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Singapore exemplifies what China strives for: resilient authoritarianism despite advanced development with good governance and political stability. But lessons Chinese observers draw from the Southeast Asian city-state have been selective, leading to misconceptions. We focus on three key areas in which Chinese observers claim inspiration from the “Singapore model.” The first, Singapore's “Asian values” discourse which is seen to provide an ideological defense of non-democratic rule, overestimates the impact of top-down conservative culturalism while underestimating the difficulty of propagating Confucianism in officially still communist China. Second, while elections in Singapore are seen to bolster the ruling People Action Party's legitimacy in Singapore, they have been implemented to such a limited extent in China that any legitimation gain is unlikely. Finally, the chief lesson derived from Singapore's fight against corruption, the importance of a committed leadership, ignores the importance of the rule of law in Singapore, a legacy of colonialism very different from China's post-totalitarian trajectory.
Singapore's political system is sometimes criticized by proponents of liberal democracy as being highly authoritarian and inhibiting of individual freedom. Yet, as the recent 2015 general elections show, Singaporeans have largely consented to such a model as a legitimate social contract between themselves and the government. Given that the Singapore model is widely studied by Chinese officials as a positive pattern for governance, what do the latest results say about the future of the Chinese governing system, and to what extent is the Communist Party able to wield power while catering to populist sentiments, in particular the achievement of the Chinese dream?
Over the past three decades, China has shown tremendous interest in the “Singapore model” through its sending of tens of thousands of cadres to Singapore for executive training and graduate education. Although this phenomenon has been studied, no attention has been drawn to the perspectives of those mid-level cadres who took part in the training and what those perspectives might imply. Utilizing a unique dataset of over 1,350 mid-level cadres graduating from the “Mayors’ Class” in Singapore from 1995 to 2016 and follow-up surveys and interviews, this article intends to fill this gap. We found that the most appealing characteristics of the “Singapore model” for these mid-level officials lay in practical governance lessons and their potential transferability rather than in ideologies. This finding challenges conventional wisdom that the most plausible rationale of China's learning from Singapore is political. We also examine Xi Jinping's view of Singapore and its relevance to China's latest national agendas in building a “learning nation” and strengthening the CCP's resilience through anti-corruption and intra-party regeneration. The conclusion places the China–Singapore case within the context of the changing trend of transnational knowledge transfer in the non-Western world.
This special section deals with China's longstanding fascination with Singapore's development experience that has preoccupied post-Maoist leaders from Deng Xiaoping to Xi Jinping despite the obvious differences between the tiny Southeast Asian city-state and the most populous country on earth. In particular, there is great Chinese interest in Singapore's success in combining effective governance and efficient state capitalism with stable one-party dominant rule. As a consequence, Chinese observers paid much less attention to electoral democracies that were well-governed states with mature economies.
China can be described as a “learning state” which has adapted to changing conditions and frequently turned outward for lessons. In recent years, Sweden and Singapore have drawn particularly strong interest from Chinese academics because the two countries represent two different “third ways” between Communism and capitalism and have been useful for developing a socialism “with Chinese characteristics.” Sweden is seen to symbolize the ideals of social equity and harmony while Singapore is seen as a model of authoritarian state-capitalism. China's transformation has resembled the Southeast Asia city state's model more than the Scandinavian social democratic model. Since Xi Jinping assumed power in 2012, interest in Sweden has reached a nadir, while attentiveness to Singapore has peaked. Although Chinese state-capitalism faces many challenges, including rising inequality and persistent corruption, it will be difficult to find an alternative role model that can successfully combine one-party rule with economic modernization.
How does China promote its military officers? We present a qualitative study on the determinants (connections versus performance) of the selection of military officers. Drawing on 48 in-depth interviews with serving and retired military officers, we argue that the inability of the rule-based personnel system to assess candidate performance (professional competence and political integrity) leads to the rise of the informal institution of guanxi – a Chinese version of personal connections – in promoting military officers. Guanxi both substitutes for and competes with the formal personnel system. Information received through guanxi networks is used by superiors to evaluate subordinates’ professional competence and political integrity. Guanxi is also used by corrupt officers to distort democratic procedures and facilitate the buying and selling of military positions. We conclude that the co-existence of a rule-based personnel system and guanxi leads superiors to promote competent candidates within their guanxi networks.
This paper provides an analytical review of the social science literature on guanxi. The focus of this review is on the prevalence and the increasing significance of guanxi during China's post-1978 reforms, which were implemented to move the country towards a market economy. Since then, researchers have engaged in debates on what guanxi actually means to Chinese people in the past and today, how it has been adaptive to ongoing institutional transformations, and why its influence in economic, social, and political spheres can stabilize, increase or decrease with market reforms and economic growth. The author provides a synthesis of these debates before offering a theoretical framework which provides an understanding of the dynamics of guanxi through the changing degrees of institutional uncertainty and market competition. Survey findings on the increasing use of guanxi in labour markets from 1978 to 2009 are presented to illustrate the usefulness of this framework. In the conclusion, the author argues that guanxi is a five-level variable, and that the nature and forms of guanxi influence are contingent upon whether guanxi is a tie of connectivity, a sentimental tie, a sentiment-derived instrumental tie, an instrumental-particular tie, or an obligational tie that facilitates power and money exchanges. This five-level conceptualization is aimed at advancing future scholarship of guanxi in China's rapidly changing society.
In most non-democratic countries, today governing forty-four percent of the world population, the power of the regime rests upon a ruling party. Contrasting with conventional notions that authoritarian regime parties serve to contain elite conflict and manipulate electoral-legislative processes, this book presents the case of China and shows that rank and-file members of the Communist Party allow the state to penetrate local communities. Subnational comparative analysis demonstrates that in 'red areas' with high party saturation, the state is most effectively enforcing policy and collecting taxes. Because party membership patterns are extremely enduring, they must be explained by events prior to the Communist takeover in 1949. Frontlines during the anti-colonial Sino-Japanese War (1937–1945) continue to shape China's political map even today. Newly available evidence from the Great Leap Forward (1958–1961) and the Cultural Revolution (1966–1976) shows how a strong local party basis sustained the regime in times of existential crisis.
This study illuminates the important yet under-studied phenomenon of industrial transfer in China: the migration of capital and investment from wealthy coastal areas into poorer central and western provinces, beginning in the 2000s. By 2015, the value of domestic investment in five central provinces alone was 2.5 times that of foreign investment throughout China. Compared to the original “flying geese” model of tiered production in Asia, China's experience is distinct in three ways: (1) industrial transfer occurred domestically, rather than across nations; (2) sub-national transfer followed cross-national transfer; and (3) industrial migration is accompanied by a delayed replication of government policies and practices. While coastal locales today resolve to expel low-end industries, inland governments cannot afford to be selective and have only recently adopted the aggressive investment promotion tactics that coastal cities abandoned years ago. Policy diffusion is delayed as policy adoption depends on economic conditions, which vary widely across China and change over time.
This paper explores the emergence of a highly networked and capable non-governmental organization (NGO) community in disaster relief in China. It provides a review of the growth of non-governmental actors in the relief field since the 2000s and examines the most important platforms and networks in the field, focusing on their strategies of maintaining a broad-based partnership, developing their own capacity, and enhancing overall inter-organizational connectivity. With an in-depth look at a successful joint non-governmental relief operation in Lushan in 2013, the paper also explicates how NGOs can break the state monopoly over disaster information management, public donations and relief operations. This research finds that during crisis times, non-governmental actors carry out relief missions effectively in parallel with state agencies. The rise of non-governmental disaster relief sheds light on one of many trajectories of civil society development in China where social autonomy is earned by innovation, public support and improved capacity.
Rank-and-file party members serve not only to implement distinctively Chinese policies, such as the one-child policy. They are also involved in fulfilling universal state-building tasks, such as tax collection. To maintain the material base of their polity, state-builders everywhere need to find ways to raise fiscal resources. In transition economies like China, tax extraction runs into problems of asymmetric information coupled with administrative transaction costs that are high compared to the tax potential: In the rural economy, small sums are extracted from numerous individuals engaging in increasingly diverse economic activities. In the urban economy a large part of the economic activity occurs in the informal sector, where small and medium-sized companies come and go. The argument of this chapter applies to both sectors: Party networks help the state to extract resources, either by convincing and coercing citizens to contribute to common projects, or more generally by solving severe asymmetric information problems between the lowest level of the state hierarchy and grassroots society, at low cost. As a result, the state is better at extracting fiscal resources in places with dense party member networks, both in rural and in urban areas. In short, local party organizations help to maintain the material foundation of the People's Republic.
This chapter contrasts with – but by no means contradicts – conventional views of authoritarian regime parties as networks for patronage distribution. One exemplary model, which incorporates leading research on the functions of parties in authoritarian polities, analyzes the dictator's commitment problem vis-a-vis his followers and describes regime parties as tools serving to effectively share the benefits of power. In a nutshell, the patronage approach to regime parties holds that party members are politically loyal in exchange for material benefits. This approach implies that in time of crisis, when the state has fewer benefits to distribute, the loyalty base of the party quickly dissipates, so that parties would be of limited use to authoritarian regimes. Based on this observation, researchers have questioned whether the patronage approach can fully explain the usefulness of parties for authoritarian regimes, pointing to the importance of understanding the nonmaterial sources, such as legitimacy based on historical achievements and the way in which regimes mobilize the resources on which they rely in the first place.
China's authoritarian government has been successful in exercising authority over much of the vast East Asian landmass, partly because it was able to take advantage of the grassroots presence of its Leninist party organization. The one-child policy, one of the most ambitious policies of the twentieth century, could not have been so effectively implemented if it had not been for the CCP's rank and file, present in the villages and the factories throughout the country. Similarly, tax collection benefits from the presence of party members at the grassroots level. In fiscal terms, the costs of party members’ informal privileges are small compared to the gains associated with the activities of local party members. In the cities and in the countryside, across various types of tax revenues, party members help to increase taxation rates, substantively contributing to the material base of the People's Republic by alleviating asymmetric information problems. Having a strong party presence at the grassroots helps enforcement.
The central claim that the party's rank and file functions as faithful implementers, deployed for tasks of the highest priority, must be refined in two respects. First, historically, the Great Leap Forward appears as an instance when, rather than enforcing central policy, the most committed party members resisted it. This was possible only because at the time the CCP had not yet entirely morphed from a revolutionary party to a party in power. Less than ten years after risking their lives for the Communist cause, some party members retained a strong revolutionary commitment, which motivated the high-risk behavior of foot-dragging. In a very limited way, revolutionary zeal allowed the party to function as a self-corrective device, although on the whole resistance was rare and could not prevent tens of millions of deaths. Second, another refinement concerns the function of the party in times of crisis, when rank-and-file members go far beyond their ordinary role of implementing policies. During the severe turmoil of the Cultural Revolution, when Mao called on ordinary people to attack the institutions of the party state, CCP members were left without clear instructions.
To achieve effective authoritarian governance, the best regime party is not one that slavishly implements policies, but one that functions as a self-corrective device, where disobedience limits the devastation brought about by bad policies that delegitimize the regime. Generally speaking, as the result of Leninist discipline, the CCP is not such a party. However, this chapter suggests that China's Great Leap Forward (1958–1961), along with its horrific famine, is a partial exception where the strongest local party cells slowed down implementation. Such party cells were disobedient, because the catastrophic movement occurred less than a decade after the Communist takeover, for which some cadres had risked their lives. Only because at that point in time the CCP's local leadership had not yet fully transformed itself from a party-of-revolutionaries to a party-in-power could we observe foot-dragging. In order for party members to push back, it took policies that were not just bad, but deadly. The pushback against the policy was the exception rather than the rule and had a statistically significant yet substantively small effect. All of this does not bode well for the party: The CCP is closer to an unquestioning implementer than an effective self-corrective device. This sobering result points to the institutional limits inherent to authoritarian regime parties.
Chapters 3 and 4 have shown that strong party grassroots help with implementation. Chapter 8 shows how the party grassroots contributed to regime survival in the midst of the Cultural Revolution turmoil, because party members acted on their own initiative in the interest of political stability. This chapter suggests that in at least one historical instance, some members dragged their feet on self-destructive central policies, thereby (marginally) dampening their catastrophic impact. Only because local experiences of the revolution were still fresh, its legacy influenced the behavior of local cadres, rank-and-file party members, and – possibly to a lesser extent – ordinary citizens. The following Section 7. 1 discusses the Great Leap policies. Section 7. 2 describes local variation in policy implementation and proposes a nuanced hypothesis about this variation, to be tested in Section 7. 3.