Beyond central-local relations: the introduction of a new perspective on China’s environmental governance model

Abstract

In recent years, the Chinese government has initiated assertive centralization efforts in its approach to environmental governance. However, the efficacy of these initiatives demonstrates marked variability across different sectors. While the central-local relational framework has traditionally been employed to elucidate these disparities, its explanatory power is showing signs of strain. This paper, through policy analysis and field interviews, investigates regulatory conflicts in land use for ecological and agricultural purposes within China. The findings highlight instances of overlapping jurisdictions and discordant policy objectives among agencies responsible for delineating ecological spaces and agricultural zones. While these conflicts seem to stem from the dynamics between the central and local governments, they more accurately reflect the inherent characteristics of fragmented authoritarianism. This paper aims to expand the theory of fragmented authoritarianism by incorporating the dimension of inter-departmental competition into environmental governance, moving beyond the traditional binary analysis framework of central-local relations. It seeks to understand and critique its limitations from a broader perspective, emphasizing the role of departmental competition within fragmented authoritarianism. By analyzing this internal mechanism, the paper reveals a more nuanced governance landscape, essentially replacing the traditional central-local paradigm with a model that situates departmental competition within the overall context of fragmented authoritarianism. We propose two models for delineating competition among governmental institutions: the bureaucratic model and the charisma model, thereby advancing and deepening the application of fragmented authoritarianism theory in China’s environmental governance. This provides new theoretical insights for understanding the current challenges and developments in China’s environmental governance.