Updated October 18, 2019
Hong Kong’s Protests of 2019
Overview
several hours, an estimated 5,000 Hong Kong police
Every week since June 9, 2019, tens of thousands of Hong
officers in riot gear used tear gas, rubber bullets, pepper
Kong residents, or “Hong Kongers,” have held marches and
spray, and truncheons to disperse the demonstrators. Chief
rallies to protest the perceived erosion of their city’s “high
Executive Lam and Police Commissioner Steven Lo Wai-
degree of autonomy” promised by the 1984 Sino-British
chung characterized the day’s demonstration a “riot.” Two
Joint Declaration and Beijing’s efforts to “Mainlandize”
days later, Chief Executive Lam announced an indefinite
Hong Kong’s culture, economy, and society. The Hong
delay in Legco’s consideration of the extradition bill.
Kong government, led by Chief Executive Carrie Lam
Cheng Yuet-ngor, and China’s central government have
On the following Sunday (June 16), an estimated 2 million
characterized the largely peaceful protests as “riots” and
Hong Kong residents again peacefully marched from
“terrorism.” The Hong Kong Police Force has employed
Victoria Park to the HKSAR government headquarters; the
increasingly aggressive tactics to stop the protests, resulting
Hong Kong Police Force stated that 334,000 people
in allegations that its officers are violating international
participated. During the June 16 demonstration, the
standards for responding to civil demonstrations.
protesters called on Lam to comply with “Five Demands”
(see text box). After the protest march, Chief Executive
The continuing demonstrations may raise questions for the
Lam released a written apology, saying that she would pay
116th Congress about the future of U.S. policy toward Hong
more attention to the views of the Hong Kong people. Lam
Kong, a former British colony which was returned to China
has subsequently said she will formally withdraw the
in 1997. The United States-Hong Kong Policy Act of 1992
extradition legislation, fulfilling the first demand, but she
(Hong Kong Policy Act; P.L. 102-383; 22 USC Ch. 66, as
has repeatedly stated that she will not comply with the other
amended) calls on China to abide by the promises it made
four demands.
in the 1984 Joint Declaration. It also states that the United
States will afford the Hong Kong Special Administrative
The Protesters’ “Five Demands”
Region, or HKSAR, separate treatment from China unless
the President determines that Hong Kong is “not
1. Formally withdraw the extradition legislation
sufficiently autonomous to justify” such treatment.
2. Drop all charges against arrested protesters
3. Retract the characterization of protests as “riots”
Congress and the Trump Administration are considering
4.
what measures, if any, to take to help preserve Hong
Establish an independent investigation into police brutality
Kong’s autonomy and protect its “current social and
5. Implement the election of the Chief Executive and all
economic systems” as promised in the Joint Declaration.
Legco members by universal suffrage
Among the options under consideration is the Hong Kong
Human Rights and Democracy Act of 2019 (HKHRDA,
Since June 16, one or more large-scale demonstrations have
H.R. 3289, S. 1838) and the Placing Restrictions on
been held every weekend, and on some weekdays as well.
Teargas Exports and Crowd Control Technology to Hong
In many cases, after the formal demonstrations were over,
Kong Act (PROTECT HK Act, H.R. 4270).
some of the protesters marched to new locations or blocked
off streets, leading to the deployment of police officers in
Protests Overview
riot gear. The arrival of the police frequently has led to
On June 9, 2019, according to its organizers, an estimated
confrontations, and eventually the use of tear gas, rubber
1 million Hong Kongers participated in a peaceful march
bullets, and pepper spray to break up the protests. Two
from Victoria Park to the headquarters of the HKSAR
protesters have been wounded by officers firing live
government in opposition to proposed legislation that
ammunition from their service revolvers. The protesters
would have, among other things, allowed extradition from
have responded by donning makeshift riot gear and
Hong Kong to Mainland China (see CRS In Focus IF11248,
throwing bottles, bricks, and umbrellas at the police,
Hong Kong’s Proposed Extradition Law Amendments). The
leading to accusations of violence by both sides.
Hong Kong Police Force estimated 240,000 people attended
the event. The following day, Chief Executive Lam said
This is the first time Hong Kong residents have risen in
that her government planned to request Hong Kong’s
large numbers in protest against actions they see as eroding
Legislative Council (Legco) to take up consideration of the
the city’s autonomy. On July 1, 2003, an estimated 500,000
bill on June 12, despite the protest.
people rallied against a proposed anti-sedition law
introduced by then-Chief Executive Tung Chee-hwa; the
On June 12, tens of thousands of people surrounded the
bill was subsequently withdrawn. In 2014, the so-called
Legco building in opposition to the extradition bill. Legco
“Umbrella Movement” closed down major roads following
cancelled its session for the day. After a standoff lasting
a decision by China’s National People’s Congress Standing
Committee (NPCSC) placing unacceptable conditions on
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Hong Kong’s Protests of 2019
the nomination process in order for the Chief Executive to
China’s national anthem and flag. China’s central
be elected by universal suffrage.
government and the HKSAR government also have agreed
to allow up to 150 “Mainlanders” per day to permanently
Issues Motivating the Protests
settle in Hong Kong. Many Hong Kongers see this is a way
While the proposed extradition bill precipitated the
to undermine Hong Kong’s “current cultural system.”
continuing demonstrations, other long-standing issues are
motivating the protesters. These include the perceived
Hong Kong’s economy is also seen as undergoing a gradual
erosion of Hong Kong’s autonomy, the “Mainlandization”
“Mainlandization.” Most companies included in Hong
of the city, and worsening economic opportunities.
Kong’s Hang Seng Index are now Mainland companies.
Many of the stores in Hong Kong cater to Mainland tourists
Erosion of Hong Kong’s Autonomy
and traders who buy goods in Hong Kong for resale across
Hong Kong reverted to Chinese control on July 1, 1997,
the border. Hong Kong students compete with Mainlanders
under the terms of the “Joint Declaration,” an international
for places in schools and jobs after graduation. Since July 1,
treaty which promised Hong Kong a “high degree of
1997, Hong Kong housing prices have nearly doubled, but
autonomy” in its internal affairs. Many Hong Kongers
salaries for recent university graduates have remained
maintain that China’s central government and the HKSAR
nearly stagnant, making buying an apartment almost
government have undermined that autonomy. Even before
impossible for young people.
the HKSAR was formed, China’s central government
created a “provisional Legislative Council” to replace the
Implications for U.S. Relations with China
last Legco elected during British rule, claiming that changes
China has implied that the U.S. government is provoking
made by the British in the 1996 Legco election procedures
Hong Kong’s youth to participate in the protests, a claim
violated the provisions of the Joint Declaration.
Secretary of State Pompeo called “ludicrous.” Some experts
maintain that President Trump and his senior advisors have
Under the Basic Law, which set up Hong Kong’s governing
refrained from criticizing China’s treatment of Hong Kong
bodies and processes, HKSAR is supposed to have an
to avoid possible negative implications for the ongoing
autonomous judicial system. In January 1999, Hong Kong’s
Sino-U.S. trade dispute.
Court of Final Appeal issued a decision regarding the status
of Mainland children born to Hong Kong permanent
Implications for Taiwan
residents, ruling that Article 24 of the Basic Law granted
The Hong Kong protests are apparently having an effect on
these children the “right of abode” in Hong Kong. In June
Taiwan’s 2020 presidential elections. The “one country,
1999, the NPCSC issued its own “interpretation” of Article
two systems” model being used in Hong Kong (and Macau)
24, overruling the Court of Final Appeal.
was originally proposed by Deng Xiaoping for the potential
reunification of China with Taiwan. Popular support for
In 2014, then-Chief Executive Leung Chun-ying started
Tsai Ing-wen, Taiwan’s President and leader of the
discussion on electing the Chief Executive by universal
Democratic Progressive Party, has risen, in part due to her
suffrage, the “ultimate goal” according to the Basic Law.
strong support for the Hong Kong protesters.
On August 31, 2014, the NPCSC decided that election by
universal suffrage would be allowed if only two or three
Pending Legislation
candidates were nominated, and those candidates were
The House has passed the Hong Kong Human Rights and
approved by a “nominating committee” effectively
Democracy Act of 2019 (H.R. 3289) which would require
controlled by Beijing. In response, tens of thousands of
the Secretary of State to annually certify to Congress that
Hong Kongers shut down major roads in three central
Hong Kong is “sufficiently autonomous to justify special
business districts for nearly three months. Leung never
treatment by the United States for bilateral agreements and
introduced the election reforms.
programs.” It would also prohibit the denial of a visa to
enter the United States solely “on the basis of politically-
On November 7, 2016, the NPCSC issued a new
motivated arrest, detention, or other adverse government
interpretation of the Basic Law’s provision for oath-taking,
action.” The act would prohibit the issuance of a visa to
indicating that elected Legco members were to be
enter the United States and freeze the assets of any person
disqualified if they were not “sincere and solemn” or if they
“undermining fundamental freedoms and autonomy in
diverged from a proscribed script. In part relying on the
Hong Kong.” The Senate Foreign Relations Committee has
NPCSC interpretation, then-Chief Executive Leung
approved S. 1838, which differs from the House-passed act.
successfully sued to have six pro-democracy Legco
members disqualified.
In addition, the House has passed the Placing Restrictions
on Teargas Exports and Crowd Control Technology to
“Mainlandization”
Hong Kong Act (PROTECT HK Act, H.R. 4270) which
Many Hong Kong protesters also decry what they view as
would prohibit the export of riot control equipment,
the attempted “Mainlandization” of Hong Kong. The
munitions, and services to the Hong Kong Police Force and
HKSAR government has introduced education reforms,
Hong Kong Auxiliary Police Force. A similar bill has not
such as compulsory Mandarin language classes (Hong
been introduced in the Senate.
Kongers primarily speak Cantonese) and a “patriotic”
curriculum in Hong Kong’s primary and secondary schools.
Michael F. Martin, Specialist in Asian Affairs
China’s central government is requiring the HKSAR
government to pass laws prohibiting “disrespecting”
IF11295
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Hong Kong’s Protests of 2019


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https://crsreports.congress.gov | IF11295 · VERSION 3 · UPDATED

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