Executive Order 13936
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Executive Order 13936, entitled "The President’s Executive Order on Hong Kong Normalization", is an
executive order In the United States, an executive order is a directive by the president of the United States that manages operations of the federal government. The legal or constitutional basis for executive orders has multiple sources. Article Two of the ...
signed by U.S. President
Donald Trump Donald John Trump (born June 14, 1946) is an American politician, media personality, and businessman who is the 47th president of the United States. A member of the Republican Party (United States), Republican Party, he served as the 45 ...
on July 14, 2020. On the same day Trump had signed into law Hong Kong Autonomy Act, one of the laws from which the order derives authority. The act and the executive order are the U.S. response to the imposition of a controversial national security law in Hong Kong by the
Standing Committee of the National People's Congress The Standing Committee of the National People's Congress (NPCSC) is the permanent body of the National People's Congress (NPC), the national legislature of the People's Republic of China. It exercises the powers of the NPC when it is not in s ...
of China on June 30, 2020, which was described as "an unusual and extraordinary threat ..to the
national security National security, or national defence (national defense in American English), is the security and Defence (military), defence of a sovereign state, including its Citizenship, citizens, economy, and institutions, which is regarded as a duty of ...
,
foreign policy Foreign policy, also known as external policy, is the set of strategies and actions a State (polity), state employs in its interactions with other states, unions, and international entities. It encompasses a wide range of objectives, includ ...
, and
economy of the United States The United States has a highly developed mixed economy. It is the world's largest economy by nominal GDP and second largest by purchasing power parity (PPP). As of 2025, it has the world's seventh highest nominal GDP per capita and ninth ...
" in the preamble. According to Trump, he said the executive order was to "hold China accountable for its aggressive actions against the people of Hong Kong", and Hong Kong would be treated the same as China. The order directs government agencies to eliminate preferential treatments given to Hong Kong as compared to
mainland China "Mainland China", also referred to as "the Chinese mainland", is a Geopolitics, geopolitical term defined as the territory under direct administration of the People's Republic of China (PRC) in the aftermath of the Chinese Civil War. In addit ...
.


Background

The Hong Kong Policy Act of 1992 (HKPA), last amended by the Hong Kong Human Rights and Democracy Act of 2019, is the groundwork for U.S. policies that maintain relations with Hong Kong as separate from mainland China, to the extent consistent with the 1984
Sino-British Joint Declaration The Sino-British Joint Declaration was a treaty between the governments of the United Kingdom and People's Republic of China signed in 1984 setting the conditions in which Hong Kong was transferred to Chinese control and for the governance o ...
, after the
transfer of sovereignty over Hong Kong The handover of Hong Kong from the United Kingdom to the People's Republic of China was at midnight on 1 July 1997. This event ended 156 years of British rule in the former colony, which began in 1841. Hong Kong was established as a specia ...
. While existing U.S. laws and certain international agreements continue to apply to the Hong Kong Special Administrative Region after July 1997, section 202 of the act allows the U.S. president to issue an executive order to suspend such treatments if he determines that Hong Kong "is not sufficiently autonomous to justify treatment" different from that accorded China under U.S. laws. In May 2020, after the Chinese
National People's Congress decision on Hong Kong national security legislation The Decision of the National People's Congress on Establishing and Improving the Legal System and Enforcement Mechanisms for the Hong Kong Special Administrative Region to Safeguard National Security is a congressional resolution passed by the ...
was adopted, Secretary of State
Mike Pompeo Michael Richard Pompeo (; born December 30, 1963) is an American retired politician who served in the First presidency of Donald Trump#Administration, first administration of Donald Trump as director of the Central Intelligence Agency (CIA) fr ...
reported to the U.S. Congress that Hong Kong was no longer autonomous. Following the enactment of the Hong Kong national security law by
Standing Committee of the National People's Congress The Standing Committee of the National People's Congress (NPCSC) is the permanent body of the National People's Congress (NPC), the national legislature of the People's Republic of China. It exercises the powers of the NPC when it is not in s ...
in June 2020, the U.S. Congress promptly and unanimously passed the Hong Kong Autonomy Act.


Provisions

The measures introduced in the executive order include: *
Export control Export control is legislation that regulates the export of goods, software and technology. Some items could potentially be useful for purposes that are contrary to the interest of the exporting country. These items are considered to be ''controlled ...
**All of Hong Kong's license under the
Export Administration Regulations The Export Administration Regulations (EAR) are a set of United States export guidelines and prohibitions. They are administered by the Bureau of Industry and Security, which regulates the export restrictions of sensitive goods. The EAR apply ...
that are not available to China are to be revoked **The export of "U.S.-origin defense equipment" to Hong Kong is to be ended under the
Arms Export Control Act The Arms Export Control Act of 1976 (Title II of , codified at ) gives the President of the United States the authority to control the import and export of defense articles and defense services. The H.R. 13680 legislation was passed by the 94th ...
* Sanctions
The Secretary of the Treasury or the Secretary of State can impose sanctions on foreign persons who are: **engaged in developing, adopting, or implementing the Hong Kong national security law **engaged in undermining the democracy, threatening the autonomy, imposing censorship or committing serious human rights abuse in Hong Kong **leaders or officials of a government or private entities engaged in the above activities * Law Enforcement
Notice of intent is given to: ** suspend the Agreement for the Surrender of Fugitive Offenders ** terminate the Agreement for the Transfer of Sentenced Persons ** end the provision of training to the
Hong Kong Police The Hong Kong Police Force (HKPF) is the primary law enforcement, investigative agency, and largest Hong Kong Disciplined Services, disciplined service under the Security Bureau (Hong Kong), Security Bureau of Hong Kong. Pursuant to the one c ...
at the International Law Enforcement Academies * Travel and Immigration
Hong Kong is no longer treated as separate from China: ** for the purpose of numerical limitations on immigration under the
Immigration Act of 1990 The Immigration Act of 1990 () was signed into law by George H. W. Bush on November 29, 1990. It was first introduced by Senator Ted Kennedy in 1989. It was a national reform of the Immigration and Nationality Act of 1965. It increased total, o ...
** with respect to the duration of nonimmigrant visas under
Immigration and Nationality Act of 1952 The Immigration and Nationality Act of 1952 (), also known as the McCarran–Walter Act, codified under Title 8 of the United States Code (), governs immigration to and citizenship in the United States. It came into effect on June 27, 1952. The l ...
** for the
Diversity Immigrant Visa The Diversity Immigrant Visa program, also known as the green card lottery, is a United States government lottery program for receiving an immigrant visa followed by a permanent resident card. The Immigration Act of 1990 established the curre ...
program (commonly known as the green card lottery) ** for the eligibility of its residents to Visa waiver programs of Guam and the Northern Mariana Islands (both holders of HKSAR Passport and
British National (Overseas) passport The British National (Overseas) passport, commonly referred to as the BN(O) passport, is a British passport for people with British National (Overseas) status. BN(O) status was created in 1987 after the enactment of Hong Kong Act 1985, whose ...
are affected) *Other provisions **Hong Kong is to be treated as the same as China by the
Committee on Foreign Investment in the United States The Committee on Foreign Investment in the United States (CFIUS, ) is an inter-agency committee in the United States government that reviews the national security implications of foreign investments in the U.S. economy. CFIUS, led by the U.S ...
in its annual reporting **A notice of intent is to be given to terminate a 1989 bilateral agreement granting reciprocal exemption of income tax **The Fulbright exchange program with Hong Kong and China is to be terminated **The cooperation between the
United States Geological Survey The United States Geological Survey (USGS), founded as the Geological Survey, is an agency of the U.S. Department of the Interior whose work spans the disciplines of biology, geography, geology, and hydrology. The agency was founded on Mar ...
and the
Chinese University of Hong Kong The Chinese University of Hong Kong (CUHK) is a public university, public research university in Sha Tin, New Territories, Hong Kong. Established in 1963 as a federation of three university college, collegesChung Chi College, New Asia Coll ...
's Institute of Space and Earth Information Science is discontinued


Implementation


Sanctions

The United States imposed six rounds of sanctions under this Executive Order, four of which targeted Hong Kong officials.


2020

In August 2020,
Chief Executive A chief executive officer (CEO), also known as a chief executive or managing director, is the top-ranking corporate officer charged with the management of an organization, usually a company or a nonprofit organization. CEOs find roles in variou ...
Carrie Lam Carrie Lam Cheng Yuet-ngor ( Cheng; ; born 13 May 1957) is a retired Hong Kong politician who served as the fourth Chief Executive of Hong Kong from 2017 to 2022, after serving as Chief Secretary for Administration for five years. After g ...
and ten other
Hong Kong government The Government of the Hong Kong Special Administrative Region (commonly known as the Hong Kong Government or HKSAR Government) is the Executive (government), executive authorities of Hong Kong. It was established on 1 July 1997, following the ...
officials were sanctioned by the United States Department of the Treasury by
President Trump Donald John Trump (born June 14, 1946) is an American politician, media personality, and businessman who is the 47th president of the United States. A member of the Republican Party, he served as the 45th president from 2017 to 2021. ...
for "undermining Hong Kong's autonomy and restricting the freedom of expression or assembly". The sanction is based on the Hong Kong Autonomy Act and Lam would be listed in the
Specially Designated Nationals and Blocked Persons List The Specially Designated Nationals and Blocked Persons List, also known as the SDN List, is a United States government sanctions/embargo measure targeting U.S.-designated terrorists, officials and beneficiaries of certain authoritarian regimes, a ...
. *
Carrie Lam Carrie Lam Cheng Yuet-ngor ( Cheng; ; born 13 May 1957) is a retired Hong Kong politician who served as the fourth Chief Executive of Hong Kong from 2017 to 2022, after serving as Chief Secretary for Administration for five years. After g ...
, former
Chief Executive of Hong Kong The chief executive of the Hong Kong Special Administrative Region is the representative of the Hong Kong Special Administrative Region and head of the Government of Hong Kong. The position was created to replace the office of Governor of ...
, member of the Executive Council, member of the
Committee for Safeguarding National Security The Committee for Safeguarding National Security of the Hong Kong Special Administrative Region is a national security committee established by the Government of Hong Kong under the Article 12 of the Hong Kong national security law. The co ...
(CSNS), who pushed the
2019 Hong Kong extradition bill The Fugitive Offenders and Mutual Legal Assistance in Criminal Matters Legislation (Amendment) Bill 2019 () was a proposed bill regarding extradition to amend the Fugitive Offenders Ordinance () in relation to special surrender arrangements a ...
* Chris Tang, Commissioner of Hong Kong Police Force, member of the CSNS, under whose leadership the police besieged the Hong Kong Polytechnic University in November 2019 * Stephen Lo, Former Commissioner of Hong Kong Police Force, under whose leadership 4000 protesters were arrested and 1600 were injured * John Lee, Current Chief Executive of Hong Kong, member of the Executive Council, member of the CSNS, who introduced a new police unit dedicated to enforcing the Hong Kong National Security Law * Teresa Cheng, Former
Secretary for Justice The secretary for justice () is the head of the Hong Kong Department of Justice, the chief legal advisor to the chief executive of Hong Kong and the government, and the chief law enforcement officer of the Government of Hong Kong. Before th ...
of Hong Kong, member of the Executive Council, member of the CSNS * Erick Tsang,
Secretary for Constitutional and Mainland Affairs The secretary for Constitutional and Mainland Affairs is the head of the Constitutional and Mainland Affairs Bureau in Government of Hong Kong, which is responsible for promoting the Basic Law of Hong Kong, Basic Law, constitutional affairs, elect ...
of Hong Kong, member of the Executive Council * Eric Chan, Secretary General of the CSNS *
Xia Baolong Xia Baolong (; born 2 December 1952) is a Chinese politician. Originally from Tianjin, Xia began his political career in the Communist Youth League. He served as the vice mayor of Tianjin, governor and Party Secretary of Zhejiang province. Betw ...
, Director of the Hong Kong and Macao Affairs Office of the
State Council of China The State Council of the People's Republic of China, also known as the Central People's Government, is the chief administrative authority and national cabinet. It is constitutionally the highest administrative organ of the country and the e ...
* Zhang Xiaoming, Former deputy director of the Hong Kong and Macao Affairs Office of the State Council of China *
Luo Huining Luo Huining (; born 5 October 1954) is a senior member of the Chinese Communist Party who was the director of the Liaison Office of the Central People's Government in Hong Kong between 2020 and 2023. A native of Yiwu, Zhejiang, he was previous ...
, Former Director of the Hong Kong Liaison Office of the Chinese government * Zheng Yanxiong, director, Office for Safeguarding National Security in Hong Kong (OSNS) On November 9, 2020, four more individuals who were responsible for National Security were sanctioned: * Li Jiangzhou, deputy director of the OSNS * Edwina Lau, head of the National Security Division of the Hong Kong Police Force * Steve Li Kwai-Wah, Senior Superintendent of the Hong Kong Police Force * Deng Zhonghua, deputy director of the Hong Kong & Macau Affairs Office (HKMAO) On December 7, 2020, pursuant to the order, the
U.S. Department of the Treasury The Department of the Treasury (USDT) is the national treasury and finance department of the federal government of the United States. It is one of 15 current U.S. government departments. The department oversees the Bureau of Engraving and ...
imposed sanctions on the entire 14
Vice Chairpersons of the National People's Congress A vice is a practice, behaviour, Habit (psychology), habit or item generally considered morally wrong in the associated society. In more minor usage, vice can refer to a fault, a negative character trait, a defect, an infirmity, or a bad or unhe ...
of China, for "undermining Hong Kong's autonomy and restricting the freedom of expression or assembly": *
Cai Dafeng Cai Dafeng (; born 1960) is a Chinese politician and architect currently serving as chairperson of the Central Committee of the China Association for Promoting Democracy (2017–present) and Vice Chairperson of the 13th National People's Congres ...
* Cao Jianming *
Chen Zhu Chen Zhu (; born August 17, 1953) is a Chinese hematologist and molecular biologist who has served as the president of the Red Cross Society of China from 2015 to 2024. He previously served as vice chairman of the National People's Congress S ...
* Padma Choling *
Ding Zhongli Ding Zhongli (; born 14 January 1957) is a Chinese geologist and officeholder, who is the chairman of the China Democratic League and a vice chairman of the Standing Committee of the National People's Congress. Biography Ding was born in S ...
*
Hao Mingjin Hao Mingjin ( zh , c = 郝明金 , p = Hǎo Míngjīn ; born December 1956), a native of Jiaxiang, Shandong, is a Chinese politician who is a vice chairman of the Standing Committee of the National People's Congress and chairman of the China Na ...
* Arken Imirbaki * Ji Bingxuan * Shen Yueyue * Wan Exiang * Wang Chen *
Wang Dongming Wang Dongming ( zh, s=王东明, p=Wáng Dōngmíng; born July 1956) is a Chinese politician who has served since 2018 as the Vice Chairperson of the Standing Committee of the National People's Congress and the Chairman of the All-China Federat ...
*
Wu Weihua Wu Weihua (; born September 1956) is a Chinese plant cell physiologist, molecular biologist and politician who is the current chairman of the Jiusan Society (2017–present), and a vice chairman of the Standing Committee of the National People's ...
*
Zhang Chunxian Zhang Chunxian (; born 12 May 1953) is a Chinese politician best known for his term as the Party Secretary of Xinjiang from 2010 to 2016. From 2005 to 2010 he was the Party Secretary of Hunan Province. Early life Born into an ordinary family i ...


2021

On January 15, 2021, 6 more individuals were sanctioned: *
You Quan You Quan (; born January 1954) is a Chinese retired politician who was the head of the United Front Work Department and a secretary of the Secretariat of the Chinese Communist Party from 2017 to 2022. He previously served as Party Secretary of F ...
, former Vice Chairman of the Central Leading Group on Hong Kong and Macau Affairs * Sun Qingye (or Sun Wenqing), deputy director of the OSNS * Tam Yiu-Chung, Hong Kong delegate to the National People's Congress Standing Committee * Frederic Choi, official in the National Security Division of the Hong Kong Police * Kelvin Kong, official in the National Security Division of the Hong Kong Police * Andrew Kan, official in the National Security Division of the Hong Kong Police On 16 July 2021, all 7 deputy directors of the Hong Kong Liaison Office were sanctioned for their role in reducing Hong Kong's autonomy, pursuant to the 2020 Hong Kong Autonomy Act: * Chen Dong * Yang Jianping * Qiu Hong * Lu Xinning * Tan Tieniu * He Jing * Yin Zonghua


2025

On March 31, 2025, the Trump administration sanctioned six more security and police officials after Beijing and Hong Kong were accused of transnational repression for attempting to "to intimidate, silence, and harass 19 pro-democracy activists who were forced to flee overseas": * Dong Jingwei, director of the OSNS * Paul Lam, Secretary for Justice, sanctioned for developing or implementing the Safeguarding National Security Law * Sonny Au Chi-kwong, Secretary General of CSNS, former Under Secretary for Security * Raymond Siu, Police Commissioner of Hong Kong Police Force (HKPF) * Dick Wong Chun-chung, Assistant Commissioner of Police, National Security, former director of the HKPF College * Margaret Chiu Wing-lan, Assistant Commissioner of Police, National Security, former Chief Superintendent As a result of their inclusion in the
Specially Designated Nationals List The Specially Designated Nationals and Blocked Persons List, also known as the SDN List, is a United States government sanctions/embargo measure targeting U.S.-designated terrorists, officials and beneficiaries of certain authoritarian regimes, a ...
, all of the property and interests in property in the United States are blocked for the sanctioned and must be reported to the
Office of Foreign Assets Control The Office of Foreign Assets Control (OFAC) is a financial intelligence and enforcement agency of the United States Department of the Treasury, United States Treasury Department. It administers and enforces economic and trade economic sanctions, ...
. All United States citizens are prohibited from transactions (including the contribution or provision of funds, goods or services) involving the property or interest of the eleven sanctioned persons.


Country of origin marking of products

The executive order suspended the application of section 201(a) of HKPA to section 304 of the
Tariff Act of 1930 A tariff or import tax is a duty imposed by a national government, customs territory, or supranational union on imports of goods and is paid by the importer. Exceptionally, an export tax may be levied on exports of goods or raw materials and is ...
(19 U.S. Code § 1304), which stipulates that every article of foreign origin shall be marked the English name of the country of origin. On August 11, 2020,
U.S. Customs and Border Protection United States Customs and Border Protection (CBP) is the largest federal law enforcement agency of the United States Department of Homeland Security. It is the country's primary border control organization, charged with regulating and facilita ...
(USCBP) announced that the imported goods produced in Hong Kong could no longer indicate themselves as " Made in Hong Kong" after September 25, but must indicate "
China China, officially the People's Republic of China (PRC), is a country in East Asia. With population of China, a population exceeding 1.4 billion, it is the list of countries by population (United Nations), second-most populous country after ...
" as the
country of origin Country of origin (CO) represents the country or countries of manufacture, production, design, or brand origin where an article or product comes from. For multinational brands, CO may include multiple countries within the value-creation proce ...
instead. This reversed the practice announced by the then-
U.S. Customs Service The United States Customs Service was a federal law enforcement agency of the U.S. federal government. Established on July 31, 1789, it collected import tariffs, performed other selected border security duties, as well as conducted criminal i ...
in June 1997, which determined that goods from Hong Kong should continue to indicate their origin as "Hong Kong" after July 1, 1997. This change does not affect the reporting for purposes of assessing
duties A duty (from "due" meaning "that which is owing"; , past participle of ; , whence "debt") is a commitment or expectation to perform some action in general or if certain circumstances arise. A duty may arise from a system of ethics or morality, e ...
under the
Harmonized Tariff Schedule of the United States The Harmonized Tariff Schedule of the United States (HTSUS), also referred to as the Harmonized Tariff Schedule of the United States Annotated (HTSA), is the primary resource for determining tariff (customs duties) classifications for goods import ...
.


Suspension or termination of three bilateral agreements

On August 18, 2020, the Consulate General of the United States in Hong Kong notified the
government of Hong Kong The Government of the Hong Kong Special Administrative Region (commonly known as the Hong Kong Government or HKSAR Government) is the executive authorities of Hong Kong. It was established on 1 July 1997, following the handover of Hong Kong. ...
that the United States had suspended or terminated three bilateral agreements: for the surrender of fugitive offenders, for the transfer of sentenced persons and for reciprocal tax exemptions on income derived from the international operation of ships. The U.S. Department of State referred to this as part of the implementation measures set forth in the executive order.


Responses


Signing of the executive order

China's ministry of foreign affairs criticized the United States for interfering in "purely China’s internal affairs", namely the implementation of a law that safeguards the country's national security. The spokesperson urged the United States to "correct its mistakes", otherwise China will give "firm response" and impose sanctions on relevant U.S. persons. The HKSAR government, in addition to reiterating the necessity of the national security law, said the SAR's special status as a separate
customs territory A customs territory is a territory with uniform customs regulations and there are no internal customs or similar taxes within the territory. Customs territories may fall into several types: * A sovereign state, including a federation * A trade bloc ...
, under the "
One Country, Two Systems "One country, two systems" is a constitutional principle of the People's Republic of China (PRC) describing the governance of the special administrative regions of Hong Kong and Macau. Deng Xiaoping developed the one country, two systems ...
" principle, is conferred by the PRC Constitution and the
Hong Kong Basic Law The Basic Law of the Hong Kong Special Administrative Region of the People's Republic of China is a national law of China that serves as the organic law for the Hong Kong Special Administrative Region (HKSAR). With nine chapters, 160 article ...
. It warned the United States that unliteral measures that limit normal business activities would affect its own interests, and stressed that the measures imposed under Hong Kong Autonomy Act and the executive order "do not have any legal effect" on Hong Kong's financial institutions. It might also consider taking actions against the United States under the rules of the
World Trade Organization The World Trade Organization (WTO) is an intergovernmental organization headquartered in Geneva, Switzerland that regulates and facilitates international trade. Governments use the organization to establish, revise, and enforce the rules that g ...
(WTO).


Countersanctions

On August 11, 2020, China imposed sanctions without specification on eleven U.S. individuals, namely Senators
Marco Rubio Marco Antonio Rubio (; born May 28, 1971) is an American politician, lawyer, and diplomat serving since 2025 as the 72nd United States Secretary of State, United States secretary of state. A member of the Republican Party (United States) , Rep ...
,
Ted Cruz Rafael Edward Cruz (; born December 22, 1970) is an American politician and attorney serving as the junior United States senator from Texas since 2013. A member of the Republican Party, Cruz was the solicitor general of Texas from 2003 ...
,
Josh Hawley Joshua David Hawley (born December 31, 1979) is an American politician and attorney serving as the Seniority in the United States Senate, senior United States Senate, United States senator from Missouri, a seat he has held since 2019. A member ...
,
Tom Cotton Thomas Bryant Cotton (born May 13, 1977) is an American politician and United States Army, Army veteran serving since 2015 as the Seniority in the United States Senate, junior United States Senate, United States senator from Arkansas. A memb ...
and
Pat Toomey Patrick Joseph Toomey Jr. (born November 17, 1961) is an American businessman and politician who served as a United States senator from Pennsylvania from 2011 to 2023. A member of the Republican Party, he served three terms as the U.S. represen ...
, Representative Chris Smith, Carl Gershman (president of the
National Endowment for Democracy The National Endowment for Democracy (NED) is a quasi-autonomous non-governmental organization in the United States founded in 1983 with the stated aim of advancing democracy worldwide and counter communism, communist influence abroad, by prom ...
), Derek Mitchell (president of the
National Democratic Institute The National Democratic Institute (NDI) is a non-profit American non-governmental organization whose stated mission is to "support and strengthen democratic institutions worldwide through citizen participation, openness and accountability". It is ...
), Daniel Twining (president of the
International Republican Institute The International Republican Institute (IRI) is an American nonprofit organization founded in 1983 and funded and supported by the United States federal government. Most of its board is drawn from the Republican Party. Its public mission is to a ...
), Kenneth Roth (executive director of the Human Rights Watch) and Michael Abramowitz (president of Freedom House). The spokesman of the foreign ministry said the sanctioned "behaved badly" on Hong Kong-related issues. Rubio, Cruz and Smith had been put on a travel ban by China.


Criticism by the Hong Kong government

The Hong Kong government denounced the executive order as having "[politicized] juridical co-operation." As a result, the Hong Kong government announced that it had, at the central government's instruction, notified the U.S. Consulate General of the suspension of the agreements of surrender of fugitive offenders and of mutual legal assistance on criminal matters. Hong Kong's commerce secretary Edward Yau condemned USCBP's measures, saying labelling a product from Hong Kong as "made in some other place" was "calling white black". He added that this practice did not comply with WTO rules, as it undermined Hong Kong's status as a separate customs territory.


Extensions

U.S. President Joe Biden extended the executive order for another year on July 7, 2021, July 11, 2022, July 11, 2023, and July 12, 2024.


References

{{reflist 2020 in American law Executive orders of Donald Trump Hong Kong–United States relations China–United States relations United States sanctions Sanctions against China