Chinese Democratization in Perspective: Electorates and Selectorates at the Township Level

Abstract

Progress in democratization is widely judged by how well elections function as instruments allowing ordinary citizens to choose political leaders to represent their preferences. In January 1999, I travelled to villages and towns in Chongqing as a member of a Carter Center delegation invited by the National People's Congress (NPC) to observe the electoral processes that produce delegates to people's congresses, chairmen and deputy chairmen of these congresses, and government leaders at the township level. The Carter Center is an American nongovernment organization associated with Emory University, with an executive board chaired by former President Carter. As part of its mission to enhance freedom and democracy, the Center has observed and reported on Chinese village elections in delegation visits that began in 1996. Ours was the first delegation to observe people's congress elections, however. Only weeks before we visited Chongqing, voters a hundred miles away, in Sichuan's Buyun township, elected a head of township government in an unprecedented exercise of authority vested constitutionally and legally in their people's congress delegates. Juxtaposing the experience of the Buyun elections with the normal processes by which township leaders emerge offers a useful perspective from which to consider electoral mechanisms of representation in China today. My main conclusion is that these mechanisms are designed to align voter preferences with the preferences of Communist Party committees. Ordinary voters and people's congress delegates have choices among candidates in elections at the township level, but these choices are normally constrained by Communist Party committee pre-selection of candidates designated for positions of leadership.