Policy Learning in Governing Complex Technologies: The Pendulum Swing of China's Central Government

Abstract As an emerging science and technology (EST), stem cell therapy presents a highly dynamic and complex landscape, posing significant challenges for the Chinese central government and requiring substantial policy learning. Delving into the realm beyond the traditional literature on Chinese government's policy learning, which primarily focuses on conventional policy areas and local government experiments, this article examines how the technical and interest complexities, along with the fragmented authoritarian structure of central departments, influence policy learning in the field of stem cell therapy. The findings reveal a recurring pendulum swing pattern, wherein top decision makers direct central departments to engage in multiple rounds of policy swings, navigating between developmental objectives and regulatory objectives.