Disseminating the policy narrative of ‘Heritage under threat’ in China

ABSTRACT

Originating from within the UNESCO, narratives on ‘heritage under threat’ tell the story of how and why intangible cultural heritage (ICH) practices are valuable, why are they disappearing, and how they can be protected from destruction. Focusing on PR China, this paper conducts a frame analysis to identify narratives on ‘heritage under threat’ as employed by the UNESCO, the Chinese party-state, and academics. The study argues that while policy narratives in any country undergo a process of congruence-building, circulation, and implementation, these processes take distinctive forms in authoritarian countries due to the states’ discursive and political monopoly: While non-state actors are involved, the state primarily steers the appropriation process. Nevertheless, once established, the policy narrative transforms across time and space, enabling local actors to use it to pursue their own interests.     

Change without Transformation: Social Policy Reforms in the Philippines under Duterte

This article explores social policy reforms championed by the Philippines’ strongman president Rodrigo Duterte during his first three years in office (2016–19), as a case for examining the transformative potential of social policy expansion under rising new right-wing and authoritarian leaders. By showing how political economy and historico-institutional conditions foreclose the transformative possibilities of the social policy changes effected by Duterte, the author offers a critique of current tendencies in global development discourses to treat all forms of social policy expansion as progressive. In the Philippines case, there is no progressive ideology guiding the reforms, nor are there political movements overseeing the expansion of social rights now inscribed in law. Rather, the reforms institutionally entrench a minimalist approach to universalism and strengthen the foothold of poverty targeting as an organizing principle of social provisioning. Social policy expansion under Duterte manifests aspects of the ‘dark side’ of social policy reforms during the current global political moment, including the use of such policy reforms to legitimize a conservative and authoritarian political order, and the functionality, across the political spectrum, of ‘narrow universalism’ — the type championed by international development agencies — which serves to deepen segmentation in social provisioning.     

Securing China's core interests: the state of the debate in China

As China has grown stronger, some observers have identified an assertive turn in Chinese foreign policy. Evidence to support this argument includes the increasingly frequent evocation of China's ‘core interests’—a set of interests that represents the non‐negotiable bottom lines of Chinese foreign policy. When new concepts, ideas and political agendas are introduced in China, there is seldom a shared understanding of how they should be defined; the process of populating the concept with real meaning often takes place incrementally. This, the article argues, is what has happened with the notion of core interests. While there are some agreed bottom lines, what issues deserve to be defined (and thus protected) as core interests remains somewhat blurred and open to question. By using content analysis to study 108 articles by Chinese scholars, this article analyses Chinese academic discourse of China's core interests. The authors’ main finding is that ‘core interests’ is a vague concept in the Chinese discourse, despite its increasing use by the government to legitimize its diplomatic actions and claims. The article argues that this vagueness not only makes it difficult to predict Chinese diplomatic behaviour on key issues, but also allows external observers a rich source of opinions to select from to help support pre‐existing views on the nature of China as a global power.     

Policy coordination and selective corruption control in China

In autocracies facing widespread corruption, the allocation of the scant attention available for fighting corruption strongly affects corruption control. Although research has found that authoritarian regimes tend to fight corruption selectively, it is unknown whether and how autocracies allocate attention across different policy areas to combat corruption. We propose that single-party authoritarian regimes can steer anticorruption attention to the policy domains prioritized by the central authority through the mechanism of cross-organizational policy coordination. Using original datasets compiled from Chinese governmental and procuratorial policy papers from 1998 to 2016, we demonstrate that Chinese prosecutors direct anticorruption attention to the policy domains accentuated in the central government's major reforms. Our field interviews support this finding and reveal possible disruption of anticorruption efforts in policy domains falling off the central government's top list. Thus, we extend the research on political influence over anticorruption agencies and show that single-party regimes can instrumentalize anticorruption to serve the government's policy agenda, driving the allocation of limited anticorruption attention across policy areas.     

Punctuated Equilibrium and the Information Disadvantage of Authoritarianism: Evidence from the People's Republic of China

According to the punctuated equilibrium thesis, government attention allocation alternates between long periods of stasis and dramatic spurts of disequilibrium because democratic institutions enable minority groups to obstruct change. This article presents a critical discrepancy in contemporary China, where punctuated instability is significantly more intense despite a lack of democratic institutions to empower minority obstructionism. Our empirical analysis further reveals that punctuated intensity goes even higher for Chinese regions facing fewer signs of social discontent. We attribute the intensification of punctuated dynamics to an information disadvantage arising from the lack of diverse, independent sources of information under authoritarianism. Our finding contributes to punctuated equilibrium theory by underlining the function of opposition groups not only as obstructionists but also as challengers to policy priorities. By marginalizing these challengers, authoritarian institutions confine attention to known problems, leading to serious delays in the discovery of and adjustment to emerging issues.     

From Blind Spot to Media Spotlight: Propaganda Policy,Media Activism and the Emergence of Protest Events in the Chinese Public Sphere

Abstract

In recent years, popular protest in China has emerged from a state of near-invisibility. Drawing on a diachronic analysis of news media coverage, this paper traces how a number of major protest events gradually entered the Chinese media’s spotlight and came to be portrayed in an increasingly protester-sympathising fashion over the course of the Hu-Wen administration. It argues that these changes were triggered by structural transformations of the Chinese public sphere, but underlines that deliberate policy choices by the political leadership served as a crucial agent of change. Facing proliferating unrest and an increasingly unimpeded flow of information, the central authorities have gradually shifted propaganda policy from a suppressive to a more proactive approach. They have thereby created critical opportunities for Internet users and investigative journalists to push the envelope further towards protester-sympathising accounts. The development is significant as there are good reasons to surmise that increased media coverage has exacerbated the dynamics of popular contention. Theoretically, it deserves to be noted that non-inevitable choices by an authoritarian leadership have led to an outcome in which media coverage of citizens who challenge the state on the streets has become substantially more frequent and positive than before.     

From Revanchism to Ambivalence: The Changing Politics of Street Vending in Guangzhou

By focusing on Guangzhou's street‐vending policy transformation, this article explores how exclusionary practices of urban politics in China are undermined by those who it seeks to exclude and the progressive political climate that questions the exclusionary framework. The exclusion of street vendors in Guangzhou has been led by the National Sanitary City campaign as a revanchist project. It has been discovered that while the exclusionary strategies are rendered difficult to operate due to the resistance of street vendors who develop a flexible, individualized and small‐scale activism to maintain their livelihoods, the discourse of social harmony at national level has driven local authorities to seek alternatives expected to alleviate social resistance and address people's livelihoods. However, rather than an overturn of the punitive framework, an ambivalent approach, recognized in a recent critique of revanchism, has been adopted to mediate the tension between the needs to retain attractive city images and address the livelihoods of the poor in Chinese cities.     

What do we know about the punctuated equilibrium theory in China? A systematic review and research priorities

The punctuated equilibrium theory (PET) shows that government policy is mostly stable with occasional drastic change, which scholars attribute to institutional friction and limited information processing capacity. Although the existing PET literature predominantly focuses on democracies, scholars have started to apply the theory to authoritarian countries. Autocracies are a fertile testing ground for the theory's underlying mechanisms because they appear to experience less institutional friction but more informational restrictions than democracies. However, PET studies on autocracies are still rare. To deepen our understanding of the PET and the policy process beyond democracies, we conduct a systematic review of 88 Chinese language PET journal articles. We show that Chinese language PET research is increasing. Contrary to the English language PET literature, most Chinese studies are qualitative, while a key similarity is the weak operationalization of PET core concepts. The reviewed studies confirm a punctuated equilibrium pattern of policymaking in China but provide only limited evidence for more intense punctuations compared with democracies. Future PET research on China ought to use long-term data sets and examine institutional friction and information processing by policymakers. We also argue for more international exchange and comparative research to advance our understanding of the policy process in China and other autocracies.     

Assessing China’s response to the South China Sea arbitration ruling

Many international legal experts believe that the Philippines v. China arbitration award of 12 July 2016 represents a game changer for South China Sea dispute settlements because the award has brought a breathtaking legal clarity to the complex disputes. This article argues that the sweeping nature of the award had a very paradoxical effect on Chinese policy. The arbitration ruling has led to the hardening of China’s claims, but it has also raised a new readiness among Chinese policymakers to renew negotiations. The sweepingness of the award makes it hard for the Philippines to reach a negotiated compromise with China on the basis of the award, but it also presents a surprising political opportunity in regional politics for the major actors involved to lower tensions and recalibrate policies. Although China’s new readiness to negotiate is welcome, the overall impact of the three-and-a-half-year-long arbitration is likely to create a deadlock in negotiations in the near future. Paradoxically, this may raise the importance of political and power-centred approaches to regional dispute settlements, as the legal approach embodied by arbitration continues to meet Chinese defiance.     

东西对话：中国政治地理学研究展望

中国政治地理学的发展尚处于起步阶段。中国与西方政治地理学者的学术交流相对有限,这主要是由于语言的障碍,以及中国学者对于研究课题政治敏感性的担忧,普遍缺乏对政治地理学研究内涵的理解。本文基于对中西方政治地理学发展现状及相关研究可能性的理解,指出以下五个在中国具有进一步拓展空间的政治地理学课题：广域行政与空间政治;国际关系与地理想象;边界冲突与划界研究;边界与边界区域研究;环境政治地理学。这些课题的开展不仅可以加强中国自身的政治地理学研究,而且对西方正在进行的政治地理学研究也会起到积极的推动作用。     

Policy Change and Policy Stasis: Comparing Swiss Foreign Policy toward South Africa (1968–94) and Iraq (1990–91)

This article investigates how concepts from the field of public policy, in particular the Advocacy Coalition Framework (ACF) initially introduced by Sabatier and Jenkins‐Smith, can be applied to the study of foreign policy analysis. Using a most similar comparative case studies design, we examine Switzerland's foreign policy toward South Africa under apartheid for the period from 1968 to 1994 and compare it with the Swiss position toward Iraq after the Iraqi invasion of Kuwait in 1990, when the Swiss government imposed—for the first time—comprehensive economic sanctions against another state. The application of the ACF shows that a dominant advocacy coalition in Swiss foreign policy toward South Africa prevented a major policy change in Swiss–South African relations despite external pressure from the international and national political levels. Actually, quite the opposite could be observed: Swiss foreign policy increased its persistence in not taking economic sanctions against the racist regime in South Africa during the 1980s and early 1990s. The ACF, with its analytical focus on policy subsystems and the role of external shocks as potential triggers for change, provided a useful framework for analyzing the factors for policy change and stasis in Swiss foreign relations toward the selected two countries.     

新中国成立60年来民族政策的发展进程及启示

民族政策是以政治主体为规范的国家范围内对民族事务而采取的策略、准则和措施。当代中国的民族政策既吸收了中国传统历史中民族政策的精髓,又是马克思主义民族理论与中国民族实际相结合的产物。总体上,它基本符合中国的实际,但也有与国内现实的某种脱节。笔者认为,只有对它进行历史的反观,才能做出现实的思考和较为客观的评价。     

The Fiscal-Electoral Nexus in Australia, 1976-94

This article re-evaluates existing political business cycle theory in the specific context of the political economy of Australian fiscal policy since the mid-1970s. Whereas 'traditional' political business cycle models, formulated within a Keynesian framework, assume a high level of state autonomy over fiscal policy, this article argues that an environment of fiscal restraint has been imposed on Australian federal governments over the study period. Given the historical dynamics of Australian economic policy which inform this study, a hypothesis is developed which reflects the policy optimisation dilemma which has confronted Australian federal governments when formulating fiscal priorities in a pre-election context. On one hand, there are pre-poll demands for expansionary fiscal settings from the electorate; on the other, there are demands from financial markets and domestic neoliberal interests for fiscal restraint. Reflecting the fact that identifiable costs are associated with implementing expansionary fiscal policy settings, it is hypothesised that such an approach will be adopted only in times of greatest political need, when an incumbent government is facing a popularity deficit in a pre-election context. While the study confirms that the fiscal-electoral effect is relatively weak, electoral demands do still influence the fiscal priorities of Australian federal governments. This is particularly so with the case of personal taxation relief, a policy approach that appears to be more acceptable to financial markets, key neoliberal interests and some segments of the electorate.     

The disturbance and endurance of norms in ASEAN: peaceful but stressful

Since the Cold War, South-East Asia has been marked by a period of relative calm and stability. Yet this peace belies ongoing tensions, mistrust and stress in the Association of Southeast Asian Nations (ASEAN) and among its member states. Within the scholarship on ASEAN, not enough attention is devoted to these underlying currents. How and in what way do tensions stress the ASEAN norms? What are some of the coping mechanisms adopted by ASEAN and its member states? Engaging with the scholarship on norms, the author contends that changes wrought in this relationship are both extra- and intra-mural. These have accelerated as contentious issues—particularly the South China Sea disputes—gain more visibility. The author argues that ASEAN is put under pressure, firstly, through a more muscular Chinese foreign policy that disrupts but does not yet break the fundamental norms of ASEAN and, secondly, through internal contestation over ASEAN norms that challenges the meaning of these norms. Essentially, the article gives an account of how internal and external pressures are burdening ASEAN norms but yet remain durable because of resistance against duress by the bloc and member states. This is done through an examination of instances where the established order and practices in the region were disturbed, and the response to this disturbance.     

Pastoralism and conservation: The politics and notions of environmental justice under the grazing ban policy in Inner Mongolia,China

Environmental justice is a key concept for understanding the contested relationship between pastoralism and conservation. Our study adopted a political approach to examine conservation, pastoralism, and justice in the context of the grazing ban policy in China. Employing a qualitative, in-depth case study, we investigated the local political actors and processes that lead to environmental (in)justice. The evidence shows how injustice is perpetuated by both centralized and decentralized political processes and how herders use their knowledge and strategies in resistance to the injustice. In addition, the study contributed to a pluralistic understanding of justice by examining the different notions of justice held by the herders. We found that herders perceive injustices through different lenses, namely economic, ecological, and cultural aspects. Further, the similarities and differences between Han and Mongolian herders are discussed in terms of their notions of environmental justice and counteractions.     

The predicament of 'civil society' in Central Asia and the 'Greater Middle East'

This article discuses the concept of 'civil society' and how it has been used by the international community to promote democratization. It addresses some of the dimensions and side-effects of the policy, such as the relationship with traditional societies and power networks. It also addresses the importance of attending to the conditions of implementation, political issues such as nationalism and Islam, and political actors who may only have recent democratic credentials. Political democratization—free elections—is clearly popular in the Greater Middle East and Central Asia. During the last two years people have voted every time they have had the opportunity, despite the dangers. The debate concerning the compatibility of Islam and democracy overlooks the fact that the main obstacle to democratization in the area is usually not a religious but a secular authoritarian regime. The difficulty of building a democracy with people we do not consider to be democrats is discussed. There can be no democratization process without taking into account the mainstream Islamist parties and without acknowledging the importance of nationalism. There is a clash between the 'war on terror' approach and the call for elections: one cannot put Hamas and Hezbollah on the terrorist list and call for free elections in which both would emerge as legitimate and representative political movements.     

China’s cultural future: from soft power to comprehensive national power

The Hu Jintao administration used the ‘four‐in‐one’ wording for the overall arrangement of development in China, that is, economic development, political development, cultural development and social development. The term ‘soft power’ was adopted to conceptualise the cultural development dimension. This paper used a tripartite taxonomy to examine Chinese approaches to soft power, as ‘resources’, as ‘strategies’ and as ‘outcomes’. Soft power in China was mainly used in a domestic policy context to mean cultural resources to be amassed and accumulated. Soft power could be measured as part of its comprehensive national power and compared with the hierarchical status of other nation states. Soft power as strategies meant using power softly in seeking normal economic and political advantages abroad. Soft power as outcomes meant the rise of China and its cultural renaissance.     

Foucault, fields of governability, and the population–family–economy nexus in China

It was only in the early twentieth century that China discovered that it had a population, at least if a population is understood not as a simple number of people but instead in terms of such features as variable levels of health, birth and death rates, age, sex, dependency ratios, and so on—as an object with a distinct rationality and intrinsic dynamics that can be made the target of a specific kind of direct intervention. In 1900, such a developmentalist conception of the population simply did not exist in China; by the 1930s, it pervaded the entire social and political field from top to bottom. Through a reading of a series of foundational texts in population and family reformism in China, this paper argues that this birth of the Chinese population occurred as a result of a general transformation of practices of governing, one that necessarily also involved a reconceptualization of the family and a new logic of overall social rationalization; in short, the isolation of a population–family–economy nexus as a central field of modern governing. This process is captured by elaborating and extending Foucault's studies of the historical emergence of apparatuses (dispositifs) into a notion of fields of governability. Finally, this paper argues that the one-child policy, launched in the late 1970s, should be understood not in isolation from the imposition of the “family-responsibility system” in agriculture and market reforms in exactly that period, but as part—mutatis mutandis—of a return to a form of governing that was developed in the first half of the twentieth century.     

Republic in early modern China: The cross-cultural dissemination of a political concept

ABSTRACT

The English term republic and the Chinese term Gonghe (共和, “joint harmony”; i.e., “republic” in modern Chinese) stem from different conceptual origins and carry different connotations. When they first encountered the term republic, the intellectuals of China and Japan could only understand it by drawing on the political knowledge of Chinese antiquity. But soon after, two different concepts corresponding to the term republic emerged in the form of Chinese characters within the Chinese and Japanese linguistic environments—minzhu (民主, “people's rule”) and gonghe, which gradually shed their ancient Chinese significations. After its coining as an early modern political concept in the Japanese language, the term gonghe sporadically filtered into the Chinese linguistic context during the 1880s and 1890s. In 1898–1902, the concept of gonghe rapidly gained popularity in China, primarily due to its introduction by Liang Qichao (梁启超, 1873–1929) and other figures, with a clearly demarcated line separating the term from its ancient Chinese significance. As the concept of gonghe spread in China, it became embroiled in the contemporary tide of political reform, both influencing and being influenced by this trend. In the first decade of the 20th century, two competing interpretations of the term gonghe appeared. The moderates, represented by Liang Qichao, maintained that the evolution of the political system had a natural order; that their contemporary China did not yet have the conditions to adopt a republican system; and that it was necessary to first improve the citizens’ character, and cultivate the habits of self-governance among the people. The radicals, represented by Sun Yat-sen (孙中山, 1866–1925), held that China should overleap a constitutional monarchy, overthrow the Manchu emperor through violent revolution, and directly establish a republican form of government. The views of the radical party won discursive power, but their discussions and deliberations on the implications of a republic were clearly inadequate. Following the outbreak of the 1911 Revolution, a republican form of government was quickly established, but its functional results fell far short of people's expectations, causing the concept of a republic to be distrusted, criticized, and even shelved.     

Recent research on Chinese republican history

Chinese republican history has proved to be the most dynamic subject area within Chinese history studies – with the most substantial research achievements – since China adopted its policy of reform and opening up in 1978. This paper provides an overview of new developments and trends in the recent study of Chinese republican history by Mainland Chinese scholars.