Reforming governance under authoritarianism: motivations and pathways of local participatory reform in the People’s Republic of China

Many authoritarian regimes use participatory political reform to maintain control over the societies under their rule and survive global waves of democratization. Recent studies of transitional governance have underscored the importance and intricacy of institutional reform; however, no consensus has been reached on an explanation of the dynamism that shapes institutional reforms under non-democratic systems. Why do authoritarian apparatchiks reform their institutions of governance? How can the varied pathways of these reforms be explained? Post-Deng China provides an ideal laboratory in which to study these issues. Since the 1990s, growing tensions between the Leninist polity and a gradually opened society have compelled local governments in China to test a vast set of participatory reforms. In an examination of three major local participatory budgeting reforms in China, this article maps the main pathways – representation, consultation, and transparency – of these recent sub-national participatory reforms implemented by the incumbent regime, and explores the driving forces that sculpt a reformist model over the alternatives. By introducing an “incentive-contingent framework”, this article sketches out the “repertoire” of participatory reforms in the authoritarian governance of China and suggests an explanatory framework for the variation in the strategies and forms of such institutional innovations.