Governance edging out representation? Explaining the imbalanced functions of China’s people’s congress system

Abstract In theory, representation is the primary function of the people’s congresses. In practice, under China’s party-state system, the ruling party imposes specific governance tasks on the congresses with the effect that the representative function of the People’s Congress System has largely given way to its governance functions. The uneven practice of these functions has left the System facing a serious representation deficit. Based on a careful analysis of historical archives and findings from interviews and observations, this paper examines the causes and repercussions of the imbalanced functions of the People’s Congress System. By proposing a Monitoring and Adaptation Model, we adopt a historical perspective to reexamine the interplay between the people’s congresses and the ruling party, arguing that the imbalanced functions of the People’s Congress System result from the interplay between Party monitoring and the corresponding adaptations of the people’s congresses. The Party, to bolster its governing performance, has introduced an array of institutional arrangements to have the people’s congresses fulfill specific governance tasks. However, the people’s congresses have gained a measure of autonomy thanks to their organizational growth and institutionalization, changes to the makeup of deputies, and significant efforts by certain leaders since the end of the Cultural Revolution. Although they are expected to take on the governance functions assigned by the ruling party, the people’s congresses thus enjoy greater leeway to carry out their functions selectively with an eye to improving their standing and relevance in China’s political system. Ironically, the fact that the people’s congresses prioritize their governance functions and that the overall performance of the party-state system gains consistent improvement may have warded off a potential representation crisis as the weak representativeness of the People’s Congress System would otherwise predict. Abbreviations: PCS: The People's Congress System; CPC: The Communist Party of China; The “M&A model”: The Monitoring and Adaptation Model; NPC: National People's Congress; LPCs: Local People's Congresses; CPPCC: The Chinese People's Political Consultative Conference