Urban Management in Authoritarian China: How the Smart City is Used to Enhance Comprehensive Law Enforcement

威权主义 中国 执法 政治学 执行 智慧城市 法学 业务 计算机安全 计算机科学 政治 物联网 民主
作者
Wen‐Hsuan Tsai,Ruihua Lin,Hsin Hsien Wang
出处
期刊:Journal of Contemporary China [Routledge]
卷期号:33 (148): 603-617
标识
DOI:10.1080/10670564.2023.2251020
摘要

ABSTRACT'Comprehensive law enforcement' is an important part of the Chinese Communist Party's (CCP's) thinking on urban management. It involves all government departments and units related to law enforcement working together to improve their administrative efficiency. Since 2009, the CCP has absorbed some elements of the Western concept of the 'smart city', including the use of big data analysis and technology in implementing and enforcing the law. At the heart of the Chinese smart city is the 'city brain'. For the CCP regime, the primary purpose of the smart city is to monitor society and improve the efficiency of urban management; making life more convenient for residents is a secondary consideration. In other words, this mechanism is strongly state led in nature, and it is aimed at ensuring the regime's survival by strengthening the CCP's capacity to govern. We found that due to incentives built into the cadre evaluation system, grassroots officials use the information gathered through smart city technology to achieve 'hard' law enforcement targets rather to improve people's lives.KEYWORDS: cadre evaluation systemcomprehensive law enforcementcity brainsmart cityurban management AcknowledgmentsWe thank the editor and reviewers for their suggestions. This research was partially supported by the National Science and Technology Council of Taiwan (No. 112-2423-H-001-009, No. 112-2410-H-004 -082 -MY2, and No. 111-2410-H-507 -003 -MY2).Disclosure statementNo potential conflict of interest was reported by the author(s).Notes1 Tom Christensen, Lisheng Dong, Martin Painter, and Richard M. Walker, 'Imitating the West? Evidence on Administrative Reform from the Upper Echelons of Chinese Provincial Government', Public Administration Review, Vol. 72, No. 6 (November/December 2012), pp. 798–806.2 'Shibada zhongguo jujiao' [Focus on the 18th National Congress of the Communist Party of China] (November 11, 2012), Gongchandangyuan wang [Communist Party Member Network], accessed: May 6, 2022, https://www.12371.cn/2012/11/11/ARTI1352603842960556.shtml?from=groupmessage.3 For a discussion of the Fourth Industrial Revolution, see Klaus Schwab, The Fourth Industrial Revolution (Geneva, Switzerland: World Economic Forum, 2016).4 Sotirios Paroutis, Mark Bennett, and Loizos Heracleous, 'A Strategic View on Smart City Technology: The Case of IBM Smarter Cities during a Recession', Technological Forecasting and Social Change, Vol. 89, (November 2014), pp. 262–263.5 Ben Green, The Smart Enough City: Putting Technology in Its Place to Reclaim Our Urban Future (Cambridge, Mass.: MIT Press, 2020).6 For example, the first news report on the smart city concept in the People's Daily appeared in 2009. An Lan, 'Shenyang miaozhun zhihui chengshi mubiao' [Shenyang aims at 'smart city'], Renmin ribao [People's Daily], November 6, 2009, p. 18.7 This adaptation of Western concepts has been described by some scholars as a 'translation of policy'. Diane Stone, 'Transfer and Translation of Policy', Policy Studies, Vol. 33, No. 6 (2012), pp. 483–499.8 Nini Xu, Yixia Ding, and Junhua Guo, 'Do Smart City Policies Make Cities More Innovative: Evidence from China', Journal of Asian Public Policy, Vol. 15, No. 1 (2020), pp. 1–17; Kaihui Huang, Weijie Luo, Weiwei Zhang, and Jinhai Li, 'Characteristics and Problems of Smart City Development in China', Smart Cities, No. 4 (2021), pp. 1403–1419.9 Fan Yang and Jian Xu, 'Privacy Concerns in China's Smart City Campaign: The Deficit of China's Cybersecurity Law', Asia and the Pacific Policy Studies, No. 5 (2018), pp. 533–543.10 The interviewees in this article are all cadres involved in the operation of the city brain or scholars who have long studied the development of smart cities. One of the authors taught in mainland China for many years and has maintained close ties with some of the interviewees since then. This relationship of trust gives the interview results a certain degree of credibility.11 David L. Shambaugh, China's Communist Party: Atrophy & Adaptation (Berkeley: University of California Press, 2008), p. 7.12 See Elizabeth J. Perry, Anyuan: Mining China's Revolutionary Tradition (Berkeley: University of California Press, 2012).13 Sebastian Heilmann and Elizabeth J. Perry, Mao's Invisible Hand: The Political Foundations of Adaptive Governance in China (Cambridge, Mass.: Harvard University Asia Center: Distributed by Harvard University Press, 2011).14 Elizabeth J. Perry, 'Studying Chinese Politics: Farewell to Revolution', The China Journal, No. 57 (January 2007), p. 5.15 Thomas P. Bernstein, 'Introduction: The Complexities of Learning from the Soviet Union', in Thomas P. Bernstein and Hua-yu Li eds., China Learns from the Soviet Union, 1949-Present (Lanham, Md.: Lexington Books, 2010), pp. 15–18.16 Maria Heimer, 'The Cadre Responsibility System and the Changing Needs of the Party', in Kjeld Erik Brodsgaard and Zheng Yongnian eds, The Chinese Communist Party in Reform (London: Routledge, 2006), p. 127.17 'Yikao qunzhong fuwu qunzhong, ba Fengqiao jingyan jianchihao fazhanhao' [Relying on the masses and serving the masses, in order to maintain and develop the 'Fengqiao experience'], Zhejiang ribao [Zhejiang Daily], October 13, 2013, Section 1.18 Diane Stone, 'Transfer and Translation of Policy', Policy Studies, Vol. 33, No. 6 (2012), pp. 483–499.19 Compared with traditional diplomatic models, public diplomacy places more emphasis on conducting diplomacy through non-governmental channels, such as individuals and civil society organizations.20 Wen-Hsuan Tsai, 'Enabling China's Voice to Be Heard by the World: Ideas and Operations of the Chinese Communist Party's External Propaganda System', Problems of Post-Communism, Vol. 64, No.3–4 (2017), p. 205.21 When the Chinese authorities practice chengguan, they often use violence and other illegal means, so for the outside world, this term has very negative connotations. For discussion of chengguan, see Lynette H. Ong, 'Thugs and Outsourcing of State Repression in China', The China Journal, Vol. 80 (July 2018), pp. 94–110.22 We do not claim that enhancement of law enforcement is the CCP's only motive for adopting the smart city, but from the perspective of party history, it is obvious that enhanced law enforcement is indeed an important consideration for the regime. Due to space limitations and the significance of the topic, we focus on the law enforcement aspect of the smart city in this article.23 Kellee S. Tsai, 'Evolutionary Governance in China: State-Society Interactions under Authoritarianism', in Szu-chien Hsu, Kellee S. Tsai, and Chun-chih Chang eds., Evolutionary Governance in China: State-Society Relations under Authoritarianism (Cambridge, Mass.; London: Harvard University Asia Center, 2021), pp. 3–37.24 Xia Shuzhang and Yan Jiaming, Zhongguo chengshi guanli [China's urban administration] (Beijing: World Affairs Press, 1990), pp. 3–4.25 James Z. Gao, The Communist Takeover of Hangzhou: The Transformation of City and Cadre, 1949–1954 (Honolulu: University of Hawaiʻi Press, 2004); Kenneth G. Lieberthal, Revolution and Tradition in Tientsin, 1949–1952 (Stanford, Calif.: Stanford University Press, 1980); Siu-Wai Wong, Bo-sin Tang, and Basil van Horen, 'Strategic Urban Management in China: A Case Study of Guangzhou Development District', Habitat International, Vol. 30, No. 3 (September 2006), pp. 645–667.26 From the perspective of historical institutionalism, institutional change will lock in the structure and foundations of the original system due to 'sunk costs'. In other words, the development of the path is to a large extent adjusted according to the path of the existing institution. Ellen M. Immergut, 'The Theoretical Core of the New Institutionalism', Politics & Society, Vol. 26, No. 1 (March 1998), pp. 16–22.27 Chen Songchuan, 'Zhongguo gongchandang chengshi guanli sixiang tanxi' [An analysis of the Chinese Communist Party's thought on urban administration], Studies on Socialism with Chinese Characteristics, No. 6 (2016), p. 66.28 Wang Lifeng, 'Zhongguo gongchandang lishishang zhaokai de lici chengshi gongzuohuiyi' [All previous urban work conferences held in the history of the CCP] (August 1, 2016), Renmin Wang [People's Net], accessed: June 15, 2023, http://dangshi.people.com.cn/BIG5/n1/2016/0801/c85037–28600430.html.29 E. M. Bjorklund, 'The Danwei: Socio-Spatial Characteristics of Work Units in China's Urban Society', Economic Geography, Vol. 62, No. 1 (January 1986), pp. 19–29.30 Vivienne Shue, The Reach of the State: Sketches of the Chinese Body Politic (Stanford, Calif.: Stanford University Press, 1988), pp. 134–135.31 Kam Wing Chan and Li Zhang, 'The Hukou System and Rural-Urban Migration in China: Processes and Changes', The China Quarterly, No. 160 (December 1999), pp. 818–855.32 Chao Wang, 'Babumen yuanhe kanbuhao yitouzhu'[Why the eight departments can't manage the affairs of pork production well] (March 26, 2011), Xinlang caijing [Sina Finance], accessed: December 12, 2022, http://finance.sina.com.cn/roll/20110326/01019596541.shtml.33 'Chengguan jianshi: chengshi zonghe guanli, chengguan jiancha yu zonghe zhifa fazhan yanjin' [A brief history of urban administration: The development and evolution of urban comprehensive administration, urban management supervision, and comprehensive law enforcement], Chengshi fuzaxing yu keji chuangxin [Urban Complexity and Technological Innovation], accessed: May 16, 2022, http://www.mgov.cn/complexity/city_management_history.htm.34 'Guanyu shenru tuijin chengshi zhifa tizhi gaige gaijin chengshi guanli gongzuo de zhidao yijian' [Guiding opinions on further promoting reform of the urban law enforcement system and improving urban administration] (December 30, 2015), Zhongguo zhengfu wang [China Government Net], accessed: May 15, 2022, http://www.gov.cn/zhengce/2015–12/30/content_5029663.htm.35 'Zhonggong zhongyang zhengzhiju zhaokai huiyi, Xi Jinping zhuchi huiyi' [The Political Bureau of the CPC Central Committee holds a meeting, Xi Jinping presides] (December 15, 2015), Renmin wang [People's Daily Online], accessed: April 22, 2022, http://cpc.people.com.cn/n1/2015/1215/c64094–27928668.html.36 Liu Xinkui, 'Dachengguan yu xietiao chengguan' [Great urban management and coordinated urban management], Urban Management and Science & Technology, No. 1 (2016), p. 19.37 Samantha Hoffman, 'China's Tech-Enhanced Authoritarianism', Journal of Democracy, Vol, 33, No. 2 (April 2022), p. 78.38 Yongnian Zheng, Technological Empowerment: The Internet, State, and Society in China (Stanford, Calif.: Stanford University Press, 2008); Rongbin Han, Contesting Cyberspace in China: Online Expression and Authoritarian Resilience (New York: Columbia University Press, 2018).39 'Rang chengshi gengcongming gengzhihui' [Making cities smarter and wiser] (April 4, 2020), Xinhua wang [Xinhuanet], accessed: May 23, 2022, http://www.xinhuanet.com/2020–04/04/c_1125814356.htm.40 'Zuicongming de suidao que jingbuqi yichang dayu zhihui chengshi gaibugai beiguo' [The 'smartest' tunnel cannot weather heavy rain, should smart cities take the blame?] (August 12, 2021), tengxun wang [Tencent], accessed: May 23, 2022, https://new. qq.com/omn/20210812/20210812A0BISR00.html.41 '2015 Zhongyang chengshi gongzuo huiyi gongbao quanwen' [2015 Central Urban Work Conference communiqué] (December 23, 2015), Zhongguo chengshi guihua wang [China Urban Planning Network], accessed: April 22, 2022, http://m.planning.org.cn/zx_news/3482.htm.42 Kjeld Erik Brødsgaard coined the term 'integrated fragmentation' to describe how, under Xi Jinping, the CCP is concentrating power at the center and trying to prevent the fragmentation of the bureaucracy. Kjeld Erik Brødsgaard, '"Fragmented Authoritarianism" or "Integrated Fragmentation"?' in Kjeld Erik Brødsgaard ed., Chinese Politics as Fragmented Authoritarianism: Earthquakes, Energy and Environment (New York: Routledge, 2017), pp. 38–55.43 'Xi Jinping zhuchi zhaokai zhongyang quanmian shenhua gaige lingdao xiaozu di 18 ci huiyi' [Xi Jinping presides over the 18th meeting of the Central Leading Group for Comprehensively Deepening Reform] (November 9, 2015), Gongchan dangyuan wang [Communist Party Member Network], accessed: April 22, 2022, https://news.12371.cn/2015/11/09/ARTI1447054113069125.shtml .44 Interview with students at a local party school, May 23, 2022.45 'Shiwei chengshi gongzuo weiyuanhui zhaokai quanti huiyi' [The municipal committee's urban work committee holds a plenary meeting] (March 23, 2021), Beijing Municipal People's Government, accessed: May 25, 2022, http://www.beijing.gov.cn/gate/big5/www.beijing.gov.cn/ywdt/hyxx/sw/202103/t20210323_2316646.html.46 'Yi dashuju jianshe yinling zonghe zhifa gaige' [Leading comprehensive law enforcement reform with big data construction], Beijing shi chengshi guanli zonghe xingzheng zhifaju [Beijing Municipal Administration Bureau of Law Enforcement], accessed: May 25, 2022, http://zw.cgj.beijing.gov.cn/wiki/viewEdition.aspx?id=8102&t=2.47 Vincent Mosco, The Smart City in a Digital World (Bingley: Emerald Publishing Limited, 2019), p. 97.48 Infrastructure failings can make some of the regime's more heavy-handed measures ineffective. For example, many problems have arisen with the 'grid system' the regime established to handle the zero COVID policy and health codes. Jianhua Xu and Siying He, 'Can Grid Governance Fix the Party-state's Broken Windows? A Study of Stability Maintenance in Grassroots China', The China Quarterly, Vol. 251 (September 2022), pp. 843–865.49 Suzanne E. Scoggins, Policing China: Street-level Cops in the Shadow of Protest (Ithaca, N.Y.: Cornell University Press, 2021).50 Mosco, The Smart City in a Digital World, pp. 33–34.51 'Chengshi danao rang shuju bangzhu chengshi sikao' [Urban brain enables data to help cities think], Qianfangke ji [SureKAM Corporation], August 28, 2020, accessed: July 5, 2022, https://ppfocus.com/hk/0/di3ab0916.html.52 'Xi Jinping: yunyong xinxihua rang chengshi biande geng congming' [Xi Jinping: Using informatization to make cities smarter], Renming wang [People's Daily Online], April 1, 2020, accessed: July 10, 2022, http://politics.people.com.cn/BIG5/n1/2020/0401/c1024–31657455. html.53 'Aliyun zhifu Wang Jian chushou yong dashuju dazao chengshi danao jiejue chengshi gonggong ziyuan wenti' [Wang Jian, the father of Alibaba Cloud, uses big data to create an 'City Brain' to solve the problem of urban public resources], Tech Orange, July 17, 2018, accessed: April 30, 2022, https://buzzorange.com/techorange/2018/07/17/explain-citybrain-ai/.54 'Wang Jian: chengshi danao jiang chengwei chengshi de jichu sheshi' [Wang Jian: 'City brain' will become urban infrastructure], Alibaba News, September 27, 2017, accessed: April 30, 2022, https://www.alibabanews.com/wangjian-chengshidanao-jiangchengweichengshidejichusheshi/.55 For a discussion of this, see Ruihua Lin, Hsin-Hsien Wang, and Wen-Hsuan Tsai, 'China's Cloud Governance: The Big Data Bureau and COVID-19 Crisis Management', China Review, Vol. 22, No. 1 (February 2022), pp. 135–158.56 In this article, we use the term 'big data bureau', but these bureaus have different names in different cities. For example, in Hangzhou it is the 'data resources administration', in Fuzhou it is the 'big data development management committee', in Wuxi it is the 'big data administration', and in Quanzhou it is the 'digital Quanzhou construction office'.57 Hangzhou chengshi danao xietong chuangxin jidi ketizu [Hangzhou City Brain Collaborative Innovation Base Research Group], Chengshi danao daolun [Introduction to the city brain] (Beijing: Publishing House of Electronics Industry, 2021), pp. 4–2.58 'Hangzhou chengshi danao rang chengshi geng congming' [Hangzhou's 'city brain' makes the city smarter] Zhejiang State-owned Assets Supervision and Administration Commission of the State Council website, October 11, 2021, accessed: July 9, 2022, http://gzw.zj.gov.cn/art/2021/10/11/art_1229565209_23350.html.59 For a discussion of grid workers, see Jean Christopher Mittelstaedt, 'The Grid Management System in Contemporary China: Grassroots Governance in Social Surveillance and Service Provision', China Information, Vol. 36, No. 1, (2022), pp. 3–22.60 The 'Wulin aunties' are Hangzhou's female volunteer workers. 'Chengshi danao + wulindama: xiacheng zhimi zuji yiqing yizhangwang' [City brain + Wulin aunties: In the city keeping out the epidemic], Zhejiang xinwen [Zhejiang News], January 29, 2020, accessed: July 9, 2022, https://zj.zjol.com.cn/news.html?id=1374094.61 'Wulindama + chengshi danao qiangqiang lianhe geichu chengshi zhili xinsilu' [Wulin Aunties + city brain join forces to provide new ideas for urban governance], Zhongxin wang zhejiang [China News Service Zhejiang], January 9, 2021, accessed: July 9, 2022, http://www.zj.chinanews.com.cn/jzkzj/2021-01-09/detail-ihafqhqh1624327.shtml.62 Jue Jiang, 'The Eyes and Ears of the Authoritarian Regime: Mass Reporting in China', Journal of Contemporary Asia, Vol. 51, No. 5 (2021), pp. 828–847.63 Interview with a staff member of Hangzhou City Brain Operation Command Center, interview number H21524, Hangzhou, May 24, 2021.64 Interview with a staff member of Hangzhou City Brain Operation Command Center, interview number H21524, Hangzhou, May 24, 2021.65 Chen Weiqiang, 'Hangzhou chengshi danao de shijian yu sikao' [The practice and thinking behind Hangzhou's city brain], Renmin wang [People's Daily Online], September 8, 2019, accessed: April 30, 2022, http://theory.people.com.cn/BIG5/n1/2019/0908/c40531–31342597.html.66 Interview with a staff member of the Hangzhou City Brain Operation Command Center, interview number H21524, Hangzhou, May 24, 2021.67 Hangzhou chengshi danao xietong chuangxin jidi ketizu [Hangzhou city brain collaborative innovation base research group], Chengshi danao daolun [Introduction to the city brain] (Beijing: Publishing House of Electronics Industry, 2021), pp. 38–40.68 Kevin J. O'Brien and Lianjiang Li, 'Selective Policy Implementation in Rural China', Comparative Politics, Vol. 31, No. 2 (January 1999), pp. 167–186.69 Maria Heimer, 'The Cadre Responsibility System and the Changing Needs of the Party', in Kjeld Erik Brodsgaard and Zheng Yongnian eds., The Chinese Communist Party in Reform (New York: Routledge, 2006), p. 127.70 'Cong Hangzhou paoxiang quanguo 200 ge chengshi huanyuan jiankangma dansheng quanguocheng' [Running from Hangzhou to 200 cities nationwide; how the health code was born], Zhejiang Ribao [Zhejiang Daily], March 16, 2020, https://baijiahao.baidu.com/s?id=1661307132161658707&wfr=spider&for=pc, accessed: July 22, 2022.71 Interview with a member of the Hangzhou Health Code Special Team, interview number H20606, Hangzhou, December 15, 2020.72 Interview with a member of the Hangzhou Health Code Special Team, interview number H20606, Hangzhou, December 15, 2020.73 The Hangzhou Citizen Card is voluntary, but it has such a wide range of functions and is so vigorously promoted by the city government that it is extremely popular.74 Interview with a member of the Hangzhou Health Code Special Team, interview number H20608, Hangzhou, December 15, 2020.75 'Chengshi danao: sikao chengshi wenming de disici langchao' [City brain: Thinking about the fourth wave of urban civilization], Renmin wang [People's Daily Online], December 28, 2017, http://finance.people.com.cn/BIG5/n1/2017/1228/c1004–29733347.html, accessed: June 24, 2022.76 'Guanyu yinfa zhejiangsheng chengshi danao jianshe yingyong xingdong fangan de tongzhi' [Notice on printing and distributing the action plan for city brain construction and application in Zhejiang Province], Department of Economy and Information Technology of Zhejiang Province, June 4, 2019, http://jxt.zj.gov.cn/art/2019/6/4/art_1229123405_627864.html, accessed: May 14, 2022.77 Interview with a staff member of Hangzhou City Brain Operation Command Center, interview number H21524, Hangzhou, May 24, 2021.78 Interview with a staff member of Hangzhou City Brain Operation Command Center, interview number H21525, Hangzhou, May 24, 2021.79 Thomas Heberer and René Trappel, "Evaluation Processes, Local Cadres' Behaviour and Local Development Processes", Journal of Contemporary China, Vol. 22, No. 84 (2013), pp. 1048–1066.80 Yanhua Deng, Kevin J. O'Brien, and Jiajian Chen, 'Enthusiastic Policy Implementation and Its Aftermath: The Sudden Expansion and Contraction of China's Microfinance for Women Programme', The China Quarterly, Vol. 234 (June 2018), pp. 506–526.81 Interview with a staff member of Hangzhou City Brain Operation Command Center, interview number H22105, Hangzhou, January 5, 2022.82 Scoggins, Policing China, pp. 9–10.83 'Zhongguo Henan jiankangma fuhong shijian yin gongfen zhuize hushenggao' [China's Henan.health code 'Fu Hong' incident draws public outrage and calls for accountability], BBC Chinese, June18, 2022, accessed: July 11, 2022, https://www.bbc.com/zhongwen/trad/chinese-news-61839814.84 'Biedui dai xinghao de xingchengka yidaoqie' [Itinerary cards with asterisks can't be 'one size fits all'], Pengpai xinwen [The Paper], January 18, 2022, accessed: July 25, 2022, http://m.thepaper.cn/kuaibao_detail.jsp?contid=16338440&from=kuaibao.85 For related discussion, see Kjeld Erik Brødsgaard, '"Fragmented Authoritarianism" or "Integrated Fragmentation"?' in Kjeld Erik Brødsgaard ed., Chinese Politics as Fragmented Authoritarianism: Earthquakes, Energy and Environment (New York: Routledge, 2017), pp. 38–55.Additional informationFundingThis work was supported by the National Science and Technology Council of Taiwan [No. 112-2423-H-001-009, No. 112-2410-H-004 -082 -MY2, and No. 111-2410-H-507 -003 -MY2].
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