State Capacity, Policy Learning, and Policy Paradigm Shift: Institutionalization of the Theory of Scientific Development in China

Abstract

In late 2003, the "theory of scientific development"(kexue fazhanguan) was espoused by the fourth generation of Chinese Communist leadership, led by Hu Jintao. It calls for people-centered development and promotes harmonic devlopment of the economy, society, and human beings. Its effective implementation is considered crucial for achieving sustainable growth and building a moderately prosperous society. Viewing the theory of scientific development as a new policy paradigm advocated by the central policy elites, this article explores the capacity of the Chinese state to institutionalize the shift from the well-entrenched paradigm of all-out development (GDPism) to a new paradigm based on a balance between economic growth, social development, and environmental protection. It argues that while the formulation of the new policy paradigm demonstrates the relatively high capacity of Chinese central policy elites for policy learning, its institutionalization has been a complex and protracted process due to the weakness of societal actors in the policy subsystem, which has resulted mainly from the existing central-local politics, and underdeveloped civil society, and weak links between the state and society in China