Paragraphs

Image
Logo of The China Journal
China’s rapidly growing local government debt problem has long been recognized by foreign observers as a risk, but inside China, only recentlywas this problem called out as alarming.Why has local government debt been allowed to grow with little direct intervention from central authorities? We argue that it has much to do with a “grand bargain” between the central government and localities during the 1994 fiscal recentralization reform. While much scholarly attention has been paid to the consequences of the 1994 reform that left localities with a tremendous fiscal gap, our findings show that Beijing in fact gave localities the green light to create new backdoor financing institutions that counteracted the impact of fiscal recentralization. In essence, these institutions were the quid pro quo offered to localities to sustain their incentive for local state-led growth after 1994.

The bargain worked, and growth continued. The drawback, however, was that China’s economic growth has been accompanied by the accumulation of local government debt with little transparency and central control. When the global financial crisis slowed growth, and local deficits and debts spiked, Beijing began to shut down backdoor financing and opened front-door options that were transparent and under the control of national authorities—but with limited success. In the wake of COVID-19, the question is whether the pendulum will swing back toward more tolerance of local debt for the sake of economic growth.

 

All Publications button
1
Publication Type
Journal Articles
Publication Date
Journal Publisher
The China Journal
Authors
Jean C. Oi
Number
1
Authors
Michael Breger
News Type
News
Date
Paragraphs

Over much of the last four decades, China's economy has ballooned, growing to become the world's second-largest economic power behind the United States, when measured by GDP. Yet alongside the rapid growth came mounting local government debt. While foreign observers have long recognized China’s local government debt as a risk, only recently did the Chinese Communist Party call out the problem as alarming. 

Why have central authorities allowed local government debt to grow with such little direct intervention? The answer to this question has much to do with a “grand bargain” between China's central government and localities during the 1994 fiscal recentralization reform, according to a new study, "China’s Local Government Debt: The Grand Bargain," published in the January issue of The China Journal.  The study’s co-authors are Stanford political scientist Jean Oi, a senior fellow at FSI and director of the China Program at APARC, Adam Liu, a former doctoral student of Oi, and Yi Zhang.


Sign up for APARC newsletters to receive our experts' commentary and analysis.



The Origins of China's Massive Local Government Debt

The 1994 reform left localities with a tremendous fiscal gap. But then Beijing in fact gave localities enough autonomy to seek funding independently and the green light to create new backdoor financing institutions that counteracted the impact of fiscal decentralization, show Oi and her colleagues. They call this dynamic a “grand bargain.” The bargain’s purpose was to garner regional cooperation in fiscal and financial recentralization campaigns. The result, as the co-authors document, was far from the intended outcome. The policy resulted in greater decentralization, as local leaders used backdoor financing to meet expenditure responsibilities and bolster local development.

The study offers a fresh interpretation of the political economy surrounding the 1994 fiscal reform and a new understanding of the grand bargain, in which secretive financing was the quid pro quo offered to localities to sustain their incentive for local state-led growth after 1994. Oi and her colleagues draw upon municipal and county data as well as interviews and memoirs of key party leaders, architects of the 1994 fiscal reform, to support their assertions about the dynamics of China's economic rise and the local debt problem. Their findings highlight the "paradoxical political dynamics" of China’s political economy. As the 1994 fiscal reform recentralized tax revenues, "countervailing policies substantially promoted decentralization and fiscal empowerment of localities and decreased the transparency of local financial arrangements."

Granting localities the right to operate local state banks was a necessary but insufficient step for establishing the backdoor financing needed to sustain the grand bargain. Local governments needed a middleman to circumvent the bans on borrowing.
Liu, Oi, and Zhang

The grand bargain led to China's continued growth. The drawback, however, was that this economic growth has been accompanied by the accumulation of local government debt with little transparency and central control. When the global financial crisis impacted growth rates, local deficits and debts spiked. In response, Beijing began to shut down backdoor financing and opened front-door options that were transparent and under the control of national authorities — but with limited success.

Reining in Local Government Financing Vehicles

The researchers posit that "only beginning in 2017 did the Communist Party’s own Central Leading Group on Finance and Economic Affairs and various government-related media begin to label local government debt as a threat to the economy, raising the alarm bells by calling it a 'gray rhino,' a likely high-impact threat that was being ignored." Why, then, didn’t Beijing quickly put a stop to local government debt? Why did central authorities wait until 2015 to put measures in place, and wait even longer to identify local government debt as an economic threat?

Oi and her colleagues explain that studies of policy implementation and regulation in China tell us that the national government faces information asymmetry problems, where localities can subvert upper-level directives because the center has imperfect knowledge of what local agents are doing. Such subversion is most likely when local interests are not aligned with Beijing’s. Now, in the wake of the COVID-19 pandemic, the question is whether the pendulum will swing back toward more tolerance of local debt for the sake of economic growth.

All indications, the authors agree, suggest that during COVID-19 and its aftermath, especially as China also has vowed to win and maintain the fruits of the battle against poverty “at all costs,” localities are going to need extra resources, borrowed or not. The center’s pendulum, at least for now, is swinging further away from fiscal discipline toward local incentives and growth.

[Xi's] anticorruption tactics and exerting tighter control to reduce local government debt have not solved the debt problem because the root causes are institutional.
Liu, Oi, and Zhang

Evading Institutional Reforms

Oi and her colleagues contend that the expansion of local government debt is a feature of China's developmental model, which aims to "circumvent rather than tackle difficult institutional reform, kicking the can down the road, opting for an easier fix to avoid the potentially high political costs.” 

The authors' primary takeaway is therefore that local government debt in China is not a local problem. Similar to other developing nations that depend upon local partners, China faces a dual-commitment problem: "growing the local economy without debt requires the central state to simultaneously commit to respecting its local agents’ access to and control over the fruits of local development (of which local fiscal resources are the most crucial part), while exercising credible fiscal discipline over precisely the same set of local agents that the center seeks to incentivize.”

For nearly three decades, Chinese central authorities have relied on the grand bargain to boost the nation's economic might. Oi and her colleagues reveal that the problem of local government debt reverberates to the highest echelons of the Chinese state decision makers and continues to present strategic challenges for the economic juggernaut.  

Read the article by Oi et al

Read More

Jean Oi
News

Jean Oi Elected Vice President of the Association for Asian Studies

APARC’s Jean Oi, a China expert, will begin her term with the AAS in March 2022, serving on a four-year leadership ladder of vice president, president, and past president. Representing all the regions and countries of Asia and all academic disciplines, the AAS is the largest professional association of its kind.
Jean Oi Elected Vice President of the Association for Asian Studies
(Left) Congratulations Adam Yao Liu, Winner of the 2020 BRICS Economic Research Award; (Right) Portrait of Dr. Adam Liu
News

Stanford Ph.D. Alumnus Wins BRICS Economic Research Award

Dr. Adam Yao Liu, a former doctoral student of APARC China Program Director Jean Oi, has been awarded the 2020 BRICS Economic Research Award for his research on how banking systems in China are developing.
Stanford Ph.D. Alumnus Wins BRICS Economic Research Award
Cover of "China's Gilded Age" by Yuen Yuen Ang
News

The Role of Corruption in China's Speedy, Risky Boom

How has corruption simultaneously driven China’s economic boom and financial risks? Professor Yuen Yuen Ang explains its role in producing a high-growth but also high-risk economy.
The Role of Corruption in China's Speedy, Risky Boom
Hero Image
money
All News button
1
Subtitle

New research in 'The China Journal' by APARC’s Jean Oi and colleagues suggests that the roots of China’s massive local government debt problem lie in secretive financing institutions offered as quid pro quo to localities to sustain their incentive for local state-led growth after 1994

-

This is a virtual event. Please click here to register and generate a link to the talk. 
The link will be unique to you; please save it and do not share with others.

 

Policies implemented by the CCP in Xinjiang since c. 2016 have become a central issue in PRC international relations, leading to international determinations that those policies constitute genocide; scrutiny of global supply chains for Xinjiang cotton, textiles and polysilicon; US sanctions on companies and individuals and Congressional inquiries directed at Airbnb and other multinationals operating in Xinjiang; and diplomatic boycotts of the Olympics. The assimilationist policies, if most extreme in Xinjiang, are related to the broader Zhonghua-izing campaign against religion and non-Mandarin language and perhaps even to intensified control over Hong Kong and efforts to intimidate Taiwan—an aggressive intolerance of cultural and political diversity that is emerging as a central feature of Xi Jinping’s tenure. This talk will review the Xinjiang crisis to date and suggest how we should understand these events and trends.



Image
Portrait of James Millward
James Millward is Professor of Inter-societal History at the Walsh School of Foreign Service, Georgetown University, teaching Chinese, Central Asian and world history. He joins the Walter H. Shorenstein Asia-Pacific Research Center (APARC) as visiting scholar with the China Program for the 2022 winter quarter. He is also an affiliated professor in the Máster Oficial en Estudios de Asia Oriental at the University of Granada, Spain. His specialties include Qing empire; the silk road; Eurasian lutes and music in history; and historical and contemporary Xinjiang. He follows and comments on current issues regarding the Uyghurs and PRC ethnicity policy. Millward has served on the boards of the Association for Asian Studies (China and Inner Asia Council) and the Central Eurasian Studies Society, and was president of the Central Eurasian Studies Society in 2010. He edits the ''Silk Roads'' series for University of Chicago Press. His publications include The Silk Road: A Very Short Introduction (2013), Eurasian Crossroads: A History of Xinjiang (2007), New Qing Imperial History: The Making of Inner Asian Empire at Qing Chengde (2004), and Beyond the Pass: Economy, Ethnicity and Empire in Qing Central Asia (1998). His articles and op-eds on contemporary China appear in The New York Times, The Los Angeles Review of Books, The New York Review of Books and other media.  

Via Zoom Webinar. Register at: https://bit.ly/3zX2GoF

James Millward Visiting Scholar, APARC, Stanford University; Professor of Inter-societal History, Walsh School of Foreign Service, Georgetown University
Seminars
-

This is a virtual event. Please click here to register and generate a link to the talk. 
The link will be unique to you; please save it and do not share with others.

 

China’s rapidly growing local government debt problem has long been recognized by foreign observers as a risk, but inside China, only recently was this problem called out as alarming.  Why has local government debt been allowed to grow with little direct intervention from central authorities?  Based on a forthcoming paper, Oi will show how a “grand bargain” the central authorities entered into with the localities allowed Beijing to take the lion’s share of tax revenues after 1994, but also allowed localities to gain new resources and power as a quid pro quo.  While the bargain provided an expedient and seemingly successful strategy that worked for more than a decade to fuel rapid local state-led growth, it had significant costs that are now becoming increasingly visible.  Because land finance was the core means by which localities raised revenue, Oi also will help explain why the problems with property developers like Evergrande are so important to China’s future economy.   



Image
Dr. Jean C. Oi
Jean C. Oi is the William Haas Professor of Chinese Politics in the Department of Political Science and a senior fellow in the Freeman Spogli Institute for International Studies at Stanford University. She directs the China Program at the Walter H. Shorenstein Asia-Pacific Research Center and is the Lee Shau Kee Director of the Stanford Center at Peking University. Professor Oi has published extensively on China’s reforms. Recent books include Fateful Decisions: Choices That Will Shape China’s Future, co-edited with Thomas Fingar (Stanford University Press, 2020); Zouping Revisited: Adaptive Governance in a Chinese County, co-edited with Steven Goldstein (Stanford University Press, 2018); and Challenges in the Process of China’s Urbanization, co-edited with Karen Eggleston and Yiming Wang (2017). Current research is on fiscal reform and local government debt, continuing SOE reforms, and the Belt and Road Initiative.

 


Image
Chinese 100 yuan bills

This event is part of the 2022 Winter webinar series, The Future of China's Economy, sponsored by the APARC China Program.

 

Via Zoom Webinar. Register at: https://bit.ly/34mnOcc

Jean C. Oi Director of Shorenstein APARC China Program; William Haas Professor of Chinese Politics, Stanford University
Seminars
-

This is a virtual event. Please click here to register and generate a link to the talk. 
The link will be unique to you; please save it and do not share with others.

 

What is the relationship between internal development and integration into the global economy in developing countries? How and why do state–market relations differ? And do these differences matter in the post-Cold War era of global conflict and cooperation? Drawing on research in China, India, and Russia and examining sectors from textiles to telecommunications, Micro-Institutional Foundations of Capitalism introduces a new theory of sectoral pathways to globalization and development. Adopting a historical and comparative approach, Hsueh's Strategic Value Framework shows how state elites perceive the strategic value of sectors in response to internal and external pressures. Sectoral structures and organization of institutions further determine the role of the state in market coordination and property rights arrangements. The resultant dominant patterns of market governance vary by country and sector within country. These national configurations of sectoral models are the micro-institutional foundations of capitalism, which mediate globalization and development.



Image
Portrait of Roselyn Hsueh
Roselyn Hsueh is an associate professor of political science at Temple University, where she co-directs the Certificate in Political Economy. She is the author of Micro-Institutional Foundations of Capitalism: Sectoral Pathways to Globalization in China, India, and Russia (Cambridge University Press, forthcoming, 2022), China’s Regulatory State: A New Strategy for Globalization (Cornell University Press, 2011), and scholarly articles on states and markets, comparative regulation and governance, and political economy of development. She is a frequent commentator on politics, finance and trade, and economic development in China and beyond. BBC World News, The Economist, Foreign Affairs, National Public Radio, and The Washington Post, among other media outlets, have featured her research. Prestigious fellowships, such as the Fulbright Global Scholar Award, have funded international fieldwork and she has served as a Visiting Scholar at the Institute of World Economics and Politics, Chinese Academy of Social Sciences. She holds a B.A. and Ph.D. in Political Science from the University of California, Berkeley.

 

Via Zoom Webinar. Register at: https://bit.ly/3zoAafx

Roselyn Hsueh Associate Professor of Political Science, Temple University
Seminars
-

This is a virtual event. Please click here to register and generate a link to the talk. 
The link will be unique to you; please save it and do not share with others.

 

In China, market institutions are still being developed and private owned enterprises need help to overcome obstacles arising from the imperfection of market institutions. Such help can come from various levels of the government or state-owned enterprises. It is believed that such help is more likely if a major shareholder of the private enterprise has formed a joint venture with a state shareholder, either directly or indirectly. In this talk, Bai Chong-en will discuss ownership connections among state and private investors (ultimate shareholders) and their changes overtime. He will also examine the relationship between the degree of such connection and some important characteristics of the investors. His model suggests that such connections have played an important role in the growth of the private sector. 



Image
Portrait of Bai Chong-en
BAI Chong-En is the Mansfield Freeman Chair Professor and dean of the School of Economics and Management of Tsinghua University. He is also the director of both the National Institute for Fiscal Studies of Tsinghua University and the Institute for State-Owned Enterprises of Tsinghua University. He earned his PhD degree in economics from Harvard University. His research areas include institutional economics, economic growth and development, public economics, finance, corporate governance, and Chinese economy.

BAI is a member of the National Committee of the Chinese People’s Political Consultative Conference, the “14th Five-Year Plan” National Development Planning Expert Committee, the Chinese Economists 50 Forum, the China Finance 40 Forum, and Chinainfo 100. He was a member of the monetary policy committee of the People’s Bank of China from 2015 to 2018. He served as Adjunct Vice-President of Beijing State-Owned Assets Management Co., Ltd. from August 2011 to December 2012. He was a non-resident senior fellow of the Brookings Institution from 2006 to 2007.

 


Image
Chinese 100 yuan bills

This event is part of the 2022 Winter webinar series, The Future of China's Economy, sponsored by the APARC China Program.

 

Via Zoom Webinar. Register at: https://bit.ly/31peuDs

Bai Chong-en Professor and Dean of School of Economics and Management; Mansfield Freeman Chair Professor, Tsinghua University
Seminars
Shorenstein APARC Encina Hall E301 Stanford University
1
Visiting Scholar at APARC, 2021-2022
millward_james.png PhD

James A. Millward 米華健 joined the Walter H. Shorenstein Asia-Pacific Research Center (APARC) as visiting scholar with the China Program for the 2022 winter quarter. He is Professor of Inter-societal History at the Walsh School of Foreign Service, Georgetown University, where he teaches Qing, Chinese, Central Asian and world history. He occasionally also teaches in the program of the Máster Oficial en Estudios de Asia Oriental at the University of Granada, Spain.  Millward is the academic editor for the "Silk Roads" book series published by Chicago University Press. 

Millward’s specialties include Qing empire; the silk road; Eurasian lutes and music in history; and historical and contemporary Xinjiang.  He follows and comments publicly on current issues regarding Xinjiang, the Uyghurs and other Xinjiang indigenous peoples and PRC ethnicity policy.  His publications include Eurasian Crossroads: a history of Xinjiang (2021; 2007); The Silk Road: A Very Short Introduction (2013); New Qing Imperial History: The Making of Inner Asian Empire at Qing Chengde (2004); and Beyond the Pass: Economy, Ethnicity and Empire in Qing Central Asia (1998); as well as the album Songs for this Old Heart (recorded with the band By & By).

Jim's general audience articles and op-eds on contemporary China are published in The New York Times, The Washington Post, The Guardian, The Los Angeles Review of Books, The New York Review of Books,  and other media.  He has appeared on the PBS Newshour, All Things Considered, Al Jazeera, i24 News, the Sinica Podcast and other broadcast programs and networks. 

Email:  millwarj@georgetown.edu | Twitter: @JimMillward

Paragraphs

Recent years have seen the U.S.-China relationship rapidly deteriorate. Engaging China brings together leading China specialists — ranging from academics to NGO leaders to former government officials — to analyze the past, present, and future of U.S.-China relations.

Watch the book discussion, featuring contributing author and Shorenstein APARC Fellow Thomas Fingar:

All Publications button
1
Publication Type
Book Chapters
Publication Date
Subtitle

Chapter from Engaging China:Fifty Years of Sino-American Relations, Anne F. Thurston, ed. Columbia University Press

Authors
Thomas Fingar
Book Publisher
Columbia University Press

China’s spectacular growth over the last 40 years has slowed but remains strong, leading the world in economic recovery after the global financial crisis, and even in the current COVID-19 pandemic after a devasting blow early in 2020.  Yet, a number of worrying developments have emerged, most recently the troubles that China’s second largest property development company, the Evergrande Group, have suffered.

-

This is a virtual event. Please click here to register and generate a link to the talk. 
The link will be unique to you; please save it and do not share with others.

 

At the end of 2021 China Evergrande Group—one of China’s biggest property developers—finally defaulted on its bonds. The default didn’t spark a Lehman Moment—as widely prophesied—or any significant market upheaval, but it’s increasingly clear that Evergrande’s problems mark the start of a momentous shift in how China’s economy grows. Over the past 18 months, Beijing has induced a slowdown of the property sector with the goal of better ensuring financial sector stability and the sustainability of property sector growth. However, it has resulted in defaults, restructuring, and consolidation among China’s largest developers, and has implication for local government finance and the pace of economic growth. This talk will discuss the challenges posed by Evergrande’s decline and imminent restructuring, what Beijing is trying to achieve by reining in the property sector, and what risks are involved.

 



Portrait of Dinny McMahonDinny McMahon is the author of “China's Great Wall of Debt: Shadow Banks, Ghost Cities, Massive Loans, and the End of the Chinese Miracle,” a ground up look at the mechanics of China’s political economy, which he wrote while a fellow at the Woodrow Wilson Center for International Scholars. He later moved to MacroPolo, the Paulson Institute’s think tank in Chicago, where he researched China’s efforts to clean up its financial system. Dinny started his career as a financial journalist in China, spending six years in Beijing with The Wall Street Journal, and four years with Dow Jones Newswires in Shanghai, where he also contributed to the Far Eastern Economic Review. Dinny is currently working on a project for the Wilson Center on China’s efforts to reduce its reliance on the US dollar. He also provides independent research on China’s financial system for financial services firms.

 


Image
Chinese 100 yuan bills

This event is part of the 2022 Winter webinar series, The Future of China's Economy, sponsored by the APARC China Program.

 

Via Zoom Webinar. Register at: https://bit.ly/3pkTQfE

Dinny McMahon Global Fellow, Woodrow Wilson International Center for Scholars
Seminars
Subscribe to China