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Kallen is not his prisoner. She is under Nunally's authority
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Well, the Chinese turn her to Suzaku so she's his prisoner
,and because she was captured in China not Japan she's not in anyway under Nunnally's authority.
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Suzaku is overstepping his bounds by doing this, he's neither a general nor a governor, and PoW are under the jurstiction of the Governor-General,
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A KoR do have some power over people,Suzaku took control of the police and fireman in turn 13. Also he's Governor-assistant and is doing all the governing for Nunnally.