“Leaked Files” and China's Ethnic and Religious Polices

“Leaked Files” and China’s Ethnic and Religious Polices

(Research Report)

Liang Zheng

Nov.28,2019

applied for 70 years. Ethnic relations were stable for most of that time. The On Nov. 16, 2019, the New York shift from a planned economy to a Times reported that it acquired 403 market economy transformed the pages of “leaked files” from “a member situation for ethnic districts as well as of Chinese political establishment”. The other districts in China. In the process content of those files concerns China’s of transformation, different social ethnic and religious policies and problems occurred in ethnic districts. In counter-terrorism and de-radicalization Xinjiang, apart from the efforts in Xinjiang. 1 transformational problems brought by Since from New York Times reported reform and opening up, religious the “leaked files” on November 16th, no extremism, ethnic separatism, think tank or research institution has terrorism and violence have long conducted any research and analysis on plagued society. These conditions pose it. This possibly was because the source hazards and challenges to the of documents is unclear, and its development of Xinjiang and the authenticity is not verifiable. Despite stability of the western area. The violent their lack of authenticity, the content of terrorist incidents between 2009 and the “leaked files” can be used as a 2015 demonstrated Xinjiang’s problems reference and attracts public attention to others in inland provinces. These to Chinese long-term ethnic and attacks, widely covered by the media, religious policy and practice. have imbued fear among viewers. The China is a multi-ethnic country. direct response of many in inland Since 1949, there have been 55 officially provinces was “what’s going on in recognized ethnic minorities. China Xinjiang?” This involves a major established five provincial-level ethnic question: what ethnic and religious autonomous regions. In 1984, the policies is the Chinese government Central Government of China pursuing in Xinjiang? Or is there any implemented the Law on Regional policy issues? What goes wrong? The Ethnic Autonomy, which brought legal governance of Xinjiang is confined to basis to China’s ethnic policies and the mass media’s mechanical reports on management measures. policy. It is difficult to grasp the ethnic The ethnic policy of China has been and religious policy pursued by Chinese

1https://www.nytimes.com/interacti ve/2019/11/16/world/asia/china- xinjiang-documents.html 1 government unless there is long-term to terrorist attacks that happened in field research and study of Xinjiang. Xinjiang, the The New York Times This report about “leaked files” from reported：“In 2014…two Uighur The New York Times offers an militants staged a suicide bombing opportunity to answer these questions. outside a train station in Urumqi that Based on the text of “leaked files” injured nearly 80 people, one fatally. from The New York Times, this research Weeks earlier, militants with knives had will be conducted from the following gone on a rampage at another railway questions: station, in southwest China, killing 31 1.According to the text of “leaked people and injuring more than 140. And files”, what ethnic and religious policies less than a month later, assailants are applied by Chinese government in tossed explosives into a vegetable Xinjiang? market in Urumqi, wounding 94 people 2. Is there any difference between and killing at least 39.” the document’s version of ethnic and In 2014, The New York Times religious policies in China’s in Xinjiang reported two attacks in Urumqi, the and official version? If there is, what’s "April 30" train station bombing, and the specific difference? the "March 01" attacks in the Kunming 3. Some western media claim that Railway Station. These two attacks had the measures of Chinese government been defined as terrorist attacks by against terrorism is repression toward Chinese public security departments. certain minorities. Do the “leaked files” Due to ideological bias, The New York prove this? Times did not use the phrase “terrorist 4. Does the “leaked files” from The attacks” in regard to these cases, but New York Times provide valuable clues terms, such as “militants”, “suicide or not for future research? bombings”, “rampage”, and “toss explosives.” This reporting did show the The situation of anti-terrorism reality of violence and the threat of The background of the policies terrorism brought by militants since Chinese government pursues in 2012. Xinjiang were introduced in the “leaked These two cases as mentioned by files.” The main content is a series of The New York Times’s report, like all violent terrorist attacks that occurred in cases of violence and terrorism related Xinjiang in the last few years. These to Xinjiang, are influential and widely attacks were a catalyst for Xinjiang’s known. How many cases have taken new policies in this period. With regard place, but are not widely known?

2 According to The Fight Against Terrorism inside but also from abroad.“A senior and Extremism and Human Rights Chinese leader” was quoted by the New Protection in Xinjiang White Paper York Times as saying, “After the United issued by the State Council Information States pulls troops out of Afghanistan, Office of the People’s Republic of China terrorist organizations positioned on in 2019, “incomplete statistics show the frontiers of Afghanistan and that from 1990 to the end of 2016, Pakistan may quickly infiltrate into separatist, terrorist and extremist forces Central Asia. East Turkestan’s terrorists launched thousands of terrorist attacks who have received real-war training in in Xinjiang, killing large numbers of Syria and Afghanistan could at any time innocent people and hundreds of police launch terrorist attacks in Xinjiang.” For officers, and causing immeasurable the situation of “East Turkistan” damage to property.”2 As mentioned in terrorist organization activities, White Paper, these “several thousand” international scholars and think tanks terrorist attacks spanned more than 20 have produced from results, but the years. The description of these cases in overall degree of concern stays low for White Paper is quite simple so requires some reasons. For instance, American further research. Though the number Jamestown Foundation regularly “several thousand” seems fuzzy, people publicizes the activities of “East who understand the context of China Turkistan” terrorist organization in can feel the seriousness of the problem. China;3 another US terrorism research Xinjiang is faced with a severe terrorism website, Long War Journal, also often threat which has spilled over to other publishes research about the provinces. It is one of the important international activities of “East logical starting points of various aspects Turkistan” terrorist organization;4 a of Xinjiang governance. research institution in France published The terrorism threat that China a report about the “East Turkistan” faces not only comes from country terrorist organization in Syria.5

2http://www.gov.cn/zhengce/2019- 4 Weiss, C. (2015). Turkistan Islamic 03/18/content_5374643.htm Party had significant role in recent 3 Jacob Zenn. 2011. Jihad in Idlib offensive. Retrieved from China? Marketing the Turkistan https://www.longwarjournal.org/arc Islamic Party. Jamestown hives/2015/04/turkistan-islamic- Foundation. party-had-significant-role-recent- https://jamestown.org/wp- idlib-offensive.php content/uploads/2011/03/TM0090 5 Vagneur-Jones, A. (2017). War 6.pdf?x87069 and opportunity: the Turkistan Islamic Party and the Syrian conflict. 3 In China, it is rare to see research instructions to Syria “jihad” from al- about the “East Turkistan” terrorist Qaida, the “East Turkistan Islamic organization in Central Asia, West Asia Movement”, with orders from al-Qaida, and the Middle East. So far, it could only deploy capable personnel from be seen from some reports of media. For Afghanistan and the border region of instance, Global Times reporters got a Pakistan in batches in Syria. The piece of material about “East Turkistan” militants join forces with other jihadi terrorists training in the south of groups Syria, and then make up an Turkey and the north of Syria during an independent group to war.” 7 The interview in Qatar. Viewing from the “China Youth network” quoted an photos and videos, “East Turkistan” official of the anti-terrorist branch in activities in Syria and southern Turkey Chinese government: terrorist has reached a certain scale. In the organization “East Turkistan Islamic photos, their training camp occupies a Movement” began operations after al- considerable area surrounded by the Qaida issued an order. There are two walls, a camera probing above walls. main purposes of the "East Turkistan" Except for the militants, their families group. One is “training” and another are also in the camp. Wearing one is an attempting to seek camouflage uniforms, equipment, “recognition” and “help” from machine guns, AK-47 assault rifles and international terrorist forces. The grenades, some "East Turkistan" international community should militants sit cross-legged to discuss the quickly help Syria to eliminate the matter, or arms around eating and conflict, and if the international drinking together. In addition, there are terrorism forces get united, it could not some "explosion pictures" of bomb be a gospel for any country”.8 attacks in Syria, as well as a picture The scattered report about the showing a "East Turkistan" militant "East Turkistan" organization of carrying a banner of al-Qaida outside international activities from media, 6 the camp. The Global Times quoted a coupled with the lack of domestic Chinese national counterterrorism academic research means this problem official’s words: “After issuing secret has not effectively got attention from

Retrieved from 6http://www.chinanews.com/mil/20 https://www.frstrategie.org/publicat 13/12-17/5626485.shtml ions/notes/war-and-opportunity- 7http://www.chinanews.com/mil/20 the-turkistan-islamic-party-and-the- 12/10-29/4283515.shtml syrian-conflict-07-2017 8http://pinglun.youth.cn/wztt/20121 0/t20121030_2562869.htm 4 China. But from The New York Times’s so- When discussing about how to deal called “leaked files”, China’s with ethnic relations, The New York understanding of the potential threat of Times “leaked files” report shows some “East Turkistan” terrorists is adequate. “surprising” speeches of “high-level Chinese officials.” Such as: “to not Ethnic Policy discriminate against Uighurs and to When Western media report how respect their right to worship… [no to] the Chinese government governs overreact to natural friction between Xinjiang, one of the most common Uighurs and Han Chinese, the nation’s arguments is the reason of violent dominant ethnic group.” The speech terrorist activities in Xinjiang is Chinese revealed the attitude of China’s government’s “repression” and leadership towards ethnic issues; one of “discrimination” of the Uyghurs. the core elements is respect. The reason Western reports regard it as “the for The New York Times’ “surprise” is resistance against oppression.” This that Western media have had a fixed rhetoric is devoid of any actual framework for reporting on Xinjiang, investigation and is a subjective which amounts to saying “the judgment. However, it has become a government’s crackdown on Uighur led kind of default and unchallenged to a revolt.” The New York times did not “politically correct” assertion after reveal more, but this "statement from being disseminated for many years. The Chinese leadership" is clearly consistent core problem is that there is no with China’s established laws and ethnic empirical research to explain the policies. relationship between violent terrorist The constitution of the People’s activities in Xinjiang and the Chinese Republic of China states that “all government’s policy in Xinjiang. In nationalities in the People s Republic of other words, does the Chinese China are equal. The state protects the government’s “crackdown” lead to lawful rights and interests of the persistent and violent terrorist minority nationalities and upholds and activities or vice versa? In the absence of develops the relationship of equality, sufficient empirical research of unity and mutual assistance among all scholars, it is difficult to have a of China s nationalities. Discrimination convincing answer. But The New York against and oppression of any Times report of the “leaked files” gave nationality are prohibited; any acts that the outside world a rare opportunity to undermine the unity of the further explore this issue. nationalities or instigate their secession

5 are prohibited.” In 1984, the National becomes a major factor in our country’s People’s Congress of China passed The development.”9 It can be seen from this Law of the People’s Republic of China on standpoint that the communist party Regional National Autonomy, which leadership does not see the reality of had a clear statement on ethnic multi-ethnic states as a hindrance or a relations and religious beliefs in ethnic drag on China’s development. Instead, regions in Article 9 and 11: they treat it as a valuable component of “Discrimination against and oppression society. In September, Xi Jinping of any nationality shall be prohibited; mentioned nine "Make-Sures" in his any act that undermines the unity of speech at the national recognition of the the nationalities or instigates national unity and progress of ethnic groups. division shall also be prohibited… The Among the contents on ethnic relations organs of self-government of national and ethnic unity are "accelerating the autonomous areas shall guarantee the development of ethnic minorities and freedom of religious belief to citizens of ethnic minority areas, and constantly the various nationalities. The organs of meeting the aspirations of people of all self-government of national of national ethnic groups for a better life; Insisting autonomous areas shall guarantee the on cultural identity is the deepest freedom of religious belief to citizens of identity, and building the common the various nationalities. Religious spiritual home of the Chinese nation."10 bodies and religious affairs shall not be You can see from this speech that one subject to any foreign domination.” aspect of the communist party Speeches by Chinese leaders also leadership focus on ethnic work is play an important role in shaping and development, the other is to strengthen formulating China’s policies. To further the rule of law. That is to say, ethnic examine the relationship between the issues should be solved step by step “leaked documents” and the Chinese within the framework of law. government’s ethnic policy, this study Regarding harm brought by looks at the speeches of Xi Jinping, violent terrorist activities in general secretary of the CPC central Xinjiang,The New York Times quoted committee, on ethnic affairs in various “senior Chinese leaders” words: “the occasions in recent years. violence was spilling from Xinjiang into Xi Jinping once said that “China is a other parts of China and could taint the unified, multiethnic country, which party’s image of strength. Unless the

9http://jhsjk.people.cn/article/2832 10http://jhsjk.people.cn/article/3137 2717 8052 6 threat was extinguished, social stability strengthen exchanges between various will suffer shocks, the general unity of nationalities communication, respect people of every ethnicity will be for differences, inclusive diversity, let all damaged, and the broad outlook for ethnic groups in the big family of the reform, development and stability will Chinese nation mutually close, mutual be affected.” China’s top leaders are care. Use the law to ensure ethnic unity, stressing ethnic unity as a prerequisite enhance the legal awareness of the for reform, development and stability people of all ethnic groups, resolutely and giving a higher priority to national oppose Han chauvinism and narrow unity than the international nationalism, and consciously safeguard community has traditionally thought. the highest interests of the state and the In 2017, Xi Jinping has said that overall situation of ethnic unity.” It can “we will heighten public awareness of be seen in all of Xi Jinping’s statements ethnic unity and progress and create a on ethnic work, the content of national strong sense of community for the unity, ethnic integration, respect for Chinese nation. We will encourage more differences, tolerance for diversity and exchanges and interactions among legal guarantees are consistent. It also different ethnic groups, helping them clearly reflects the coherence of China’s remain closely united like the seeds of a ethnic policies. The New York Times was pomegranate that stick together, and “surprised” by the “leaked files” in work jointly for common prosperity and which the “Chinese leadership development.”11 In addition, in a speech speeches” said it should respect Uighur on ethnic work in 2016, Xi Jinping said culture and religion, and refrain from “to do a good job in ethnic work, the overreacting to the conflicts between most important thing is to promote Uyghur and Han Chinese, probably ethnic unity, and the most effective because they don’t realize that this is thing is to win the hearts and minds of part of the Chinese government’s ethnic the people. To correctly know me policy. through the mainstream of the national China’s system of regional ethnic relationship, see the bright side of autonomy is an important part of national unity, good at unity of the China’s ethnic policy. In recent years, masses, to the heart, the whole society social problems in some border areas of with communication, culture, China, international and domestic harmonious emotional work, doubts about the system of ethnic

11http://jhsjk.people.cn/article/2961 3458 7 regions have also increased. To this, Xi religion. Islam was introduced to China jinping said in a speech: “Regional in the Tang Dynasty and has a history of ethnic autonomy is the source of the more than 1,000 years. It is one of the party’s ethnic policy, and all our ethnic major religions in China. In recent years, policies are derived from and based on the penetration and spread of religious this. If this source changes, the extremism in Xinjiang resulted in foundation will be shaken and a domino violence and terrorism, which pushes effect will occur on issues such as the Chinese government to adopt a ethnic theory, ethnic policy and ethnic series of measures to fight religious relations. Regional ethnic autonomy is extremism and polarization. However, not the autonomy enjoyed exclusively some Western media report that the by a particular ethnic group, nor are counter-terrorism policy of the Chinese ethnic autonomous areas unique to a government is designed to “eradicate” particular ethnic group. We should Islamic. Then, what is the Chinese combine unification with autonomy, government’s policy on Islam? Is the and integrate ethnic and regional Chinese government taking Islam as the factors, implement the provisions of the source of terrorism? constitution and the law on regional For these problems, “A senior ethnic autonomy, and help ethnic Chinese leader” was quoted by The New autonomous areas develop their York Times as saying, “In light of economies and improve people’s separatist and terrorist forces under the wellbeing.”12 This speech clearly banner of Islam, some people have affirmed the system of regional ethnic argued that Islam should be restricted autonomy, and emphasized specially or even eradicated. [This view] is biased, the emphasis of regional ethnic even wrong”. From this quote, the top of autonomy is the combination of Chinese Communist Party doesn’t “regional autonomy” and “ethnic define Islam as the source of violence autonomy”. and extremism in Xinjiang and does not want to eradicate Islam. Actually, Both Religious Policy the Chinese Constitution and various Xinjiang is a region where many laws have content protecting freedom of religions have coexisted throughout religious belief and legal religious history. Buddhism has once prevailed activities. According to Article 2 of the there. Islam is currently the dominant Regulation on Religious Affairs

12http://jhsjk.people.cn/article/2832 2717 8 promulgated by Chinese government, such conduct has not constituted a “Citizens shall have the freedom of crime, he shall be given administrative religious belief. No organization or penalties by the appropriate individual shall compel citizens to department according to law. If any loss believe in or not to believe in any is caused to a citizen, legal person or religion; nor may they discriminate another organization, he shall assume against citizens who believe in any civil liability according to law.” religion (hereinafter referred to as Therefore, carrying out the work of de- religious citizens) or citizens who do not radicalization is also within China’s believe in any religion (hereinafter legal framework. referred to as non-religious Beyond religious affairs legislation, citizens).Religious citizens, non- this research also refers to Xi Jinping’s religious citizens, and citizens with speeches in recent years. different religious beliefs shall respect Xi Jinping said in a speech at the each other and live in harmony.” Clearly, Arab league headquarters in 2016 that the legal status of all religions in China “the spread of terrorist and extremist is equal, and no religion has a higher ideas poses a serious challenge to peace status than any other. The status of all and development. Countries need to believers and non-believers is also have consensus about the fight against equal. terrorist and extremist forces. For religious extremism, Article 63 Terrorism knows no borders. There is of the regulations on religious affairs no distinction between good and bad provides that “Whoever advocates, terrorism. And there should be no supports and subsidizes religious double standards in fighting terrorism. extremism or makes use of a religion to For the same reason, terrorism shall not endanger the national security or public be linked with any specific ethnic group security, to undermine ethnic solidarity, or religion, as it will only create ethnic disintegrate the country or carry out and religious tensions.” This speech terrorist activities, to infringe upon the shows that Chinese government’s personal or democratic rights of any cautious attitudes in dealing with the citizen, to disrupt the order of social terrorism and extremism, that is, not administration, to encroach upon linking terrorism and extremism to any public or private properties, or to carry particular religion or ethnic. The out other illegal activities shall, if a movement primarily aimed at crime is constituted, be held criminally preserving ethnic solidarity liable in accordance with the law. If domestically. It also contributes to

9 counter-terrorism cooperation religious believers, meet the latter’s internationally. In other words, the normal religious needs, and effectively Chinese government opposes terrorism resist the infiltration of religious as an ideology, not any specific religion extremism.”15 As it can be seen, or ethnic group. religious leaders are a key part of the In Xi Jinping’s speeches on Chinese government’s religious policy, religious work, one thing that stands especially when it comes to correctly out is his emphasis on religious leaders. guiding ordinary believers, helping Xi Jinping said at the First Session of the believers shun religious extremism. 12th National People’s Congress in 2013 Islam is one of the world’s three to “give full play to the positive role that major religions. In the Arab world, most religious figures and believers play in countries are Islamic countries, Islam promoting economic and social plays an important role in the social life development, and do our utmost to rally of these countries. Xi Jinping said in a all the possible forces around us.”13 speech at the Arab league headquarters During the Xinjiang inspection tour in in 2016 that “like the diverse species in 2014, Xi Jinping said: “I hope the broad Mother Nature, cultural diversity gives masses of religious leaders in Xinjiang life to our planet. The Middle East is the continue to carry forward the patriotic meeting place of ancient human love of good tradition, a clear-cut stand civilizations and home to diverse and against religious extremism, converts a splendid civilizations and cultures. correct understanding through the China will continue to unswervingly guidance of scientific solution by support Middle East and Arab states in religious doctrine, let everyone to relax preserving their ethnic and cultural economic development, and improve traditions and oppose all forms of your life.”14 At the 14th group study discrimination and prejudice against session of the Politburo of the 18th CPC specific ethnic group and religion.” It Central Committee in 2014,when it shows that in the eyes of Xi Jinping, comes to fighting against terrorism Xi there is not only Islam in Arab Jinping said that “We should also let countries, but also rich Arab culture. patriotic religious personages play a China will not harbor discrimination role, enhance positive guidance for and prejudice on Islam, but combat

13http://jhsjk.people.cn/article/2081 15http://jhsjk.people.cn/article/2740 6352 6262 14http://jhsjk.people.cn/article/2496 3845 10 discrimination and prejudice against coverage and various speeches of senior Arab culture and the Arab nations. Chinese leaders all demonstrate the target of China’s counterterrorism and Summary de-radicalization measures is terrorism China’s ethnic and religious policies & extremist ideologies and not any and anti-terrorism practice have been particular ethnic group or religion. criticized by the outside for a long time. In the process of researching One of the reasons is that the policies “leaked files”, this study also found and measures are generally presented in some problems on previous research the form of files. With related research and options for further research. For focusing on the Chinese academia and instance, the “leaked files” quotes various types of academic papers, it is “senior Chinese leadership’s word: difficult to fully understand and spread “Islamic extremism had taken root to the outside world. The New York Times across swaths of Uighur society.” report, which is mainly about the However, Western academia generally Chinese government’s policies in believes that Uyghur society is Xinjiang, become a rare entry to following non-extreme religious patiently research and review Chinese traditions, and only part of it were government’s ethnic and religious influenced by extremism. In Chinese policies China, in particular for the academia, research about the senior leadership’s view of religious and extremism in Uighur community do anti-terrorism issues. Particularly, it can exist, but in-depth study on “take root” provide a valuable option to study the and “how” can’t be found. Therefore, Xinjiang governance policies of China. this topic needs more in-depth study for Based on the analysis of “leaked future research. Moreover, the “leaked files”, this report finds that some of the files” reveal the Chinese leadership’s coverage of The New York Times neither concern toward Uyghur extremists’ exceeds nor contradicts China’s current activities in the Middle East and South ethnic, religious, counter-terrorism and Asia, which should be the focus of de-radicalization policies, which are all further research. publicly available. The so-called “leaked files” coverage doesn’t provide credible evidence supporting claims such as “China is eradicating Islam” or “China is persecuting its minorities.” Besides, both “leaked files”