Local Autonomy under Hierarchy: Steering policy implementation in the Xi Jinping era

Abstract

Through a comparison between policy documents in the Xi Jinping and Hu Jintao eras, and a thorough examination of three typical policy areas, this research investigates how much local autonomy is preserved in the Xi era on two dimensions — “initiative” and “immunity”; and explains how the policy process is influenced. By appropriately defining the two dimensions in the context of China and measuring them, the text analysis demonstrates that local autonomy in the Xi era has been largely constrained, as many studies argued. Moreover, the comparative analysis of the Classification of Domestic Waste, COVID-19 Pandemic Control and Business Environment Evaluation shows that even in the Xi era, different types of local autonomy are indeed still granted to local governments. Finally, through in-depth interviews, on-site observation and a close reading of relevant policy documents and secondary materials, this research traces the policy process of Business Environment Evaluation through the hierarchy, and documents how it is adapted for implementation in two distinct provinces according to their respective preferences. The findings reveal that even though local governments are given the initiative in conducting Business Environment Evaluation, it is difficult for provinces to balance between contradictory policy goals in Xi Jinping’s Top-Level Design era. The findings bring forward the core argument, local autonomy under hierarchy, which means during the Xi era, local autonomy is not only largely restrained but closely scrutinized by the central state. The central state could recalibrate the degree of granted autonomy according to its judgement of the linkage between a policy area and the interest of the political system. Under such a scheme, policy implementation is rarely effective. This research suggests that, faced with the challenge of the declining legitimacy of the Chinese political system, “local autonomy under hierarchy” is put forward as the Xi administration’s response. However, old problems in implementation persist as new ones arise: the huge pressure exerted from above is eventually undertaken by the grassroots government and the public. Effective policy implementation becomes hardly attainable.