A Supplement to Heilmann’s “Experimentation Under Hierarchy”: The Politics of Chinese Industrial Innovation in the Xi Era

ABSTRACT: Sebastian Heilmann has described the Chinese government’s policy innovation and diffusion process as “experimentation under hierarchy,” and this concept has undoubtedly had a major influence in academic circles. Heilmann argues that “model experiments” (pilot projects) and “proceeding from point to surface” (diffusion) are the two key elements of China’s reform model. This article proposes a third element, “nationwide coordinated work.” We find that the publication of a document on a particular reform policy by the central authorities gives local governments the green light to formulate relevant policies based on the centre’s direction. The localities will then give feedback based on their experience so that the centre can amend its regulations accordingly. Under the overall control of “nationwide coordinated work,” an experimental policy undergoes a circular process of implementation and adaptation designed to make policies more specific and practical. KEYWORDS: experimentation under hierarchy, nationwide coordinated work, quanguo yipanqi, pilot project, policy adaptation, shuang chuang.