China and Eurasia Forum Quarterly, Volume 4, No. 2 (2006) p. 19-24© Central Asia-Caucasus Institute & Silk Road Studies ProgramISSN: 1653-4212

East Turkestan Terrorism and the TerroristArc: China’s Post-9/11 Anti-Terror Strategy

Pan Guang

Anti-terrorism has become an important part of China’s domestic anddiplomatic agenda. China’s anti-terrorism campaign started even before9/11, but it was only after the attacks that China participated fully andbecame a significant player in the international anti-terror coalition. Thishas its historical roots and theoretical basis. With reform and opening-upunfolding under Deng Xiaoping’s leadership in the 1980s, Chinaexperienced rapid economic growth, combined with an influx of variousexternal influences into China. Some violent and terrorist activities,mostly with economic motivations and criminal elements began to occur.In this period, hostage taking, bank robberies, and armed drug-trafficking became ever more frequent. Most of these activities took placein the eastern coastal regions, where the economy and overseasconnections are more developed, although drug-trafficking generallyoriginated from the north-west (Afghanistan-Xinjiang) and south-west(the triangle region-Yunnan). To be sure, terrorist actions of a politicalnature were also ubiquitous, including the recurrent hijacking of planesacross the Taiwan Strait. On the whole, however, the Chinesegovernment labeled these as ordinary criminal acts rather than terroristacts. The Chinese authorities began to feel the urgency of anti-terrorismonly after terrorist violence emerged with the separatist “East Turkestan”movement in Xinjiang in the early 1990s.

East Turkestan Separatism: The Historical Basis

The current activities of the “East Turkestan” separatism in China can betraced to the great uprising of the Hui people in the mid-19th century. Atthe time, Yaqub Beg, a Muslim leader who led the expedition against therule of the Qing dynasty, for 10 years (1867-77), turned parts of Xinjiang

Pan Guang is the Director and Professor of Shanghai Center for International Studiesand Institute of European & Asian Studies at Shanghai Academy of Social Sciences, PRC.He is also a Senior Advisor of the China and Eurasia Forum and Senior Advisor on Anti-terror Affairs to Shanghai Municipality and Ministry of Public Security of PRC. He wasnominated by UN Secretary-General Kofi Annan as member of the High-Level Group forthe Alliance of Civilizations in 2005.

Pan Guang

THE CHINA AND EURASIA FORUM QUARTERLY ·

Volume 4. No.2

20into a kingdom independent from Qing control. Nevertheless, it was inthe 1930s and 1940s that a so-called “East Turkestan” state was reallyestablished. Uighur separatists established the Turkish Islamic Republicof East Turkestan in November 1933, but the regime collapsed in less thanfive months. In November 1945, the Eastern Turkestan Republic was setup in Yining, but was also relatively short-lived and lasted only for half ayear. In the four decades from the founding of the People’s Republic of China in 1949 to the withdrawal of the Soviet troops from Afghanistan in1989, “East Turkestan” separatists rarely undertook armed activitieswithin Chinese borders. However, the end of the “jihad” against Soviettroops in Afghanistan combined with the chaotic situation unfoldingthere in the early 1990s somewhat spilled over, providing separatists withan opportunity of waging a “jihad” in Xinjiang. In April 1990, separatistslaunched an attack in Baren in Akto county of Xinjiang, killing nearly 60civilians and policemen. This turmoil represented the beginning of terrorist violence committed by the “East Turkestan” group.After 1996, with the support from the Taleban and Al-Qaeda,religious extremists and terrorist organizations in Central Asia built uptheir cross-border networks. Certain organizations of the “EastTurkestan” campaign like the “East Turkestan Islamic Movement”became very active among these cliques, and Osama bin Laden hasreportedly been quoted as saying: “I support your jihad in Xinjiang[referring to ETIM].”In order to cope with these terrorist challenges that threatenedChina’s security and unity, the Chinese authorities began to formulate ananti-terrorism strategy seriously, focusing mainly on combating “EastTurkestan” terrorist forces to ensure the security and stability of Xinjiang. Anti-terror corps were organized in Xinjiang, the first amongChina’s provinces and autonomous regions, under the fiscal support of the central government. Meanwhile, as the “East Turkestan” movementhad international connections and was transnational in nature, thisinadvertently implied that any Chinese anti-terrorist strategy was forcedto rely on international cooperation. Indeed, this became one of thedriving forces behind the institutionalization of the “Shanghai Five” andthe Shanghai Cooperation Organization (SCO) mechanisms. From theChinese perspective, it was of particular importance that China couldnow, within the framework of the organization, count upon the supportof the other five member states (Kazakhstan, Kyrgyzstan, Tajikistan,Uzbekistan and Russia) in its campaign against the “East Turkestan”movement.

East Turkestan Terrorism and the Terrorist Arc:China’s Post-9/11Anti-Terror Strategy

THE CHINA AND EURASIA FORUM QUARTERLY ·

May 2006

China’s Anti-Terror Strategy After 9/11

Shortly after 9/11, China established its National Anti-TerrorismCoordination Group (NATCG) and Secretariat led by Hu Jintao. TheNational Ministry of Public Security also simultaneously launched ananti-terrorism bureau responsible for the research, planning, guidance, co-ordination and undertaking of the national anti-terror agenda. TheNATCG’s office was subordinated under the anti-terror bureau of theNational Ministry of Public Security. In addition, all the provincesfollowed suit by organizing their own anti-terrorist co-ordination groupsand offices, with Beijing, Shanghai, Guangdong, Xinjiang and Tibet atthe forefront. In view of these expanded efforts, China has also maderemarkable achievements in strengthening its anti-terror mechanismsince 9/11. The capabilities of the “East Turkestan” group were severelyweakened following the U.S. intervention in Afghanistan and thesubsequent strikes on terrorist bases. However, following the U.S.-ledwar in Iraq, the group has somehow revived, coinciding with theresurrection of the Taleban and Al-Qaeda, and the security situation inCentral Asia has deteriorated again. To counter the emerging threats inthe post-9/11 environment, the following measures have been taken bythe NATCG and the National Ministry of Public Security.Firstly, an early warning and prevention system has been set up. Theobjective of this system is to monitor the activities of terrorist groups,forestall terrorist attacks, and cut terrorist financing.Secondly, a quick response mechanism is now in place. The purposeof this is for relevant authorities to take speedy and determined measuresto neutralize perpetrators, restrict their fallout, and work for a quick resolution in the event of a terrorist strike. China has greatly enhancedthe capabilities of its quick-response anti-terror troops over the past twoyears both in personnel and equipment. They are now deployed not onlyin Xinjiang, but also in almost every provincial capital city. China hasalso participated in various bilateral and multilateral anti-terror exercises.For example, China conducted a joint bilateral anti-terror militaryexercise with Kyrgyzstan in October 2002. In August 2003, China took part in the multilateral anti-terror military exercise dubbed “United-2003”with other fellow SCO members. Some of the more recent exercisesinclude “Great Wall-2003” held on September 26, 2003 attended byPresident Hu Jintao, as well as “Peace Mission 2005” under SCO auspices.Thirdly, a crisis control and management system is now beingestablished. This system focuses on damage-control of human losses andinfrastructural damages in the wake of terrorist attacks or during theirinitiation. China, drawing especially upon the experience of authoritiesin New York City handling the 9/11 disaster, seeks here to improve theco-ordination of policemen, fire-fighters, armed troops, civilian rescuers