By Jerome A. Cohen
Recently, the State Department warned US citizens in China to “exercise increased caution” in light of the new Hong Kong national security law although it cautiously does not mention the law by name. We are all waiting to see how the PRC interprets Article 38 of the new NSL for HK that on its face purports to cover speech and other conduct by anyone anywhere that the PRC claims to have violated the HKNSL.
The notice is available to all Americans who might plan to travel to China as well as those already there. It is interesting that it warns that consular access might be denied. Even the two Canadians, Michael Spavor and Michael Kovrig, who were detained 18 months ago, had Canadian consular access until this past January when it was cut off allegedly because of Covid-19. The problem is that the PRC version of consular access is very limited. Meetings usually occur once a month at best, they are short, and it is not permitted to even discuss the case that led to the detention. Moreover, PRC commitments to allow appointment of a defense lawyer are not honored.
The PRC may modify the NSL's extraordinary breadth by announcing additional prerequisites to prosecution in the law itself and/or by demonstrating in its application of the law or through informal public statements that it recognizes that the literal wording goes too far and won’t be applied. But, so far as I know, it has not yet done any of these things. PRC authorities may be scrambling to come to a conclusion about what to do to meet the rising world concern and opposition.
In the interim, Article 38 has certainly had a strong deterrent impact in many countries and is already affecting the calculations of many NGOs and ordinary citizens abroad about their plans and conduct. The State Department is of course most immediately concerned about Americans currently within China’s borders, presumably including Hong Kong, since they are subject to immediate enforcement of the broadest interpretation of 38 if that is the path the PRC decides to pursue. But it should surely notify anyone who, although not currently in China, is planning to travel there, including those who may merely be planning to pass through en route to further destinations.
It is interesting to see the emphasis on private electronic communications. The email warns citizens that they may be detained or deported “for sending private electronic messages critical of the Chinese government.” What is the State Department’s premise? That emails and phone calls wholly between persons outside China are susceptible to PRC monitoring and potentially subject to prosecution? Internet chats? Direct communications between someone outside China and someone inside? “Only” communications wholly within China? The NSL has already had an impact outside of Hong Kong, but it is still unclear what the full impact will be. However, I suppose we have to be grateful that the HKNSL has done a lot to alert the world to the dangers of arbitrary detention in China that too many have long ignored.