to overcome without involving third parties.
Marriage-the notion that husband and wife were one and that
one was the husband-made domestic violence permissible and
acceptable [10]. Indeed, this perception should be avoided as
domestic violence may results in numerous social ills. Apart
from the wives, children can be victims directly and indirectly
of the violence occurring between their parents. The effects on
children of witnessing and experiencing violence within the
family are physically, psychologically, emotionally and
cognitively damaging [11].
In the meantime, lack of knowledge about the victim’s
rights under the law can be another significant barrier. To
make matters worse, court proceeding which are too formal
and costly hinder the victims to bring their case to the court of
law [12]. It was suggested that the introduction of Family
Court can overcome this problem. The Family Court could be
structured in accordance with the juvenile court model, where
there is almost a complete absence of adversary procedure.
Domestic disputes should be resolved in accordance to more
helpful, non- competitive and therapeutic concept that
motivated the involvement of the victims [13]. It is proved that
the establishment of family court can resolve domestic
violence cases more efficiently [14]. It is in line with the
current trend towards a comprehensive approach which
change the way the criminal justice system approaches against
domestic violence cases [15]. Usually, the cases resolved
through mediation and counseling methods [16].
The following table illustrates the scenario of domestic
violence cases in Malaysia.
TABLE 1: Statistics of Domestic Violence Cases
(Reported/ Charged/ Convicted) from 2013 to 2015
Year
2013
2014
2015
Total
Total Reports
Lodged
4123
4807
5014
13944
Charged
1746
1462
1404
4612
Percentage of
Total Cases
Charged
42%
30%
28%
33%
Convicted
155
358
145
658
Percentage of
Total Cases
Convicted
9%
24%
10%
14%
(Women’s Aid Organization, 2015)
Between the years of 2013 to 2015, a total number of
13944 domestic violence cases were reported. The total of
which 4612 (33%) were charged in court. Out of these, only
658 (14%) resulted in conviction. This shows the total number
of domestic violence cases reported increased tremendously. It
may be presumed that women are more aware of their rights
under the law. Although the number of the reports increased,
the charge involved the perpetrators still not satisfying. This is
due to some underlying reasons such as lack of evidence and
failure of the women to proceed with the prosecution of their
husband. Furthermore, the statistic reveals that the total
number of conviction is far less than the number of
prosecution. This phenomenon may downfall the purpose of
the law when the intended protection against domestic
violence to the women cannot be materialized.
IV. CONCLUSION
It is submitted that combating domestic violence in
Malaysia poses significant challenges mainly due to the
inefficient implementation of the laws and barriers faced by
the women. Furthermore, the influence of many factors such
as the patriarchal society, religious matters and the cultural
dimension need to be considered while dealing with this
problem. As such, effective collaboration between all
stakeholders such as police, welfare, health and judicial
services is critical in ensuring the victims get the assistance
needed and more importantly, bring the perpetrators to justice.
Indeed, domestic violence victim’s access to justice and
protection is fundamental in combating the menace.
Acknowledgment (HEADING 5)
This paper is based on the findings of the research project
under the Fundamental Research Grant Research (FRGS),
Ministry of Higher Education of Malaysia.
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