In or outside the box? Citizen action between institutional and extra-institutional channels in Chinese environmental governance

Abstract

Authoritarian leaders around the world have recognized that citizen engagement is a core element of successful environmental governance. Faced with a massive environmental crisis, also authoritarian China is mobilizing its citizens to address its ecological problems. However, taking a functional approach to public participation, the Chinese party-state like other authoritarian regimes attempts to channel citizen action into institutional pathways and away from more contentious extra-institutional ones. Little research has investigated citizens’ reactions to such attempts. This paper analyses citizen participation between institutional and extra-institutional venues at the case of Chinese environmental governance. It finds that Chinese citizens use a mix of both channel types, but are overall more drawn to extra-institutional channels despite the risks. Moreover, our findings point to different motivations for the use of venues: personal grievances are more linked with the use of institutional channels, broader environmental concerns with extra-institutional ones. This shows, first, that channeling attempts have not yet been successful in crowding out noninstitutional channels. And second, that citizens seem to attach different meanings to the different channel types. This will make it hard for the Chinese and other authoritarian regimes to phase out extra-institutional action without severe losses for the effectiveness of environmental governance.