When China Rules the World (37 page)

Some form of democratic governance is now universal in the developed world, where economic take-off was achieved a century or more ago. In contrast, the picture predictably remains uneven in the developing world, with democracy for the most part either unusual or, at best, somewhat flawed. A similar pattern concerning democracy and levels of development broadly prevails in East Asia. Japan, as we have seen, did not achieve anything like widespread suffrage until well after its economic take-off. None of the first Asian tigers - South Korea, Taiwan, Hong Kong and Singapore - achieved take-off under democratic conditions: South Korea and Taiwan were governed by far-sighted military dictatorships, Hong Kong was a British colony devoid of democracy, while Singapore enjoyed what might be described as a highly authoritarian and contrived democracy. All, though, were blessed with efficient and strategic administrations. As developmental states, the legitimacy of their governments rested in large part on their ability to deliver rapid economic growth and rising living standards rather than a popular mandate. Each of these countries has now achieved a level of development and standard of living commensurate with parts of Western Europe. Hong Kong, under Chinese rule since 1997, enjoys very limited elements of democracy; Singapore’s governance remains a highly authoritarian democracy; while South Korea and Taiwan have both acquired universal suffrage and multi-party systems. These last examples, together with Japan, confirm that industrialization and economic prosperity generally provide more propitious conditions for the growth of democratic forms.

In this light it seems misconceived to argue that China is now ready for, and should become, more or less forthwith, a multi-party democracy based on universal suffrage. The country is only halfway through its industrial revolution, with over 50 per cent of the population still living and working in the countryside. It is true that India remains much less developed than China and yet possesses what, by historical standards, is a remarkable democracy; but in this respect India has so far been history’s great exception. An interesting example is Indonesia, which, though an extremely diverse archipelago, now enjoys a fragile democracy. China’s overriding priority at present is economic growth. It is determined to allow nothing to distract it from this goal. By seeking to avoid getting into an unnecessary conflicts and pursuing good relations with the United States, its foreign policy since 1980 has been directed towards ensuring that all its energy is focused on this objective. There is also a more general point. There is an inherent authoritarianism involved in the process of take-off and modernization - the need to concentrate society’s resources on a single objective - which, judging by history, people are prepared to tolerate because their own lives are dominated by the exigencies of economic survival and the desire to escape from poverty. In a sense, the attitude of the people mirrors that of government: political authoritarianism complements the authoritarian and compulsive circumstances of everyday life, with its inherent lack of choice. This helps to explain why authoritarianism rather than democracy has been the normal characteristic of economic take-off. As many have observed, there is little demand for democracy from within China. Indeed, if anything, there has been a turn away from democracy since Tiananmen Square. A combination of a fear of instability following the events of 1989, the disintegration of the Soviet Union, and what are seen as the difficulties experienced by Indonesia, Thailand and Taiwan as democracies - and also the Philippines and India - have reinforced the view of many Chinese that this is not an immediate issue: that, on the contrary, it is liable to represent a distraction from the main task of sustaining the country’s economic growth.
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Implicit in this is the not misplaced view that any move towards democracy is likely to embroil the country in considerable chaos and turmoil.

Those Westerners - what we might call the ultra-democrats - who believe that democracy is more important at all times than any other matter, would, of course, take issue with this. Bruce Gilley, for example, argues that Russia could end up better off, at least in the long run, than China because it has already addressed the issue of democracy. Given China’s hugely more impressive economic growth and Russia’s somewhat precarious democracy, this judgement seems tenuous to say the least. Gilley also suggests that: ‘Debates about issues like compulsory voting, fair electoral systems, money in politics, judicial review, and the like will be the dominant “historical” issues of our time.’
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Major issues in the West, for sure, but in a world grap pling with the problem of one superpower, increasingly preoccupied with how to handle the rise of China, and also perhaps India, where ethnic conflict often presents nation-states with their greatest challenge and where for many the task of economic take-off remains all-consuming, the idea that a cluster of issues revolving around democracy will be the dominant global issue of our time betrays a highly parochial Western mentality.

While there is little sign of any significant pressure in China for what might loosely be described as Western-style democracy, there is, nonetheless, a continuing and growing demand for the accountability of government at local, provincial and national levels. So how should we approach the question of democracy in China? China is roughly at the halfway point of its economic take-off, perhaps beyond. Even twenty years hence, it is estimated that around 20 per cent of its population will still work on the land. There are many imponderables, but assuming that economic growth continues at a relatively rapid rate and political stability is broadly maintained, then it seems reasonable to expect serious moves towards democratization within that kind of timescale, possibly less.
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In developmental terms, this would still be rather sooner than was the case with the other Asian tigers or the West. It should also be borne in mind that the political traditions of China are neither favourable nor orientated towards democracy. There is a very weak tradition of popular accountability, and state sovereignty has been preferred to popular sovereignty: government is, in effect, answerable to itself via the feedback loop of ethical norms. This is reflected in the central values that govern political behaviour, which can be summarized as sincerity, loyalty, reliability and steadfastness,
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all of which derive from the influence of Confucianism, and, to a lesser extent, Communism. In contrast, the equivalent Western values are accountability, representation and participation. There is, moreover, as we have seen, no tradition of independent organization and only a very weak notion of civil society. Power resides overwhelmingly in the state. Interest groups, rather than aspiring to represent themselves collectively, seek to advance their claims by private lobbying and achieving some kind of accommodation with the state. Instead of making demands on or confronting government, interest groups prefer to associate with power on an individual basis.

What serves to greatly complicate the question of democracy is that China has the size and diversity of a continent, although the site of democracy, globally speaking, has always been, and remains, exclusively the nation-state. There are no multinational, regional or global institutions that could be described as democratic.
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Their invocation to a modicum of representivity is invariably via the nation-states that comprise them. The classic example of this phenomenon is the European Union, which makes no real claim to be democratic other than by virtue of its member-states - the European Parliament being elected but largely powerless. One of the reasons that democracy has worked in India, which is also of a continental scale, might in part be because it is far looser and more decentralized than China, so that individual states can act, in some degree, like quasi nation-states. This is certainly not the case in China, which for thousands of years has prided itself on its centralized and unitary status, even though, as we have seen, this has in practice involved a high degree of negotiated decentralization. While the more developed provinces, notably those on the eastern and southern seaboard, may already be in a position to embrace a more democratic form of polity, their progress in that direction is bound to be constrained by the far less developed condition of the majority of the country. It is possible, however, that more developed cities like Shenzhen and Shanghai may be allowed to introduce democratic reforms in advance of the rest of the country. In 2008 the Shenzhen mayor Xu Zongheng claimed that direct voting would in future account for 70 per cent of the city’s residential and village committees.
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Meanwhile, the Standing Committee of the National People’s Congress issued a ruling at the end of 2007 that it would consider allowing direct elections for Hong Kong’s leader in 2017; at present half its Legislative Council is elected. As a civilization-state that has always allowed and been characterized in practice by considerable diversity, such a development is not inconceivable.

Finally, we should bear in mind that China is the home of Confucian thought and practice, and consequently has experienced Confucianism in a more complete and doctrinaire form than Japan and Korea, where it was a Chinese import and therefore never enjoyed quite the same degree of overweening influence as in China. As a result, it was easier for these countries to embrace democracy by, in effect, adding a new political layer to coexist along with the older Confucian traditions and practices. It will certainly be possible for China to do the same, but the weight of what might be described as Confucian orthodoxy is likely to make it more difficult.
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In the long run it seems rather unlikely, given the underlying pressures for democracy that exist within increasingly sophisticated, diverse and prosperous societies, that China will be able to resist the process of democratization. The interesting question is what democracy might look like in China. There is a strong tendency in the West to view democracy in terms of a ‘one size fits all’ approach. In fact, the form of democracy varies greatly according to the history, traditions and culture of a society. There is no reason to believe, except on grounds of Eurocentrism, that the very specific conditions that shaped European society (and European-derived nations like the United States), and therefore European democracy, will result in the same kind of democratic structures elsewhere.
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This is abundantly clear in the case of Japan. It certainly possesses some of the trappings of democracy that we are familiar with in the West - not surprisingly, given that the US authored Japan’s post-war constitution following its defeat - most notably universal suffrage and a multi-party system. Yet it is immediately evident that in practice the system works very differently. The Liberal Democrats have been almost continuously in power since the mid fifties. The other parties, apart from the occasional period of coalition government, have found themselves in permanent opposition and wield rather less power and enjoy rather less importance in the political life of the country than the various factions within the Liberal Democrats. Moreover, as Karel van Wolferen has observed, much of the real power is vested in the civil service, especially in particular ministries, rather than in the government itself: in other words, in that part of the state that is permanently constituted rather than in that part that is elected. The cabinet, for example, barely meets and when it does its business is largely ceremonial.
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Given these underlying continuities, the significance that attaches to elections - and, therefore, popular sovereignty - is much less than in the Western case. Reflecting the hierarchical character of society and Confucian influence, power has a permanent and unchanging quality that is relatively unaffected by the electoral process.

Whatever democratic political system evolves in China will bear the heavy imprint of its Confucian past. It is more difficult to judge the longer-term impact of Communism because its duration will have been far more limited. There are, though, important continuities between Confucianism and Communism - for example, in the notion of a special caste of political leadership, Confucian in the one case, Leninist in the other.
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In North-East Asia - for these purposes, Japan, South Korea, Taiwan and Vietnam - the continuing influence of the Confucian tradition is palpable in the emphasis on education, the structure of the family, the central role of the bureaucracy and the commitment to harmony.
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Because of the presence of a Communist government, this was, until 1978, perhaps less apparent in China, but there has been a marked revival in Confucian influence since then, a process initiated by the government during the nineties,
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but which has increasingly acquired a momentum of its own.
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Reflecting Confucian influence, an editorial in the
People’s Daily
argued that in order to build a market economy, it was necessary to promote ‘the rule of virtue while developing the rule of law’.
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In March 2007 the prime minister Wen Jiabao remarked: ‘From Confucius to Sun Yat-sen, the traditional culture of the Chinese nation has numerous precious elements, many positive aspects regarding the nature of the people and democracy. For example, it stresses love and humanity, community, harmony among different viewpoints, and sharing the world in common. ’
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Communist Party officials in Henan province are now, amongst other things, assessed on the basis of Confucian values such as filial piety and family responsibility, while secondary school children are once more being taught the Confucian classics
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and Confucius’s birthday is again being celebrated.
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On a practical level, the Party is now placing a new kind of emphasis on the importance of the obligations and duties shown by its cadres towards the people they represent. As part of their training, they are given test cases in which they are expected not just to consult their superiors as before, but also, more importantly, to listen to the people. This new attitude has been reflected in the way in which public officials have apologized for their failures in the Sichuan earthquake and milk scandal - in a manner reminiscent of the behaviour of shamed Japanese government and corporate leaders - and resigned. Significantly, the government has chosen to use the name Confucius Institutes for the numerous Chinese cultural and language centres which it has been establishing around the world. With the decline of Marxism, the turn towards Confucius in a country so steeped in its ethical and moral discourse is predictable.
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It can be argued, in any case, that those parts of Marxism that have had most impact in China were the ones that most chimed with the Confucian tradition - for example, self-criticism (mirroring the Confucian idea that one should direct criticism at oneself before others), the idea that rulers should be morally upright and the invoking of model workers as an example to others; by the same token, those Marxist ideas that failed were those that were most inimical to Confucianism. Even the fact that Chinese political leaders dye their hair black can be traced back to the Mencian proposition that white-haired people should be cared for rather than engaged in heavy work. Most importantly of all, Confucian ideas remain embedded in the fabric of the culture: filial piety is still widely practised and endorsed, including the legal requirement that adult children care for their elderly parents. A favourite theme of Chinese soaps concerns relationships with elderly parents. An obvious and striking characteristic of Chinese restaurants, in contrast to Western ones, is the frequency with which one sees the extended family eating together, a tradition reflected in the ubiquity of the large circular table.
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