Covering China’s National People’s Congress and its Standing Committee
Category: Recording & Review
“Recording & Review” is a series that focuses on the NPC Standing Committee’s eponymous oversight process, whereby its Legislative Affairs Commission reviews the validity of various types of normative documents, including local regulations and judicial interpretations.
China’s former one-child policy was “one of the most draconian examples of government social engineering ever seen.” The policy was formally launched nationwide in 1980. In just a few years, however, central authorities decided to “open small holes” by allowing more couples to have a second child, after encountering difficulties in enforcing a uniform birth-control policy nationwide and a backlash against abusive enforcement measures, such as forced sterilizations.
The provinces were tasked with implementing that partial relaxation of the one-child policy. All provincial legislatures (except those of Xinjiang and Tibet) had adopted provincial birth-control legislation by the early 1990s. (Xinjiang eventually did so in 2002; Tibet still has not acted.) Such legislation translates the policy into concrete terms, specifying, among other things, exceptions to the one-child-per-couple rule and the penalties for above-quota births. Couples who exceed birth limits would face not only hefty fines called “social upbringing fees” [社会抚养费], but also discipline at work—including mandatory termination in a number of provinces.
On December 15, 2005, a loaded truck rolled over on a mountain road in Chongqing, crushing a trishaw carrying He Yuan and her two friends to school. All three perished in the accident. What thrust this tragedy into the national spotlight, however, was the drastically different amounts of compensation their families received. The trucker’s employer settled with the families of Yuan’s friends for over 200,000 RMB each, but was willing to pay hers only 80,000 RMB—because she, unlike her classmates, had a rural hukou (or household registration). The company cited a 2003 Supreme People’s Court (SPC) interpretation on the application of law in personal injury cases (2003 Interpretation), which created two separate standards for compensating the deaths of urban and rural residents.
As a result of this effectively hukou-based rule, countless victims’ families have found themselves in the same position as Yuan’s. The Chinese public has dubbed this phenomenon “same life, different values” [同命不同价] and has persistently criticized the 2003 Interpretation. Some citizens have requested that the NPC Standing Committee (NPCSC) conduct a constitutional review of the Interpretation.
It was not until 2020 that the NPCSC’s Legislative Affairs Commission publicly addressed these requests in its annual report on “recording and review” (R&R) [备案审查]. This report’s timing and content are significant. Below, we will first take a closer look at the 2003 Interpretation and the controversy surrounding hukou-based compensation standards, before returning to the Commission’s report.
On Wednesday, January 20, the NPC Standing Committee (NPCSC) heard its Legislative Affairs Commission’s annual report on its efforts in 2020 to record and review the validity of various types of sub-statutory documents, including local regulations and judicial interpretations. In sum, a document will fail review if the Commission deems it (1) unconstitutional; (2) contrary to the Communist Party’s major policies; (3) unlawful; or (4) otherwise “clearly inappropriate.” The Commission will then ask the document’s enacting body to amend or repeal it. This year’s report is particularly notable in that it devotes a full section to discussing how the Commission “proactively and prudently” dealt with constitutional issues in the recording-and-review process. This section mentions three cases, and below, we will focus on one of them, which concerns the language of instruction used by China’s ethnic schools.
In early 2018, we first gave a detailed introduction to “recording and review” (R&R) [备案审查], an increasingly notable aspect of the oversight by the NPC Standing Committee (NPCSC). For our purposes here, and generally speaking, R&R is a process whereby various governmental bodies with lawmaking authority record their enactments with the NPCSC, which may then review the recorded legislation on certain grounds and order corrective actions if the legislation does not pass muster. R&R has led to some positive developments in Chinese law since our initial introduction. A few months ago, for instance, it led to the NPCSC’s abolition of “custody and education” [收容教育]—a decades-old extrajudicial detention system targeting prostitution.
The biggest update to the R&R scheme since its inception came last December. That month, the Council of Chairpersons approved the Working Measures for the Recording and Review of Regulations and Judicial Interpretations (Measures) [法规、司法解释备案审查工作办法], which were then quietly released in the NPCSC Gazette’s March issue. This is a noteworthy piece of authority: not only does it supplement the two main governing statutes—the Legislation Law [立法法] and the Law on Oversight by the Standing Committees of the People’s Congresses at All Levels (Oversight Law) [各级人民代表大会常务委员会监督法]—by filling in the procedural gaps, but more importantly, it elaborates on the existing grounds for review and also introduces brand-new ones. We thus would like to take this opportunity to reintroduce the NPCSC’s R&R practice, as now undertaken under these new rules. All citations below are to the Measures unless otherwise indicated.
If you were looking to read another case in which the Legislative Affairs Commission (LAC) of the NPC Standing Committee (NPCSC) reviewed the legality or constitutionality of a regulation or a judicial interpretation, you will be disappointed. But in this new installment of our Recording & Review series, we will introduce a new development in the NPCSC’s review of sub-statutory legal documents that is no less important than any substantive action by the NPCSC.
On December 4, the NPCSC officially launched a new online platform for citizens, legal persons, and other organizations to submit requests for review. Previously, they must mail their suggestions to the LAC’s Office for Recording and Reviewing Regulations [法规备案审查室]. We tested the new platform and felt that it is relatively easy to use, though not without several significant limitations. Below we will offer a brief tour of the platform (with screenshots), after a quick introduction of the review process.
An institute affiliated with China’s top court reported in 2017 that using cellphones while driving was one of the main causes of traffic accidents in China. Between 2012 and mid-2017, says the report, distracted driving caused about 11% of all traffic accidents that led to civil lawsuits, even though such behavior had been outlawed since at least 2004. Enforcement is lacking, however, because distracted driving is relatively hard to detect (even with China’s ubiquitous surveillance cameras).
this problem, several provinces decided to lend the police a hand. They passed what
we call “phone-search provisions”: regulations
that allow the police to inspect the communication records of motorists
involved in accidents. Those records could provide the definitive proof of
whether a driver was using cellphone just before an accident, thereby helping
the police determine the liability of each party and punish the cellphone use
Granting the police such authority seems like a sensible enough policy. But is it legal?
UPDATE (Dec. 30, 2019): On December 28, 2019, the NPCSC voted to abolish C&E. For more information, please see this post.
Five years after the NPC Standing Committee (NPCSC) abolished the reeducation-through-labor [劳动教养] system, another form of extrajudicial administrative detention is now on the chopping block. On Monday, the NPCSC Legislative Affairs Commission [法制工作委员会] recommended the abolition of the “custody and education” (C&E) [收容教育] system—a form of administrative punishment for prostitution. Finally.
Common sense would answer no. But the Supreme People’s Court (SPC) disagreed—according to its interpretation of a Criminal Law provision that punishes trade in “rare and endangered wild animals.” A Shenzhen man, convicted in 2017 under this provision for buying and selling parrots he himself bred, contested this interpretation before the NPC Standing Committee’s Legislative Affairs Commission (LAC)—the body charged with reviewing judicial interpretations (among other types of documents) at the request of citizens for any inconsistency with statutes. The Commission recently informed the man that the SPC would amend the interpretation. Yet it is far from clear that he won this battle. In this third installment of Recording & Review, we will tell the story of Wang Peng [王鹏] and his parrots.
In the first installment of the Recording & Review series, we presented a comprehensive introduction to the recording and review (R&R) [备案审查] process in the NPC Standing Committee (NPCSC). Beginning with this installment, we will examine cases where citizens and organizations successfully challenged the legality of normative documents using the R&R procedure. While these cases might not be new, a close examination of them will still offer us important insight into the R&R system—on how it actually operates and what its limitations are.
In July 2017, the Southern Metropolisreported that the Supreme People’s Procuratorate (SPP) had recently discontinued a controversial type of arrest after the NPCSC—more specifically its Legislative Affairs Commission (LAC)—reviewed its constitutionality and legality at the request of Mr. Miao Yongjun, an Inner Mongolian lawyer. Before recounting Mr. Miao’s encounter with the R&R system, we will first briefly introduce the now-abolished type of arrest invented by the SPP.
Editor’s Note (Sept. 2, 2020): This post is NOT up to date and has been superseded by a more recent introduction to “recording and review,” which discusses the latest governing rules.
On October 18, 2017, halfway through his mind-numbing three-hour report to the Communist Party’s 19th National Congress, President Xi Jinping called for “advancing the work of constitutional review” [推进合宪性审查工作]. We then noted, and Chinese media later confirmed, that it was the first time such expression appeared in Party documents. While the expression might be novel, the concept of constitutional review is not—it has been an inherent part of “recording and review” (“R&R”) [备案审查] since at least 1982. For purposes of our discussion, R&R is a process whereby various governmental entities with lawmaking powers record the legislation they enact with the NPC Standing Committee (NPCSC), and the NPCSC then, through several established mechanisms, review such legislation for potential violations of the Constitution and national laws and take appropriate actions. The primary goal is to ensure uniformity in the hierarchical legal system.