The change and continuity in China’s S&T policy: an institutional grammar (IG) approach

ABSTRACT

This article identifies and demonstrates the change and continuity in China’s science and technology (S&T) policy over 30 years. Firstly, we analyse and compare the two top-level S&T policies in 1985 and 2015 by applying institutional grammar (IG) in Chinese. To situate the policy analysis in the dynamic history, this paper then reviews the development of S&T-related policies from the late 1970s until now. By analysing the policy content and history, we find that policy-making with strong pragmatism continually sets S&T as the role of the engine of economic development. Meanwhile, the paradigm of how China governs S&T changed from decentralization and direct order to top-level design and indirect guide. In terms of the S&T policy framework, China grows into a holistic innovation policy (HIP) concentrating on demand-side and environment-side and soliciting more public sectors, from the linear model. These changes between the two eras do not happen suddenly but proceed gradually. During these, a significant shift that views innovation as a culture of comprehensive reforming forms HIP with Chinese characteristics.

KEYWORDS:

• Science and technology policy
• policy change
• institutional grammar (IG)
• China
• changes and continuity

Acknowledgements

For their helpful comments on earlier editions of this article, we thank Prof. Sylvia Schwaag Serger from Lund University, Prof. Qian Guo from Tsinghua University and Prof. Venni Krishna from the University of New South Wales.

Disclosure statement

No potential conflict of interest was reported by the author(s).

Notes

1 In China, departments that govern a certain affair are called system (xi tong), such as the system of S&T, the system of politics and law. The S&T system means the organizations govern S&T directly, such as the Ministry of Science and Technology, and the other related organizations are called the system of non-S&T, such as the Ministry of Human Resources and Social Security. The central government includes the Central Committee of the Communist Party of China, the State Council and some leading groups. Leading groups play a crucial role in policy-making as well, such as the Leading Group of Comprehensively Deepening Reforms, and the National Leading Group of Science, Technology and Education.

2 The top-level policy refers to the one issued and enacted by the Chinese Communist Party or Chinese Communist Party and the State Council.

3 Supply-side strategy means policymakers concentrate on how to improve S&T outcomes and S&T activities themselves without considerations on market demands. Demand-side strategy means policymakers aim to use market demand to push S&T development.

4 The central government includes the Central Committee of the Communist Party of China, the State Council and some leading groups. Leading groups play a crucial role in policy-making as well, such as the Leading Group of Comprehensively Deepening Reforms, and the National Leading Group of Science, Technology and Education.

5 China’s policy can be divided into main policy and supporting policy in general. Punishment always appears in supporting policies, such as provisions and administration measures.

6 The strategy of revitalizing the country through science and education proposes that economy does not only rely on S&T progress but also on the quality of human resource that needs more input from education. Due to the orientation and reliance strategy, the outflow of talent from academia to business circles became severe. Therefore, the leadership added ‘climbing the peak of science and technology’ to appreciate basic research.

7 Xi’s requirements are always abbreviated as four needs and four orientations. The needs contain high-quality development, quality life for people, a new development paradigm and a new journey of comprehensively building a modern socialist country. The orientations include a target to global sci-tech frontiers, service for the main economic battlefields, striving to fulfill the significant needs of the country and benefits for people’s lives and health.

8 Crossing the river by feeling the stones emphasizes trials and experimental exploration, spontaneous activities, and local innovation. This slogan in Chinese is mo zhe shi tou guo he.

Additional information

Funding

This research was funded by the National Natural Science Foundation of China [71810107004], and National Social Science Fund of China [17AKS004].

Notes on contributors

Aobo Ran

Dr. Aobo Ran is an Assistant Professor at Think Tank Center and Institute for Urban Governance and Sustainable Development, Tsinghua University. His research focuses on urban governance, science, technology and society, and development studies (E-mail address: [email protected]).

Li Liu

Prof. Li Liu is a Professor at and the Executive Dean of School of Marxism, University of Science and Technology of China. His research focuses on science and technology policy (E-mail address: [email protected]).