IMPLEMENTATION OF THE INTERNATIONAL CONVENTION ON THE ELIMINATION OF ALL FORMS OF RACIAL DISCRIMINATION IN THE PEOPLE’S REPUBLIC OF CHINA A REPORT BY HUMAN RIGHTS IN CHINA JULY 2001 Prepared to Assist in the Assessment of the Eighth and Ninth Periodic Report of the People抯 Republic of China on Implementation of the United Nation抯 International Convention on the Elimination of All Forms of Racial Discrimination This report was made possible by the support of the International Federation of Human Rights (FIDH) of which HRIC is an affiliate. It was funded, in part, by the UK Foreign and Commonwealth Office Human Rights Project Fund July 26, 2001 i TABLE OF CONTENTS EXECUTIVE SUMMARY厖厖厖…..厖厖厖厖厖厖厖厖厖… i I. INTRODUCTION..................................................................................................................... 1 II. ASSESSMENT OF THE PRC GOVERNMENT REPORT ............................................... 3 A. “Minority Nationalities” an arbitrary construct .................................................................. 3 B. Gap between “law on books” and “reality” .......................................................................... 4 C. Analysis on situation of National Minorities......................................................................... 7 D. Information on domestic promotion of ICERD.................................................................... 7 III. DISCRIMINATION AGAINST RURAL RESIDENTS AND RURAL-TO-URBAN MIGRANTS........................................................................................................................... 8 A. Creating a two-class society.................................................................................................... 9 B. Regulatory structure.............................................................................................................. 10 C. The urban-rural divide ......................................................................................................... 11 D. Discrimination against rural-to-urban migrants................................................................ 14 1. Discriminatory representation of migrants ..................................................................... 15 a. Drain on social services ................................................................................................... 16 b. “Excess birth guerillas” ................................................................................................... 16 c. Source of crime................................................................................................................ 17 d. Perception versus reality.................................................................................................. 17 2. Effects of discrimination.................................................................................................... 18 a. Conflict with locals.......................................................................................................... 19 b. Migrants’ vulnerable status in the workplace.................................................................. 19 · Violations of occupational health and safety................................................................. 19 · Substandard and unpaid wages...................................................................................... 20 · Forced labor................................................................................................................... 20 · Excluded from certain occupations ............................................................................... 21 c. No Social Security ........................................................................................................... 21 3. Arbitrary detention............................................................................................................ 21 IV. DISCRIMINATION AGAINST NATIONAL MINORITIES ......................................... 22 A. Preferential Policies and Institutionalized Racism............................................................. 23 ii B. Social evolutionary paradigm promotes superiority of “Han race” ................................. 24 C. Autonomy ............................................................................................................................... 24 1. Minority “autonomy” ........................................................................................................ 24 2. Party dominance vitiates autonomy ................................................................................. 24 3. Law falls short in guaranteeing autonomy ...................................................................... 26 4. Lack of economic control................................................................................................... 27 5. Han immigration................................................................................................................ 28 D. Education in minority areas .................................................................................................29 1. The legislative regime for minority education................................................................. 30 2. Official perspectives dominate curriculum...................................................................... 31 3. Education standards .......................................................................................................... 32 4. Funding shortages.............................................................................................................. 33 5. Disadvantage compared to Han population .................................................................... 35 6. Language............................................................................................................................. 36 7. Religious and independent schools ................................................................................... 39 E. Health....................................................................................................................................... 40 1. Vast inequalities in medical care ...................................................................................... 40 2. Disturbing trends in autonomous area............................................................................. 42 3. Child health especially affected......................................................................................... 43 4. Lower life expectancy ........................................................................................................ 44 iii EXECUTIVE SUMMARY In its report, HRIC looked primarily at the PRC抯 approach to racial discrimination to examine whether it met the standards set by the Convention. In doing so, we found that the anti- discriminatory laws and policies adopted by the PRC had left major groups virtually unprotected: rural residents, rural-to-urban migrants, and national minorities. In focusing on these three groups, we have also sought to assess whether ICERD抯 previous recommendations to the PRC government had been taken into consideration and implemented, while identifying general compliance issues in the PRC government抯 report. These include the problematic and narrow conception of discrimination adopted by the PRC government; inadequate analysis of the discrepancy between legislation and actual implementation; lack of adequate information and analysis on the situation of national minorities; and inadequate information on domestic promotion of ICERD among PRC citizens. ♦ Article 1 The PRC government report focuses on laws and policies relating to the status of “minority nationalities” (shaoshu minzu), thus conflating the issue of “racial discrimination” with the situation of officially recognized ethnic minority peoples, which is not as broad as taking action to combat racial discrimination. As a result, the anti-discriminatory laws and policies adopted by the PRC have left major groups virtually unprotected and ineligible for the putative benefits of special preferential policies. HRIC抯 report focuses on three main overlapping groups: rural residents (63.91 percent of the population), rural-to-urban migrants (or “floating population,” from 40 million to 120 million), and national minorities (106.43 million persons or 8.41 percent of the population.) Many members of national minorities are, in fact, included in the rural and internal migrants categories. Overall, these groups do not enjoy the same level of social and economic development as the Han majority or urban residents. HRIC suggests that the concept of “minority nationalities” in the PRC is a construct of the state, rather than reflecting the self-identification of ethnic minority groups or the reality of ethnic and cultural diversity across the vast territory of the PRC. The PRC population is officially comprised of the majority “Han” (ethnic Chinese, over 90 percent of the population), and 55 officially recognized “minority nationalities.” This classification was undertaken in the 1950s by the new government, which “identified” groups that should be registered as official nationalities. More than 400 distinct groups originally applied. Those not accorded recognition were either classified as “Han” or put together with other ethnic minorities considered similar. In addition, within the population labeled Han, there is enormous ethnic, cultural and linguistic diversity. ♦ Article 2 Although the laws of the PRC provide for equality