Legal Reform And Administrative Detention Powers In China (cambridge Studies In Law And Society)

Using a new conceptual framework, the author examines the processes of legal reform in post-socialist countries such as China. Drawing on Bourdieu's concept of the 'field', the increasingly complex and contested processes of legal reform are analysed in relation to police powers. The impact of China's post-1978 legal reforms on police powers is examined through a detailed analysis of three administrative detention powers: detention for education of prostitutes; coercive drug rehabilitation; and re-education through labour. The debate surrounding the abolition in 1996 of detention for investigation (also known as shelter and investigation) is also considered. Despite over 20 years of legal reform, police powers remain poorly defined by law and subject to minimal legal constraint. They continue to be seriously and systematically abused. However, there has been both systematic and occasionally dramatic reform of these powers. This book considers the processes which have made these legal changes possible. ISBN-13: 9780521869409 HALF-TITLE 3 SERIES-TITLE 4 TITLE 7 COPYRIGHT 8 DEDICATION 9 CONTENTS 11 PREFACE 15 ABBREVIATIONS 18 PART ONE INTRODUCTION AND CONCEPTUAL FRAMEWORK 21 CHAPTER ONE THE PROBLEMS OF LEGAL REFORM OF POLICE ADMINISTRATIVE DETENTION POWERS 23 1 INTRODUCTION 23 2 THE ADMINISTRATIVE DETENTION POWERS 25 2.1 Introduction 25 2.2 Recent history 27 2.3 Legal characterisation 28 3 LEGAL REFORM OF ADMINISTRATIVE DETENTION POWERS: THE DEMISE OF DETENTION FOR INVESTIGATION AND THE ISSUES IN THIS BOOK 30 4 QUESTIONS AND HYPOTHESIS 32 5 CONCEPTUAL FRAMEWORK: LEGAL REFORM AND INSTITUTION BUILDING AS A CONTESTED PROCESS 38 6 ORGANISATION OF THIS BOOK 40 CHAPTER TWO THE LEGAL FIELD AND THE PROCESS OF LEGAL REFORM SINCE 1978 46 1 INTRODUCTION 46 2 LEGAL REFORM AND INSTITUTION BUILDING AS A CONTESTED PROCESS: THE LEGAL FIELD 47 2.1 The concept of the legal field 47 2.2 The boundaries of the field 50 2.3 Relative autonomy of the legal field 52 2.4 Legal production and legitimation 55 2.5 Bourdieu’s uses of Weber’s view of legal domination and legitimation 56 3 ADAPTING THE CONCEPT OF THE LEGAL FIELD TO THE CHINESE CONTEXT 60 3.1 The emergence of the legal field 60 4 THE CHANGING NATURE OF LEGAL INSTRUMENTALISM: PLURALISATION FROM WITHIN 63 4.1 Revolutionary and bureaucratic justice between 1949 and 1979 64 4.2 Socialist legality 65 4.3 The changing nature of legal instrumentalism in the period of economic reform 66 4.4 Ruling the country according to law and pluralisation from within 71 5 ACTORS 75 6 CONCLUSION: THE LEGAL FIELD AND THE PROBLEM OF ADMINISTRATIVE DETENTION 77 PART TWO SOCIAL ORDER AND ADMINISTRATIVE DETENTION 79 CHAPTER THREE HISTORICAL ANTECEDENTS: THE 1950S AND ADMINISTRATIVE DETENTION 81 1 INTRODUCTION 81 2 DEVELOPING APPROACHES TO DEALING WITH SOCIAL DISORDER AND THE POLITICALLY SUSPECT 82 2.1 Registration and control of the politically suspect and the Campaign to Suppress Counter-revolutionaries 83 2.2 Conceptual structure: antagonistic and non-antagonistic contradictions 88 3 STRATEGIES TO ELIMINATE PROSTITUTION IN THE 1950S 90 3.1 Banning prostitution 90 3.2 Detaining prostitutes 94 4 STRATEGIES TO ELIMINATE DRUG ADDICTION IN THE 1950S 96 5 DEVELOPMENT OF RE-EDUCATION THROUGH LABOUR IN THE 1950S AND 1960S 101 5.1 Initial development of the power 101 5.2 The legislative basis for RETL and expansion from 1957 105 5.3 Controlling the scope of RETL from 1961 107 6 REGISTRATION AND DETENTION: MANAGING THE FLOATING POPULATION 110 7 CONCLUSION 112 CHAPTER FOUR SOCIAL ORDER, THE ‘HARD STRIKE’ AND ADMINISTRATIVE DETENTION POWERS 114 1 INTRODUCTION 114 2 THE CONTEMPORARY PROBLEM OF SOCIAL ORDER AND CRIME 116 2.1 Characterisation of crime 116 2.2 Social disorder 117 2.3 Contemporary problems of crime 118 3 THE CONTEMPORARY SOCIAL ORDER POLICY CONTEXT OF ADMINISTRATIVE DETENTION: THE COMPREHENSIVE MANAGEMENT OF PUBLIC ORDER (‘CMPO’) 123 3.1 Introduction 123 4 SOCIAL ORDER AND THE CONSTRUCTION OF A SOCIALIST SPIRITUAL CIVILISATION 125 5 THE CMPO 127 6 STRENGTHENING LEADERSHIP OVER THE CMPO 129 7 POLICE SOCIAL ORDER POWERS 129 7.1 The first line of defence: regulation and education 129 (i) The mass-line of policing and community organisations 130 (ii) Registration of designated groups and locations 136 (iii) Education, rescue and reform 138 7.2 Police administrative powers: the second line of defence 140 8 PUNISHMENT OF CRIME: THE HARD STRIKE 143 8.1 The Hard Strike as a method for dealing with antagonistic contradictions 144 8.2 Background to the 1983 Hard Strike 145 8.3 The 1983 Hard Strike 147 8.4 Subsequent Hard Strikes 152 8.5 Specialist struggles and concerted actions 155 8.6 The ‘Six Evils' 156 9 EXPANSION OF ADMINISTRATIVE DETENTION DURING HARD STRIKES AND OTHER SPECIALIST STRUGGLES 159 10 CONTESTS OVER DEFINING THE IDEOLOGICAL NATURE OF AND PRACTICAL STRATEGIES FOR PUNISHMENT OF CRIME 161 10.1 Debates about the continuing emphasis on the ‘Hard Strike’ 161 10.2 Class struggle, the theory of contradictions and the coercive power of the state 163 10.3 Is the Hard Strike antithetical to legal norms? 165 11 Conclusion 169 CHAPTER FIVE REVIVAL OF ADMINISTRATIVE DETENTION IN THE REFORM ERA: PROSTITUTES AND DRUG ADDICTS 172 1 INTRODUCTION 172 2 PROSTITUTION 173 2.1 Re-emergence of prostitution in the 1970s: characterisation of the problem 173 2.2 Measures used to eradicate prostitution 176 2.3 Revival of specialist prostitute detention centres: detention for education (shourong jiaoyu...) 178 2.4 Specialist struggles against prostitution and the expansion of detention for education from 1986 180 2.5 The concerted action against the ‘Yellow Evils’ and the ‘Six Evils’ 1989–1990 182 2.6 Hard strikes and concerted actions after 1990 183 2.7 Regulation of detention for education 185 (i) Decision on Strictly Prohibiting Prostitution and Using Prostitutes 1991 185 (ii) Targets 187 (iii) Time limits 190 (iv) Procedures 191 2.8 Legal elasticity: the effect of concerted actions on definition and uses of detention for education 193 3 DRUG ADDICTION 197 3.1 Re-emergence of drug addiction and measures used to address the problem 197 3.2 Reinvigoration of coercive drug rehabilitation 201 3.3 Regulation of coercive drug rehabilitation 205 (i) Targets 206 (ii) Time limits 207 (iii) Procedures 207 3.4 Management of detention centres and revenue raising 208 4 CONCLUSION 211 CHAPTER SIX RE-EDUCATION THROUGH LABOUR 213 1 INTRODUCTION 213 2 REINVIGORATION OF RETL AFTER 1979 214 2.1 Targets 215 (i) Expanding the scope of targets from 1980 216 (ii) Minor offences not sufficiently serious for criminal sanction 218 (iii) RETL as targeting social evils 221 (iv) Expanding the geographical limits on targets 223 (v) The use of RETL for investigation 224 (vii) Age limits 226 2.2 Recent consolidation of targets 227 2.3 ‘Hard Strike’ and specialist struggles 228 2.4 Procedures for sending a person to RETL 230 (i) The changing examination and approval procedures: community participation and the RETL Management Committee 230 (ii) Procedures for examination and approval by the public security organs 231 (iii) Problems with the approval process 234 (iv) Recent reforms to regularise procedures for examination and approval of RETL 235 2.5 Limitation and time limits 237 3 CONCLUSION 238 PART THREE LEGAL REFORM AND ITS IMPACT ON ADMINISTRATIVE DETENTION 241 CHAPTER SEVEN BUILDING A LEGAL ENVIRONMENT FOR POLICE DETENTION 243 1 INTRODUCTION 243 2 THE POLITICAL BOUNDARIES OF POLICE REFORM: PARTY LEADERSHIP OVER THE POLICE AND ENFORCEMENT POLICY 245 3 REBUILDING THE PUBLIC SECURITY ORGANS 247 3.1 Reform of the police since 1979 247 3.2 People’s Police Law 1995 (‘PPL’) 248 4 LIMITATIONS ON INSTITUTIONAL AUTONOMY: PARTY LEADERSHIP AND LOCAL CONTROL OVER POLICE FINANCES 250 4.1 Party leadership over public security organs and enforcement policy 251 4.2 Party organisational leadership over law enforcement: the Political-Legal Committee and the Comprehensive Management of Public Order Committee 252 4.3 Party organisational leadership over public security organs 255 4.4 Party ideological leadership and professional ethos 256 4.5 The contest for control between the MPS and local Party committees and governments 258 4.6 Individual interference in police work 259 5 AFFIRMING LAW AS THE BASIS FOR GOVERNANCE 260 5.1 Administration according to law 260 5.2 Competing interpretations of administration according to law 263 6 LEGISLATING POWERS 268 6.1 Building a basis of laws and rules 268 6.2 Redefining law and its values 270 (i) Efforts by the NPC to increase control over legislation 270 (ii) Constraining the scope of MPS rule-making power 271 (iii) Regularising rule-making 273 (iv) Strengthening supervision over rule-making 275 7 GIVING ADMINISTRATIVE DETENTION POWERS A LEGAL BASIS 276 7.1 The beginning: the Security Administrative Punishment Regulations (‘SAPR’), Re-education through Labour (‘RETL’) and the Criminal Procedure Law (‘CPL’) 276 7.2 The Administrative Litigation Law 277 (i) Detention for education 278 (ii) Coercive drug rehabilitation 279 (iii) RETL 280 7.3 The Administrative Punishments Law (‘APL’) 280 7.4 The Legislation Law 284 7.5 Are administrative detention powers lawful? 285 7.6 Are administrative detention powers constitutional? 286 8 PROCEDURAL REQUIREMENTS IN EXERCISING ADMINISTRATIVE POWERS 287 8.1 The growing importance of procedural regularity 287 8.2 The strengthening of procedural regulations for administrative detention 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 289 9 CONCLUSION 291 CHAPTER EIGHT SUPERVISION OF POLICE CONDUCT: LEGALISATION AND CONTEST 295 1 INTRODUCTION 295 2 STRENGTHENING SUPERVISION AS A KEY COMPONENT OF ADMINISTRATION ACCORDING TO LAW 297 3 THE MPS AND DEPARTMENTS 300 3.1 Strengthening internal supervision as a way of controlling local abuses 300 3.2 The Public Security Supervision Committee 302 3.3 The Legal Division 304 4 SUPERVISION BY THE DISCIPLINE INSPECTION COMMITTEE AND THE MINISTRY OF SUPERVISION 306 5 THE NPC AND LOCAL PEOPLE’S CONGRESSES 307 6 SUPERVISION INITIATED BY CITIZEN COMPLAINT 310 6.1 Letters and visits 310 6.2 Expanding and regularising systems for external scrutiny of police decision-making 311 6.3 Questioning the complementary nature of review and litigation 314 (i) Scope of litigation and accepting a case 315 (ii) Lawfulness of a specific administrative act 317 (iii) Parties to litigation: the applicant 318 (iv) Parties to litigation: the respondent 323 (v) The role of lawyers 323 (vi) Jurisdiction 325 (vii) Procedural issues 326 (viii) Withdrawal of applications 328 (ix) Decisions 332 (x) Social order policy, Party leadership and independence in adjudication 334 6.4 Administrative litigation 315 6.5 Administrative review 338 (i) Scope of review 340 (ii) Lawfulness and appropriateness of the specific administrative act 341 (iii) Procedures 342 (iv) Jurisdiction of review organs 344 (v) Decisions 345 6.6 Compensation 345 6.7 Citizen empowerment, disillusionment and public order issues 346 7 CONCLUSION 347 CHAPTER NINE LEGAL REFORM CATCHES UP WITH ADMINISTRATIVE DETENTION 351 1 INTRODUCTION 351 2 LEGAL REFORM OF ADMINISTRATIVE DETENTION POWERS: THE DEMISE OF DETENTION FOR INVESTIGATION 352 2.1 The problems with detention for investigation 352 2.2 Finding a legal basis for detention for investigation 354 2.3 Debates about reform or abolition of detention for investigation 355 2.4 Incorporation of detention for investigation into the amended CPL and ongoing interpretations 358 3 LAW AS THE FORUM FOR DEBATES ABOUT ADMINISTRATIVE COERCIVE POWERS 360 4 THE DEBATE ABOUT RETL 361 4.1 Proposals for reform of RETL 362 4.2 Legislation: RETL law 363 5 CREATING A NEW CATEGORY OF PUBLIC ORDER PUNISHMENT: THE SECURITY DEFENCE PUNISHMENT 365 6 ONGOING ADMINISTRATIVE LEGISLATIVE REFORM 368 7 CONCLUSION 370 PART FOUR ANALYSIS AND CONCLUSION 371 CONCLUSION: THE FIELD OF LAW, THE FORCE OF LAW AND THE POWERS THAT BE 373 1 INTRODUCTION 373 2 WHAT ARE THE CONTINUITIES AND DISCONTINUITIES BETWEEN ADMINISTRATIVE DETENTION IN THE REFORM AND PRE-REFORM ERA? 373 2.1 Administrative detention viewed in the context of social order policy: repetition with a difference 374 2.2 Administrative detention and continuities in the institutional mechanisms for policy and rule formation 376 2.3 Significance of repetition with a difference for the possibilities for legal change 377 3 TO WHAT EXTENT DOES LAW STRUCTURE POLICE POWERS RELATING TO ADMINISTRATIVE DETENTION? 378 3.1 Legalisation of administrative detention powers 378 3.2 Legalisation of the environment in which administrative detention powers are defined, enforced and supervised 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? 382 4.1 The emergence of a legal field 383 4.2 The boundaries of the field 384 4.3 Actors: the growing competition over the establishment of legal norms 385 4.4 The growing force of law 386 4.5 Limits to the force of law: the problem of law enforcement 387 4.6 Structure and change: the functioning of the field 388 5 CONCLUSION 391 APPENDIX ONE INDEX OF LEGISLATION, ADMINISTRATIVE REGULATIONS, RULES, NORMATIVE DOCUMENTS, PARTY DOCUMENTS, SPEECHES AND CASES 394 LEGISLATION 394 JUDICIAL INTERPRETATIONS 400 ADMINISTRATIVE REGULATIONS 402 ADMINISTRATIVE RULES ISSUED BY CENTRAL MINISTRIES, COMMISSIONS AND OTHER AGENCIES 406 PROVINCIAL REGULATIONS AND RULES 428 DOCUMENTS ISSUED BY THE CHINESE COMMUNIST PARTY (‘CCP’) AND ORGANS OF THE CCP 429 DOCUMENTS ISSUED JOINTLY BY STATE AND PARTY ORGANS 437 SPEECHES, REPORTS AND CASES 439 BIBLIOGRAPHY 444 INDEX 497 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 Using a conceptual framework, this 2007 book examines the processes of legal reform in post-socialist countries such as China. Drawing on Bourdieu's concept of the 'field', the increasingly complex and contested processes of legal reform are analysed in relation to police powers. The impact of China's post-1978 legal reforms on police powers is examined through a detailed analysis of three administrative detention powers: detention for education of prostitutes; coercive drug rehabilitation; and re-education through labour. The debate surrounding the abolition in 1996 of detention for investigation (also known as shelter and investigation) is also considered. Despite over 20 years of legal reform, police powers remain poorly defined by law and subject to minimal legal constraint. They continue to be seriously and systematically abused. However, there has been both systematic and occasionally dramatic reform of these powers. This book considers the processes which have made these legal changes possible.