Multiple “Digital China”? Deciphering Policy Narratives of Local Governments

• In Event: Evolving Governance Strategies in Policymaking in China

Abstract

"Digitalization" has emerged as a new national strategy in China. Notably, unlike other democratic nations, China's digitalization strategy is ambitious, encompassing economic development, government operations, public services, social governance, and even ideological and cultural construction. The one-party authoritarian regime, led by the Chinese Communist Party (CCP), appears uniquely positioned to facilitate this extensive digitalization strategy, leveraging its control over the bureaucratic system and various social resources. In practice, the Chinese government has employed a “statist” approach to implement the "Digital China" strategy, particularly during the era of Xi Jinping, where a resurgence of strongman politics has reinforced central government reliance on top-down approaches for major strategies.
Despite the evident nationwide push for a comprehensive digital transformation led by the CCP, little is known about the digitalization strategies and policy narratives at the local level. This article addresses three unresolved issues in the existing literature:
Firstly, amidst the increasing emphasis on digital transformation at the highest decision-making levels in China, what are the specific digitalization agendas of local governments?
Furthermore, while the central government aims to articulate a comprehensive digital transformation strategy from the top down, how do local governments shape their policy narratives when advancing this digitalization strategy? In the daily decision-making processes, do local governments exhibit a high degree of consistency or more diversity in their digital agendas? How do they balance priorities in approaching different tasks related to digital transformation?
Lastly, how can we explain the variations in enthusiasm for digital transformation among local Chinese governments, especially against the backdrop of prevalent statist? What factors may influence the digitalization strategies and policy priorities of local governments?
Addressing these questions, this study systematically presents extensive variations in the digitalization strategies and policy narratives of Chinese local governments based on the analysis of a large dataset covering the period from 2016 to 2022, including digitalization strategies of 29 provincial-level local governments and records of daily meetings of provincial party committees and official activities of provincial party secretaries. The main findings include:
On one hand, despite the CCP attempting to promote the "Digital China" strategy through a top-down way, there are significant differences in the enthusiasm and policy narratives of local governments. Most local governments prioritize the role of digitalization in driving economic development and improving people's lives, avoiding sensitive issues such as data governance and cybersecurity. On the other hand, the structural features of China's authoritarian system contribute to the emergence of "multiple Digital Chinas" at the local level. The decentralized authoritarianism allows local governments flexibility in their digital policy narratives, even when responding to the overarching policy signals from the central government. Consequently, the central government's policy signals may increase overall attention to digital transformation at the provincial level but fail to effectively incentivize specific narrative preferences in digital strategies.
Moreover, the concentration of party authority and characteristics of local leaders significantly impact the digital transformation strategies of local governments. Younger leaders or those with work experience in technologically advanced regions tend to exhibit higher enthusiasm for digital transformation. Additionally, leaders with a background in STEM fields contribute to a greater focus on digital technology and its applications.
Finally, as China grapples with various governance challenges, the level of enthusiasm for digitalization by local governments is subject to changes in the priority of other issues on their agenda. Once more critical policy issues take precedence, attention to digitalization may diminish.
This study not only enriches discussions on China's national capabilities, especially the complex relationships between central and local authorities but also provides empirical evidence to better understand China's current path of digital transformation. The study also expands existing literature on China’s digitalization by examining the perspectives of policy narratives. The revealed narrative preferences of local governments in China raise concerns about the current state of digital authoritarianism, as the reluctance to openly discuss sensitive topics may obscure how the power system addresses these issues. Moreover, advocating digital transformation solely from the angle of economic development and improved livelihoods may hinder public awareness of information regarding their rights and privacy, as the government frames all digital initiatives within a grand narrative of "all for your good."

Authors

• Yang Yan, Freie Universität Berlin

• Genia Kostka, Freie Universität Berlin