Hostname: page-component-cd9895bd7-q99xh Total loading time: 0 Render date: 2024-12-28T04:09:15.311Z Has data issue: false hasContentIssue false

Chinese Bureaucracy Through Three Lenses: Weberian, Confucian, and Marchian

Published online by Cambridge University Press:  25 June 2021

Xueguang Zhou*
Affiliation:
Stanford University, USA
*
Corresponding author: Xueguang Zhou (xgzhou@stanford.edu)

Abstract

Chinese bureaucracy, with its long history and distinctive characteristics, has provided the organizational basis of governance and played a pivotal role in the economic takeoff in recent decades. Chinese bureaucracy also shows intriguing dualism between entrepreneurial activism and bureaucratic inertia, between formal rules and informal institutions, and between high responsiveness and noticeable loose coupling. In this study, I explore these distinctive features of Chinese bureaucracy through three lenses: Weber's comparative-historical approach helps locate Chinese bureaucracy in a distinct mode of domination; the Confucian lens identifies the prevalence of informal institutions that underlie bureaucratic behaviors; and the Marchian lens sheds light on the organized anarchy and set of mechanisms that shape the key characteristics of Chinese bureaucracy.

Type
Special Issue Article
Copyright
Copyright © The Author(s), 2021. Published by Cambridge University Press on behalf of The International Association for Chinese Management Research

Access options

Get access to the full version of this content by using one of the access options below. (Log in options will check for institutional or personal access. Content may require purchase if you do not have access.)

Footnotes

ACCEPTED BY Editor-in-Chief Arie Y. Lewin

References

REFERENCES

Acemoglu, D., & Robinson, J. A. 2012. Why nations fail. New York: Harcourt Brace.Google Scholar
Bendix, R. 1956. Work and authority in industry: Ideologies of management in the course of industrialization. New York: Wiley.Google Scholar
Bian, Y. 1997. Bringing strong ties back in: Indirect ties, network bridges, and job searches in China. American Sociological Review, 62(3): 366385.CrossRefGoogle Scholar
Bian, Y. 2018. The prevalence and the inreasing significance of guanxi. China Quarterly, 235(3): 597621.CrossRefGoogle Scholar
Bian, Y. 2019. Guanxi, how China works. Cambridge, UK: Polity.Google Scholar
Blau, P. M. 1955. The dynamics of bureaucracy: A study of interpersonal relations in two government agencies. Chicago: University of Chicago Press.Google Scholar
Boisot, M., & Child, J. 1996. From fiefs to clans and network capitalism: Explaining China's emerging economic order. Administrative Science Quarterly, 41(4): 600628.CrossRefGoogle Scholar
Brandt, L., Ma, D., & Rawski, T. G. 2014. From divergence to convergence: Revaluating the history behind China's economic room. Journal of Economic Literature, 52(1): 45123.CrossRefGoogle Scholar
Burt, R. S. 1992. Structural holes. Cambridge: Harvard University Press.Google Scholar
Chen, C. C., Chen, X.-P., & Huang, S. 2013. Chinese guanxi: An integrative review and new directions for future research. Management and Organization Review, 9(1): 167207.Google Scholar
Chu, T.-T. 1965. Law and society in traditional China. Paris: Mouton & Co.Google Scholar
Coleman, J. S. 1974. Power and the structure of society. New York: W.W. Norton.Google Scholar
Crozier, M. 1964. The bureaucratic phenomenon. Chicago: University of Chicago Press.Google Scholar
Deng, Y., & O'Brien, K. J. 2013. Relational repression in China: Using social ties to demobilize protesters. China Quarterly, 215(September): 533552.CrossRefGoogle Scholar
DiTomaso, N., & Bian, Y. 2018. The structure of labor markets in the US and China: Social capital and guanxi. Management and Organization Review, 14(1): 536.CrossRefGoogle Scholar
Dore, R. 1983. Goodwill and the spirit of market capitalism. British Journal of Sociology, 34(4): 459482.CrossRefGoogle Scholar
Eisenstadt, S. N. 1968. Introduction: Charisma and institution building: Max Weber and modern sociology. In Eisenstadt, S. N. (Ed.), Max Weber on charisma and institution building: Selected papers: ix-lvi. Chicago: University of Chicago Press.Google Scholar
Ellickson, R. C. 1991. Order without law: How neighbors settle disputes. New York: Cambridge University Press.Google Scholar
Evans, P., & Rauch, J. E. 1999. Bureaucracy and growth: A cross-national analysis of the effects of ‘Weberian’ state structures on economic growth. American Sociological Review, 64(5): 748765.CrossRefGoogle Scholar
Fei, X. 1992[1948]. From the soil: The foundations of Chinese society. A translation of Fei Xiaotong's xiangtu zhongguo. With an introduction and epilogue by Gary G. Hamilton and Wang Zheng. Berkeley: University of California Press.CrossRefGoogle Scholar
Feng, J. 2010. Cadres in the mid-county. Unpublished dissertation, Department of Sociology, Peking University, Beijing.Google Scholar
Feng, S. 2011. Zhongguo guojia yundong de xingcheng yu bianyi: Jiyu zhengti de zhengti xing jieshi [The origins and transformation of national mobilization in China: Toward a holistic approach]. Kaifang Shidai (Open Times), 1: 7397.Google Scholar
Fukuyama, F. 2004. State building: Governance and world order in the 21st century. Ithaca, NY: Cornell University Press.Google Scholar
Geertz, C. 1973. The interpretation of cultures. New York: Basic Books.Google Scholar
Gibbons, R. 1999. Take coase seriously. Administrative Science Quarterly, 44(1): 145–57.CrossRefGoogle Scholar
Gold, T. B. 1985. After comradeship: Personal relations in China since the cultural revolution. China Quarterly, 104(December): 657675.CrossRefGoogle Scholar
Gouldner, A. W. 1964. Patterns of industrial bureaucracy. New York: Free Press.Google Scholar
Granovetter, M. 1974. Getting a job. Cambridge: Harvard University Press.Google Scholar
Greif, A., Milgrom, P., & Weingast, B. R. 1994. Coordination, commitment, and enforcement: The case of the merchant guild. Journal of Political Economy, 102(4): 745776.CrossRefGoogle Scholar
Greif, A., & Tabellini, G. 2017. The clan and the corporation: Sustaining cooperation in China and Europe. Journal of Comparative Economics, 45(1): 135.CrossRefGoogle Scholar
Guthrie, D. 1998. The declining significance of guanxi in China's economic transition. China Quarterly, 154: 3162.Google Scholar
Harding, H. 1981. Organizing China: The problem of bureaucracy, 1949–1976. Stanford: Stanford University Press.Google Scholar
Haveman, H. A., Jia, N., Shi, J., & Wang, Y. 2017. The dynamics of political embeddedness in China. Admiministrative Science Quarterly, 62(1): 67104.CrossRefGoogle Scholar
He, D., & Kong, F. 2011. The Chinese experience in public policy implementation. Social Science in China, 5: 6179.Google Scholar
Heberer, T., & Schubert, G. 2012. County and township cadres in China as a strategic group: A new approach to political agency in China's local state. Journal of Chinese Political Science, 17(3): 221249.Google Scholar
Heilmann, S. 2008. From local experiments to national policy: The origins of China's distinctive policy process. China Journal, 59(January): 130.CrossRefGoogle Scholar
Hou, X. 2018. Chong: Xin-ren xing junchen guanxi yu xihan lishi de zhankai (The spoils system: The trust-appointment style and emperor-bureaucrat relationship since the western Han Dyanasty). Beijing: Beijing Shifan Daxue Chubanshe.Google Scholar
Kanter, R. M. 1977. Men and women of the corporation. New York: Basic Books.Google Scholar
Kelmke, G., & Levitsky, S. 2011. Informal institutions and comparative politics: A research agenda. Perspectives on Politics, 2(4): 725740.CrossRefGoogle Scholar
Kuhn, P. A. 1990. Soulstealersa; the Chinese sorcery scare of 1768. Cambridge: Harvard University Press.Google Scholar
Kuhn, P. A. 2002. Origins of the modern Chinese state. Stanford: Stanford University Press.Google Scholar
Kung, J. K.-s., & Chen, S. 2011. The tragedy of the nomenklatura: Career incentives and political radicalism during China's great leap famine. American Political Science Review, 105(1): 2745.CrossRefGoogle Scholar
Landry, P. F. 2008. Decentralized authoritarianism in China: The communist party's control of elites in the post-Mao era. New York: Cambridge University Press.Google Scholar
Lee, C. K., & Zhang, Y. 2013. The power of instability: Unraveling the microfoundations of bargained authoritarianism in China. American Journal of Sociology, 118(6): 1475–508.CrossRefGoogle Scholar
Levenson, J. R. 1965. Confucian China and its modern fate: A triology, 3 Vols. Berkeley: University of California Press.Google Scholar
Li, F. 2008. Bureaucracy and the state in early China: Governing the Western Zhou. New York: Cambridge University Press.Google Scholar
Li, P. P., Zhou, S. S., Zhou, A. J., & Yang, Z. 2019. Reconceptualizing and redirecting research on guanxi: ‘Guan-Xi’ interaction to form a multicolored Chinese knot. Management and Organization Review, 15(3): 643677.CrossRefGoogle Scholar
Lieberthal, K., & Lampton, D. M. 1992. Bureaucracy, politics and decision making in post-Mao China. Berkeley: University of California Press.Google Scholar
Lin, N. 1995. Local market socialism: Local corporatism in action in rural China. Theory and Society, 24: 301354.CrossRefGoogle Scholar
Lin, N. 2001. Social capital: A theory of social structure and action. New York: Cambridge University Press.Google Scholar
Lindblom, C. E. 1959. The science of 'muddling through'. Public Administration Review, 19(2): 7988.CrossRefGoogle Scholar
Lindblom, C. E. 1979. Still muddling, not yet through. Public Administration Review, 39(6): 517526.CrossRefGoogle Scholar
Mannheim, K. 1936. Ideology and utopia: An introduction to the sociology of knowledge. New York: Harcourt, Brace and Comany.Google Scholar
March, J. G. 1962. The business firm as a political coalition. Journal of Politics, 24(4): 662678.Google Scholar
March, J. G. 1988. Decisions and organizations. New York: Blackwell.Google Scholar
March, J. G. 1994. A primer on decision making: How decisions happen. New York: Free Press.Google Scholar
March, J. G., & Olsen, J. P. 1979. Ambiguity and choice in organizations. Bergen: Universitetsforlaget.Google Scholar
March, J. G., Schulz, M., & Zhou, X. 2000. The dynamics of rules: Change in written organizational codes. Stanford: Stanford University Press.Google Scholar
Marquis, C., & Qiao, K. 2020. Waking from Mao's dream: Communist ideological imprinting and the internationalization of entrepreneurial ventures in China. Admiministrative Science Quarterly, 65(3): 795830.CrossRefGoogle Scholar
Merton, R. K. 1968. Bureaucratic structure and personality. In Merton, R. K. (Ed.), Social theory and social structure: 249260. New York: Free Press.Google Scholar
Milgrom, P. R., North, G. C., & Weingast, B. R. 2006. The role of institutions in the revival of trade: The law merchant, private judgees, and the champagne fairs. Economics and Politics, 2(1): 123.CrossRefGoogle Scholar
Nathan, A. 2003. Authoritarian resilience. Journal of Democracy, 14(1): 617.Google Scholar
O'Brien, K. J., & Li, L. 1999. Selective policy implementation in rural China. Comparative Politcs, 31(2): 167186.CrossRefGoogle Scholar
Oi, J. C. 1992. Fiscal reform and the economic foundations of local state corporatism in China. World Politics, 45(1): 99126.CrossRefGoogle Scholar
Oi, J. C. 1999. Rural China takes off: Institutional foundations of economic reform. Berkeley: University of California Press.Google Scholar
Orton, J. D., & Weick, K. E. 1990. Loosely coupled systems: A reconceptualization. Academy of Management Review, 15(2): 203223.CrossRefGoogle Scholar
Ostrom, E. 1990. Governing the commons: The evolution of institutions for collective action. New York: Cambridge University Press.CrossRefGoogle Scholar
Peng, M. W., & Luo, . 2000. Managerial ties and firm performance in a transition economy: The nature of a micro-macro link. Academy of Management Journal, 43(3): 486501.Google Scholar
Qian, Y., Roland, G., & Xu, C. 1999. Why is China different from eastern Europe? Perspectives from organization theory. European Economic Review, 43(1): 10851094.Google Scholar
Rothstein, B. 2015. The Chinese paradox of high growth and low quality of government: The cadre organization meets Max Weber. Governance, 28(4): 533548.CrossRefGoogle Scholar
Schurmann, F. 1968. Ideology and organization in communist China. Berkeley: University of California Press.CrossRefGoogle Scholar
Schwartz, B. I. 1985. The world of thought in ancient China. Cambridge: The Belknap Press of Harvard University Press.Google Scholar
Selznick, P. 1949. Tva and the grass roots: A study in the sociology of formal organization. Berkeley: University of California Press.Google Scholar
Selznick, P. 1952. The organizational weapon: A study of Bolshevik strategy and tactics. Santa Monica, CA: Rand Corp.Google Scholar
Shirk, S. L. 1993. The political logic of economic reform in China. Berkeley: University of California Press.CrossRefGoogle Scholar
Shue, V. 1988. The reach of the state: Sketches of the Chinese body politic. Stanford: Stanford University Press.Google Scholar
Stinchcombe, A. L. 1965. Social structure and organizations. In March, J. G. (Ed.), Handbook of organizations: 142193. Chicago: Rand McNally.Google Scholar
Sun, L., & Guo, Y. 2000. ‘Ruanying Jianshi’: Zhengshi quanli feizhengshi yunzuo de guocheng fenxi: Huabei B zhen shouliang de ge'an yanjiu [‘Both hard and soft’: Process analysis of the informal operation of formal power: A case study of grain collection in B town, North China]. Qinghua Shehuixue Pinglun (Tsinghua Sociology Review], Special Issue: 2146.Google Scholar
Swidler, A. 1986. Culture in action: Symbols and strategies. American Sociological Review, 51(2): 273286.CrossRefGoogle Scholar
Tilly, C. 1986. The contentious French. Cambridge: Belknap Press of Harvard University Press.Google Scholar
Walder, A. G. 1986. Communist neo-traditionalism: Work and authority in Chinese industry. Berkeley: University of California Press.Google Scholar
Walder, A. G. 1995. Local governments as industrial firms: An organizational analysis of China's transitional economy. American Journal of Sociology, 101(2): 263301.CrossRefGoogle Scholar
Wank, D. L. 1999. Commodifying communism: Business, trust, and politics in a Chinese city. New York: Cambridge University Press.Google Scholar
Warner, M. 2010. In search of Confucian HRM: Theory and practice in greater China and beyond. The International Journal of Human Resource Management, 21(12): 20532078.CrossRefGoogle Scholar
Weber, M. 1946. From Max Weber: Essays in sociology translated, edited, and with an introduction by H. H. Gerth and C. Wright Mills. New York: Oxford University Press.Google Scholar
Weber, M. 1968. The religion of China: Confucianism and taoism. New York: Free Press.Google Scholar
Weber, M. 1978. Economy and society: An outline of interpretive sociology. Berkeley: University of California Press.Google Scholar
Weick, K. E. 1976. Educational organizations as loosely coupled systems. Administrative Science Quarterly, 21(1): 119.CrossRefGoogle Scholar
Whiting, S. H. 2000. Power and wealth in rural China: The political economy of institutional change. New York: Cambridge University Press.CrossRefGoogle Scholar
Whyte, M. K. 1973. Bureaucracy and modernization in China: The Maoist critique. Amerian Sociological Review, 38(4): 149163.CrossRefGoogle Scholar
Williamson, O. E. 1985. The economic institutions of capitalism: Firms, markets, relational contracting. New York: Free Press.Google Scholar
Wilson, J. Q. 1975. The rise of the bureaucratic state. The Public Interest, 41: 77103.Google Scholar
Wu, Y. 2007. Xiaocheng xuanxiao: Yige xiangzhen zhengzhi yunzuo de yanyi yu chanshi [Noises in a small town: Scenes and interpretations of political processes in a small town]. Beijing: Shenghuo Dushu Xinzhi Sanlian Shudian.Google Scholar
Xu, C. 2011. The fundamental institutions of China's reforms and development. Journal of Economic Literature, 49(4): 10761151.CrossRefGoogle Scholar
Yan, Y. 1996. The flow of gifts: Reciprocity and social networks in a Chinese village. Stanford: Stanford University Press.Google Scholar
Yang, M. 2002. The resilience of guanxi and its new deployments: A critique of some new guanxi scholarship. China Quarterly, 170: 459476.CrossRefGoogle Scholar
Yang, D. L. 2004. Remaking the Chinese leviathan: Market transition and the politics of governance in China. Stanford: Stanford University Press.Google Scholar
Ying, X. 2001. Dahe yimin shangfang de gushi [The story of immigration petitions in dahe]. Beijing: Sanlian Chubanshe.Google Scholar
Ying, Z., Warner, M., & Rowley, C. 2007. Human resource management with ‘Asian’ characteristics: A hybrid people-management system in East Asia. The International Journal of Human Resource Management, 18(5): 745768.Google Scholar
Zhou, X. 2010. The institutional logic of collusion among local governments in China. Modern China, 36(1): 4778.CrossRefGoogle Scholar
Zhou, F. 2012a. Yiliweili: Cziaheng guanxi yu difang zhengfu xingwei [In pursuit of interests: Fiscal relationships and local government behavior]. Shanghai: Shanghai Sanlian Shudian.Google Scholar
Zhou, X. 2012b. Campaign-style mobilization: Further reflections on the institutional logic of governance in China. Kaifang Shidai (Open Times), 9: 100120.Google Scholar
Zhou, X. 2013. Guojia zhili luoji yu zhongguo guanliao tizhi: Yige weibo lilun shijiao (The logic of state governance and the Chinese bureaucracy: A Weberian approach). Kaifang Shidai (Open Times), 3: 528.Google Scholar
Zhou, L.-a. 2017. Zhuanxingzhong de difang zhengfu: Guanyuan jili yu zhili (di'er ban) [Local government in transition: Officials’ incentives and governance (second edition)]. Shanghai: Gezhi Chubanshe.Google Scholar
Zhou, X. 2019. Lun zhongguo guanliao tizhizhong de feizhengshi zhidu (Informal institutions in the Chinese bureaucracy: An essay). Qinghua Shehui Kexue (Tsinghua Social Sciences), 1(1): 142.Google Scholar
Zhou, X., Lian, H., Ortolano, L., & Ye, Y. 2013. A behavioral model of muddling through in the Chinese bureaucracy: The case of environmental protection. The China Journal, 70(July): 120147.CrossRefGoogle Scholar