Legal reform and administrative detention powers in China

HALF-TITLE......Page 3
SERIES-TITLE......Page 4
TITLE......Page 7
COPYRIGHT......Page 8
DEDICATION......Page 9
CONTENTS......Page 11
PREFACE......Page 15
ABBREVIATIONS......Page 18
PART ONE INTRODUCTION AND CONCEPTUAL FRAMEWORK......Page 21
1 INTRODUCTION......Page 23
2.1 Introduction......Page 25
2.2 Recent history......Page 27
2.3 Legal characterisation......Page 28
3 LEGAL REFORM OF ADMINISTRATIVE DETENTION POWERS: THE DEMISE OF DETENTION FOR INVESTIGATION AND THE ISSUES IN THIS BOOK......Page 30
4 QUESTIONS AND HYPOTHESIS......Page 32
5 CONCEPTUAL FRAMEWORK: LEGAL REFORM
AND INSTITUTION BUILDING AS A
CONTESTED PROCESS......Page 38
6 ORGANISATION OF THIS BOOK......Page 40
1 INTRODUCTION......Page 46
2.1 The concept of the legal field......Page 47
2.2 The boundaries of the field......Page 50
2.3 Relative autonomy of the legal field......Page 52
2.4 Legal production and legitimation......Page 55
2.5 Bourdieu’s uses of Weber’s view of legal domination and legitimation......Page 56
3.1 The emergence of the legal field......Page 60
4 THE CHANGING NATURE OF LEGAL
INSTRUMENTALISM: PLURALISATION
FROM WITHIN......Page 63
4.1 Revolutionary and bureaucratic justice between 1949 and 1979......Page 64
4.2 Socialist legality......Page 65
4.3 The changing nature of legal instrumentalism in the period of economic reform......Page 66
4.4 Ruling the country according to law and pluralisation from within......Page 71
5 ACTORS......Page 75
6 CONCLUSION: THE LEGAL FIELD AND THE PROBLEM OF ADMINISTRATIVE DETENTION......Page 77
PART TWO SOCIAL ORDER AND ADMINISTRATIVE DETENTION......Page 79
1 INTRODUCTION......Page 81
2 DEVELOPING APPROACHES TO DEALING WITH SOCIAL DISORDER AND THE POLITICALLY SUSPECT......Page 82
2.1 Registration and control of the politically suspect and the Campaign to Suppress Counter-revolutionaries......Page 83
2.2 Conceptual structure: antagonistic and
non-antagonistic contradictions......Page 88
3.1 Banning prostitution......Page 90
3.2 Detaining prostitutes......Page 94
4 STRATEGIES TO ELIMINATE DRUG ADDICTION
IN THE 1950S......Page 96
5.1 Initial development of the power......Page 101
5.2 The legislative basis for RETL and expansion from 1957......Page 105
5.3 Controlling the scope of RETL from 1961......Page 107
6 REGISTRATION AND DETENTION: MANAGING
THE FLOATING POPULATION......Page 110
7 CONCLUSION......Page 112
1 INTRODUCTION......Page 114
2.1 Characterisation of crime......Page 116
2.2 Social disorder......Page 117
2.3 Contemporary problems of crime......Page 118
3.1 Introduction......Page 123
4 SOCIAL ORDER AND THE CONSTRUCTION OF A
SOCIALIST SPIRITUAL CIVILISATION......Page 125
5 THE CMPO......Page 127
7.1 The first line of defence: regulation and education......Page 129
(i) The mass-line of policing and community organisations......Page 130
(ii) Registration of designated groups and locations......Page 136
(iii) Education, rescue and reform......Page 138
7.2 Police administrative powers: the second line of defence......Page 140
8 PUNISHMENT OF CRIME: THE HARD STRIKE......Page 143
8.1 The Hard Strike as a method for dealing with antagonistic
contradictions......Page 144
8.2 Background to the 1983 Hard Strike......Page 145
8.3 The 1983 Hard Strike......Page 147
8.4 Subsequent Hard Strikes......Page 152
8.5 Specialist struggles and concerted actions......Page 155
8.6 The ‘Six Evils'......Page 156
9 EXPANSION OF ADMINISTRATIVE DETENTION
DURING HARD STRIKES AND OTHER SPECIALIST
STRUGGLES......Page 159
10.1 Debates about the continuing emphasis on the ‘Hard Strike’......Page 161
10.2 Class struggle, the theory of contradictions and the coercive
power of the state......Page 163
10.3 Is the Hard Strike antithetical to legal norms?......Page 165
11 Conclusion......Page 169
1 INTRODUCTION......Page 172
2.1 Re-emergence of prostitution in the 1970s: characterisation
of the problem......Page 173
2.2 Measures used to eradicate prostitution......Page 176
2.3 Revival of specialist prostitute detention centres: detention for education (shourong jiaoyu…)......Page 178
2.4 Specialist struggles against prostitution and the expansion of detention for education from 1986......Page 180
2.5 The concerted action against the ‘Yellow Evils’ and the ‘Six Evils’ 1989–1990......Page 182
2.6 Hard strikes and concerted actions after 1990......Page 183
(i) Decision on Strictly Prohibiting Prostitution and Using Prostitutes 1991......Page 185
(ii) Targets......Page 187
(iii) Time limits......Page 190
(iv) Procedures......Page 191
2.8 Legal elasticity: the effect of concerted actions on definition
and uses of detention for education......Page 193
3.1 Re-emergence of drug addiction and measures used to address
the problem......Page 197
3.2 Reinvigoration of coercive drug rehabilitation......Page 201
3.3 Regulation of coercive drug rehabilitation......Page 205
(i) Targets......Page 206
(iii) Procedures......Page 207
3.4 Management of detention centres and revenue raising......Page 208
4 CONCLUSION......Page 211
1 INTRODUCTION......Page 213
2 REINVIGORATION OF RETL AFTER 1979......Page 214
2.1 Targets......Page 215
(i) Expanding the scope of targets from 1980......Page 216
(ii) Minor offences not sufficiently serious for criminal sanction......Page 218
(iii) RETL as targeting social evils......Page 221
(iv) Expanding the geographical limits on targets......Page 223
(v) The use of RETL for investigation......Page 224
(vii) Age limits......Page 226
2.2 Recent consolidation of targets......Page 227
2.3 ‘Hard Strike’ and specialist struggles......Page 228
(i) The changing examination and approval procedures: community participation and the RETL Management Committee......Page 230
(ii) Procedures for examination and approval by the public security organs......Page 231
(iii) Problems with the approval process......Page 234
(iv) Recent reforms to regularise procedures for examination and approval of RETL......Page 235
2.5 Limitation and time limits......Page 237
3 CONCLUSION......Page 238
PART THREE LEGAL REFORM AND ITS IMPACT ON ADMINISTRATIVE DETENTION......Page 241
1 INTRODUCTION......Page 243
2 THE POLITICAL BOUNDARIES OF POLICE REFORM:
PARTY LEADERSHIP OVER THE POLICE AND
ENFORCEMENT POLICY......Page 245
3.1 Reform of the police since 1979......Page 247
3.2 People’s Police Law 1995 (‘PPL’)......Page 248
4 LIMITATIONS ON INSTITUTIONAL AUTONOMY:
PARTY LEADERSHIP AND LOCAL CONTROL OVER
POLICE FINANCES......Page 250
4.1 Party leadership over public security organs and enforcement policy......Page 251
4.2 Party organisational leadership over law enforcement: the Political-Legal Committee and the Comprehensive Management of Public Order Committee......Page 252
4.3 Party organisational leadership over public security organs......Page 255
4.4 Party ideological leadership and professional ethos......Page 256
4.5 The contest for control between the MPS and local Party committees and governments......Page 258
4.6 Individual interference in police work......Page 259
5.1 Administration according to law......Page 260
5.2 Competing interpretations of administration according to law......Page 263
6.1 Building a basis of laws and rules......Page 268
(i) Efforts by the NPC to increase control over legislation......Page 270
(ii) Constraining the scope of MPS rule-making power......Page 271
(iii) Regularising rule-making......Page 273
(iv) Strengthening supervision over rule-making......Page 275
7.1 The beginning: the Security Administrative Punishment Regulations (‘SAPR’), Re-education through Labour (‘RETL’) and the Criminal Procedure Law (‘CPL’)......Page 276
7.2 The Administrative Litigation Law......Page 277
(i) Detention for education......Page 278
(ii) Coercive drug rehabilitation......Page 279
7.3 The Administrative Punishments Law (‘APL’)......Page 280
7.4 The Legislation Law......Page 284
7.5 Are administrative detention powers lawful?......Page 285
7.6 Are administrative detention powers constitutional?......Page 286
8.1 The growing importance of procedural regularity......Page 287
8.2 The strengthening of procedural regulations for administrative detention......Page 288
8.3 The next step: APL, the Regulations on the Procedures for Handling Administrative Cases by Public Security  Organs, 1 January 2004, and the SAPL......Page 289
9 CONCLUSION......Page 291
1 INTRODUCTION......Page 295
2 STRENGTHENING SUPERVISION AS A KEY
COMPONENT OF ADMINISTRATION
ACCORDING TO LAW......Page 297
3.1 Strengthening internal supervision as a way of controlling local abuses......Page 300
3.2 The Public Security Supervision Committee......Page 302
3.3 The Legal Division......Page 304
4 SUPERVISION BY THE DISCIPLINE INSPECTION
COMMITTEE AND THE MINISTRY OF SUPERVISION......Page 306
5 THE NPC AND LOCAL PEOPLE’S CONGRESSES......Page 307
6.1 Letters and visits......Page 310
6.2 Expanding and regularising systems for external scrutiny of
police decision-making......Page 311
6.3 Questioning the complementary nature of review and litigation......Page 314
6.4 Administrative litigation......Page 315
(ii) Lawfulness of a specific administrative act......Page 317
(iii) Parties to litigation: the applicant......Page 318
(v) The role of lawyers......Page 323
(vi) Jurisdiction......Page 325
(vii) Procedural issues......Page 326
(viii) Withdrawal of applications......Page 328
(ix) Decisions......Page 332
(x) Social order policy, Party leadership and independence in adjudication......Page 334
6.5 Administrative review......Page 338
(i) Scope of review......Page 340
(ii) Lawfulness and appropriateness of the specific administrative act......Page 341
(iii) Procedures......Page 342
(iv) Jurisdiction of review organs......Page 344
6.6 Compensation......Page 345
6.7 Citizen empowerment, disillusionment and public order issues......Page 346
7 CONCLUSION......Page 347
1 INTRODUCTION......Page 351
2.1 The problems with detention for investigation......Page 352
2.2 Finding a legal basis for detention for investigation......Page 354
2.3 Debates about reform or abolition of detention for investigation......Page 355
2.4 Incorporation of detention for investigation into the amended CPL and ongoing interpretations......Page 358
3 LAW AS THE FORUM FOR DEBATES ABOUT
ADMINISTRATIVE COERCIVE POWERS......Page 360
4 THE DEBATE ABOUT RETL......Page 361
4.1 Proposals for reform of RETL......Page 362
4.2 Legislation: RETL law......Page 363
5 CREATING A NEW CATEGORY OF PUBLIC ORDER
PUNISHMENT: THE SECURITY DEFENCE
PUNISHMENT......Page 365
6 ONGOING ADMINISTRATIVE
LEGISLATIVE REFORM......Page 368
7 CONCLUSION......Page 370
PART FOUR ANALYSIS AND CONCLUSION......Page 371
2 WHAT ARE THE CONTINUITIES AND DISCONTINUITIES BETWEEN ADMINISTRATIVE DETENTION IN THE REFORM AND PRE-REFORM ERA?......Page 373
2.1 Administrative detention viewed in the context of social order policy: repetition with a difference......Page 374
2.2 Administrative detention and continuities in the institutional mechanisms for policy and rule formation......Page 376
2.3 Significance of repetition with a difference for the possibilities for legal change......Page 377
3.1 Legalisation of administrative detention powers......Page 378
3.2 Legalisation of the environment in which administrative detention powers are defined, enforced and supervised......Page 380
4 HOW DOES THE USE OF THE LEGAL FIELD AS AN ANALYTICAL CONSTRUCT ILLUMINATE OUR UNDERSTANDING OF THE PROCESSES OF LEGAL CHANGE OF POLICE ADMINISTRATIVE DETENTION POWERS?......Page 382
4.1 The emergence of a legal field......Page 383
4.2 The boundaries of the field......Page 384
4.3 Actors: the growing competition over the establishment of legal norms......Page 385
4.4 The growing force of law......Page 386
4.5 Limits to the force of law: the problem of law enforcement......Page 387
4.6 Structure and change: the functioning of the field......Page 388
5 CONCLUSION......Page 391
LEGISLATION......Page 394
JUDICIAL INTERPRETATIONS......Page 400
ADMINISTRATIVE REGULATIONS......Page 402
ADMINISTRATIVE RULES ISSUED BY CENTRAL MINISTRIES, COMMISSIONS AND OTHER AGENCIES......Page 406
PROVINCIAL REGULATIONS AND RULES......Page 428
DOCUMENTS ISSUED BY THE CHINESE COMMUNIST PARTY (‘CCP’) AND ORGANS OF THE CCP......Page 429
DOCUMENTS ISSUED JOINTLY BY STATE AND PARTY ORGANS......Page 437
SPEECHES, REPORTS AND CASES......Page 439
BIBLIOGRAPHY......Page 444
INDEX......Page 497