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China and the Overseas Chinese: Perceptions and Policies*
Published online by Cambridge University Press: 17 February 2009
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The Chinese Communist Party and the “Overseas Chinese Problem”
The “Overseas Chinese problem” in South-East Asia is most commonly understood to be a problem which confronts the governments and indigenous peoples of the region, or other governments which have an interest in South-East Asia, or sometimes the Overseas Chinese themselves. It is seldom perceived as a “problem” for the Chinese Government, except in so far as China is thought to have encountered certain obstacles to political and economic exploitation of a relationship which appears deceptively simple, and which seems to offer very considerable advantages to the Chinese Communist Party (CCP). Yet the evolution of China's Overseas Chinese policy since 1949 reveals a growing awareness on the part of the CCP that there were many intractable problems associated with its overseas population, both in the pursuit of foreign policies in South-East Asia and in the very nature of the Overseas Chinese relationship with China.
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References
1 Writers who have commented on the fact that the Overseas Chinese may present certain problems to China, have not usually gone beyond this observation to examine the Chinese Government's response to these problems. See, for example, Hinton, Harold C., Communist China in World Politics (London: Macmillan, 1966), p. 402Google Scholar; Bell, Coral, “The Foreign Policy of Communist China,” in F. S., Northedge (ed.), The Foreign Policies of the Powers (London: Faber and Faber 1968), p. 133Google Scholar. Maurice, Freedman, however, in a review of Lea E., Williams, The Future of the Overseas Chinese in Southeast Asia, in The China Quarterly, No. 31 (07–09 1967), p. 172, makes the judgement that for China “the Overseas Chinese have become more of an embarrassment than anything else.”Google Scholar
2 Overseas Chinese policy is concerned almost exclusively with the Chinese in South-East Asia, since that is where more than 95 per cent. of them live, and since it is in South-East Asia that Overseas Chinese present the greatest obstacles to the advancement of China's foreign policy interests. With a few exceptions, the Chinese in other parts of the world have not influenced the policies of the CCP.Google Scholar
3 The most extreme statement of this proposition is contained in Robert, Elegant, The Dragon's Seed. Peking and the Overseas Chinese (New York: St. Martin's Press, 1959)Google Scholar. But it was also expounded by academics and western political leaders, one of the most notable proponents being the former U.S. Secretary of State, Dulles. See, for example, Dulles' statement in U.S. Government Department of State Bulletin, Vol. XXXIX, No. 1017 (22 12 1958), p. 991.Google Scholar
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5 G. William, Skinner, “Overseas Chinese in Southwest Asia,” Annals of the American Academy of Political and Social Science, Vol. 321 (01 1959), p. 138Google Scholar. One of the first and most vitriolic expressions of this “anti-Sinitic tradition” was the pamphlet attributed to the Thai King, Rama VI, in which the Overseas Chinese were labelled “The Jews of the East.” The pamphlet is summarized in Victor, Purcell, The Chinese in Southeast Asia (second edition, London: Oxford University Press, 1965), pp. 120–121.Google Scholar
6 The Chinese have been rather vague about the number of domestic Overseas Chinese, but there appear to have been between 10 and 11 million relatives and dependants, probably over 60,000 students, and from 400,000 to 500,000 returned Overseas Chinese. See Jen-min jih-pao (People's Daily) (Peking), 6 10 1954, 15 04 1960, p. 16Google Scholar, and Ch'iao-wu pao (Overseas Chinese Affairs Journal), No. 5 (10 1963), p. 3. They were concentrated in the provinces of Fukien and Kwangtung, with small numbers scattered in Kwangsi, Shangtung, Chekiang and Yunnan.Google Scholar
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9 In addition to the national media, a great deal of attention is devoted to Overseas Chinese affairs in the provincial and local media in the provinces of Kwangtung and Fukien. There were also special newspapers for Overseas Chinese affairs in these two provinces and in Kwangsi Province, and below province level special news sheets in the Overseas Chinese home districts The official organ of the Overseas Chinese Affairs Commission, the Ch'iao-wu pao, was also concerned mainly with domestic rather than external matters, and the reporting of the special news agency for the Overseas Chinese press, Chung-kuo hsin-wen she (China News Service) (CNS), was devoted almost exclusively to events in China and the policies of the Chinese Government.Google Scholar
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14 The OCAC was represented in the State Council Staff Office of Foreign Affairs by Liao Ch'eng-chih, and does not appear to have had independent authority for decision-making even on minor matters affecting the Chinese abroad. Negotiations with foreign governments and consular matters were handled by the Foreign Ministry or its representatives abroad. The leading Party organ for Overseas Chinese affairs was the United Front Work Department, but this appears to have shared, or even surrendered, its responsibilities to the Party organ responsible for foreign affairs.Google Scholar
15 The one possible exception was the period in 1967 when revolutionary rebels and other militants of the Cultural Revolution responded with frenzied outbursts to a series of incidents involving Overseas Chinese in Mongolia, Burma, Indonesia and, although not strictly Overseas Chinese areas, Hong Kong and Macao.Google Scholar
16 For example: “expression of concern for the affairs of Chinese residing abroad still takes second place to the maintenance of good relations with the host nations concerned. Where relations are not particularly good, Overseas Chinese problems receive more attention, and actions against their interests may attract more vehement protests” (Somers Heidhues, Mary F., “Peking and the Overseas Chinese; the Malaysian Dispute,” Asian Survey (Berkeley, Calif.), Vol. VI, No. 5, pp. 285–286)Google Scholar; “Only the Chinese in countries hostile to the People's Republic, however, are called upon to be disobedient to their governments. Elsewhere, Chinese are encouraged to be inconspicuous, decent settlers” (Williams, Lea E., The Future of the Overseas Chinese in Southeast Asia (New York: McGraw Hill, 1966), p. 69)Google Scholar; “Peking's protests over anti-Chinese measures are made with great vehemence against governments aligned with the west …; they are non-existent or sotto voce against neutral regimes” (Willmott, W. E., “The Chinese in Southeast Asia,” Australian Outlook (Melbourne), Vol. 20, No. 3 (12 1966), pp. 260–261).Google Scholar
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19 The militancy of Chinese statements on Overseas Chinese policy reached a high point in the report of Liao Ch'eng-chih, then a Vice-Chairman of the OCAC, to the First Enlarged Conference of the OCAC in June 1951. See Jen-min jih-pao, 12 July 1951. Subsequently, the revolutionary content was progressively toned down, and when a new version of Liao's 1951 report appeared in October 1954, it was completely shorn of its revolutionary trimmings. See “Chung-hua jen-min kung-ho-kuo pao-hu kuo-wai hua-ch'iao ti cheng-tang ch'üan-li ho li-yi. Ch'iao-wu kung-tso ti hui-ku” (“The People's Republic of China protects the rights and interests of the Chinese resident abroad. A review of Overseas Chinese work”), by the Propaganda Team of the OCAC, Jen-min jih-pao, 6 10 1954, p. 3.Google Scholar
20 There was also the fact that the organizations responsible for Overseas Chinese affairs were preoccupied with the domestic scene, and even in this field, according to later admissions, policies had not been implemented correctly, and in some areas had not even penetrated to the basic level. See, for example, report to the First Session of the First National People's Congress (NPC) by Ho Hsiang-ning, then Chairman of the OCAC, in Jen-min jih-pao, 27 09 1954, p. 2.Google Scholar
21 Despite many claims that the MCP was the creature of Peking, an examination of these claims fails to reveal any substantiating evidence. Gene Hanrahan, for example, who is quoted by a number of other writers on this particular point, cites as evidence of the CCP's “hegemony” over the MCP an unidentified but “usually reliable source” to the effect that “the real command of the Malayan struggle is now (1954) based in Nanning, South China, functioning under a so-called ‘United Operations Department’ of the Chinese Communist Party” (The Communist Struggle in Malaya, New York, Institute of Pacific Relations, p. 80). In Hinton (Communist China in World Politics, p. 403) this becomes: “There can be no serious doubt that the MCP has always been and is still under Communist Chinese (not Soviet) influence, if not outright control.” Victor Purcell, on the other hand, possibly the leading authority in the field, pointed out in his revision of The Chinese in Southeast Asia that even in 1963 the question of external direction and control had still not been established (p. 329).Google Scholar
22 For a good example of the Chinese Government's refusal to commit itself, see a statement by Ho Hsiang-ning on the closure of two Chinese newspapers in Singapore, in Nan-fang jih-pao (Southern Daily) (Canton), 5 10 1950.Google Scholar
23 From the beginning of 1951, Chinese statements informed the Overseas Chinese that they would have to protect themselves, protests about deportations from Malaya were reduced to a formality and the CCP no longer demanded, as it had in 1949, that the deportees be allowed to return. From the middle of 1951, Chinese statements on foreign policy and Overseas Chinese policy tended to avoid all reference to the Malayan question or Chinese support for the Overseas Chinese struggle against imperialist oppression and persecution. For example, see Chou En-lai's statement at the National Committee of the Chinese People's Political Consultative Conference, in Hsüeh-hsi (Study), Vol. 5, No. 2 (16 11 1951), p. 7.Google Scholar
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25 P'i Liao chan-pao (Criticize Liao Combat Bulletin), 18 June 1967, translated in Survey of the China Mainland Press (SCMP) (Hong Kong: U.S. Consulate General), No. 4013 (1 09 1967), pp. 5–11Google Scholar. For a discussion of this document, see Stephen FitzGerald, “Overseas Chinese Affairs and the Cultural Revolution,” The China Quarterly, No. 40 (10–12 1969).Google Scholar
26 The details of this meeting were not given in the Chinese press, but in September 1954, Nehru put the substance of his views in a speech to the Lok Sabha. See Jawaharlal Nehru's Speeches, Vol. 3, 03 1953–08 1957 (New Delhi: Government of India Ministry of Information and Broadcasting, 1958), pp. 271–272.Google Scholar
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29 See So Hsiang-ning's New Year Broadcast to Overseas Chinese, in Ch'iao-wu fa-kuei hui-pien (Collected Laws and Regulations on Overseas Chinese Affairs), Vol. 1 (Peking: Lien-ho shu-tien, 1951), p. 6.Google Scholar
30 Between 1929 and 1941 remittances had ranged between U.S.$80 and $100 million annually, and in 1938 had reached $200 million. Hsin Chung-kuo kung-shang-yeh-chia ti tao-lu (The Path for Industrialists and Businessmen in New China) (Hong Kong: Hua-ch'iao ching-chi ch'u-pan she, 1950), p. 89.Google Scholar
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33 For a somewhat coloured account of some of these pressures, see Lu, Yu-sun, Programs of Communist China for Overseas Chinese (Hong Kong: The Union Research Institute, 1956).Google Scholar
34 Williams, , Future of the Overseas Chinese, p. 74. Williams defines his term as “the participation of Chinese in government and politics.”Google Scholar
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36 An analysis of the changing attitudes of Overseas Chinese is given in Wang, Gungwu, “Chinese Politics in Malaya,” The China Quarterly, No. 43 (07–09 1970).Google Scholar
37 For almost 12 months before September 1954, the Chinese Government made no major statement on external Overseas Chinese policy. In this period there were, however, two enlarged conferences of the OCAC, the Second, in November 1953, and the Third, in July 1954, and from subsequent reports it appears that major policy questions were discussed at both these conferences.Google Scholar
38 See report by Feng Pai-chü to the Overseas Chinese Dependants' Rural Production Conference, above, n. 32.Google Scholar
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41 The offer is discussed in Ho Hsiang-ning, “Kuan-yü shuang-ch'ung kuo-chi wen-t'i ti t'iao-yüeh ti t'an-hua” (“A talk on the Dual Nationality Treaty”), in Ch'iao-wu cheng-ts'e wen-chi, pp. 34–38.Google Scholar
42 Chou, En-lai's exchange with the Thais is discussed in David Wilson, “China, Thailand, and the Spirit of Bandung,” Part II, The China Quarterly, No. 31 (07–09 1967), p. 98.Google ScholarThe offer to the Philippines is reported in Jen-min jih-pao, 30 10 1955, p. 1. The cases of Singapore and South Vietnam are discussed in more detail below.Google Scholar
43 “Ho-p'ing hsieh-shang kuo-chi wen-t'i yu yi fan-li” (“Another example of solving international problems through peaceful consultation”), Jen-min jih-pao editorial, 23 04 1955.Google Scholar
44 In the only statement ever issued on this subject, in 1960, it was claimed that only 40 per cent. of the Overseas Chinese were pure Chinese nationals. See Fang, Fang, talk with domestic Overseas Chinese, in Ta kung pao, 23 12 1960, p. 1.Google ScholarThe Chinese census figure, calculated by “indirect investigation,” is given in Jen-min jih-pao, 1 11 1954, p. 1.Google Scholar
45 See, for example, Jen-min jih pao editorial, 19 06 1956.Google Scholar
46 A comprehensive summary of domestic Overseas Chinese policies in the mid-1950s is given in Fang Fang's report to the Fourth Enlarged Conference of the OCAC in June 1956, “Kuan-yü kuo-nei ch'iao-wu kung-tso ti jo-kan cheng-ts'e” (“Concerning certain policies in domestic Overseas Chinese work”), in Ch'iao-wu cheng ts'e wen-chi, pp. 47–65.Google Scholar
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50 This article was by Ch'en Pi-sheng, a member of the Nanyang Research Institute of Amoy University. Kuang-ming jih-pao, 17 12 1956.Google Scholar
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79 Ibid. p. 5, and Fu-chien ch'iao-hsiang pao, 3 09 1962, p. 1.Google ScholarPubMed
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82 Fu-chien jih-pao (Fukien Daily), 26 11 1957;Google ScholarTa kung pao, 15 12 1957.Google Scholar
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91 For example, Ch'iao-wu pao, 20 01 1957, p. 2; CNS, 20 May 1957.Google ScholarPubMed
92 Statement by Fei, Chen-tung, member of the OCAC and Director of the Peking Overseas Chinese Supplementary Middle School, in Ta kung pao, 18 07 1957.Google Scholar
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100 Letter to the Indonesian Foreign Minister, Subandrio, dated 15 03 1960, Ch'iao-wu pao, 20 March 1960, p. 2. See also on page 6 of the same issue a speech to a group of returnees from Indonesia by Liao Ch'eng-chih.Google ScholarPubMed
101 “Kuo-wu-yüan kuan-yü chieh-tai ho an-chih kuei-kuo hua-ch'iao ti chih-shih,” above, n. 77.Google Scholar
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