Power and Policy in China

Taking issue with the "Mao in command" notion—an assumption explicit or implicit in many writings analyzing Chinese politics—this book presents a picture of widening, concentric circles of Chinese leaders involved in policy disputes and decisions. Thus policymaking in China is shown to be a complicated process of conflict-resolution and consensus-building which—despite significant differences—has some similarities to political processes elsewhere.

Five major policy areas are analyzed in detail: the 12-year agricultural program, administrative decentralization, the commune movement, the socialist education program, and ideological rectification. Although Mao's personal power is recognized as enormous—indeed greater than it was in the mid-1960s when he felt compelled to launch the Cultural Revolution—the Chairman is revealed as in part a power broker. In maintaining a favorable balance of power among shifting coalitions of radical or conservative orientation, Mao often has sought "outside" support. Consequently the arena of political participation has been expanded by actions of Chairman Mao himself.

Thus Chinese governmental policy departs from a monolithic model in two ways. First, policy formulation is significantly influenced by debates and conflicts among national leaders. Second, policy implementation is substantially affected by the actions of leaders and cadres at provincial and lower levels.