a handy guide to that thing you probably haven't heard about.
Somewhere on the distant edge of your current-affairs radar, the faint notion that events of a vaguely political nature are currently underway in China may have begun to emerge as a fuzzy, indistinct blip.
Perhaps you’ve been dimly aware of state premier ‘grandpa’ Wen Jiabao’s delivery of the State Council’s annual report (in a speech lasting well over two hours, Papa Wen spent a good deal of time hurling about the word faith as if he’d just invented it, as he has already done at Davos and elsewhere this year. If this behaviour persists much longer, he’s liable to end up sounding like either Gordon Brown or George Michael, neither of which is particularly seemly for a man with this much social capital).
More likely, you might have picked up on People’s Congress chairman Wu Bangguo’s assertion that China has no plans to adopt western-style parliamentary democracy in the near future (Absolutely No Democracy for China Ever Ever Ever! – BBC; more on this later).
Either way, the news that China’s NPC and NPPCC are busy holding their annual double-plenum is unlikely to inspire much excitement. The bodies occupy a confusing position within China’s dizzyingly complicated government structure (which, in many respects, still serves as little more than a front for a highly centralised authoritarian core). According to the epithet-flinging sages at the Guardian, all this amounts to is yet another meeting of the country’s ‘rubber-stamp parliament’, not worthy of the attention of us parliamentary democratic types.
Though there is an element of truth in this, the horse-trading, jockeying for position, political haggling, and genuine all-out policy debate taking place in the corridors and meeting-rooms of Beijing’s Great Hall of the People is becoming more significant with each passing year, and forms a rare and fascinating window onto the realm of modern Chinese politics in motion.
Here, then, is a pocked guide to the Third Plenum of the 10th National People’s congress. Let’s start with the warm-up act.
The what? The NPPCC, or National People’s Political Consultative Conference.
Who’s involved? Bizarrely for a one-party state, NPPCC delegates are drawn mainly from the eight parties that make up the body of its ‘united front.’ Though they all toe the party line pretty closely today, the names of one or two belie the ossified remnants of a desperate and often tragic struggle for political compromise that took place in certain quarters following the end of World War II, as the nation slid back towards bloody civil war (the ‘China Democratic League’ spent its early days trying to drum up support for a ‘third way’ between the communists and the nationalists before being hijacked from the left, leaving many of its founding members to bear the full brunt of the political upheavals of the 50s and 60s).
The 2,000 odd delegates are chosen through a non-representative system of proposal and nomination, and include leading academics, professionals, intellectuals, and the occasional popular figure like Olympic hurdling champion Liu Xiang (who managed to stumble off the plane from the states just in time to attend the plenum’s closing ceremony). Broadly speaking, delegates are roughly analogous to the kind of people one might find stocking the majority of the shelves over at the House of Lords.
What is it meant to do? “Political consultation, democratic supervision, and political participation.” Essentially, a mechanism for ordinary citizens to play a direct role in overseeing the legislative activities of their government.
What does it actually do? Not much. NPPCC ‘proposals’ have no way of becoming legislation. Next to the NPC’s sleek ship of state, the NPPCC is a bit like a crazed gondolier, sputtering a host of largely unworkable, often ridiculous, yet occasionally intriguing proposals as he punts alongside. Many of the hundreds of proposals put forward are genuine reflections on current political talking points, allowing delegates to serve as a kind of foil for their colleagues next door at the NPC itself. Some, however, remain wonderfully ludicrous (the pick of this year’s crop include suggestions for everyone to start buying a kind of national costume in a bid to boost ‘patriotic’ consumerism, and a proposal to allow 17-year-olds to take their university entrance exams in classical Chinese).
All of which brings us to the main act…
The what? National People’s Congress.
Who’s involved? Technically speaking, this is the elected representative body of the people of China. NPC delegates are elected by and from a pool of local-level NPC’s, which in turn are elected directly by ordinary citizens. However, this is all slightly academic at the moment since most candidates are party-vetted, the number of competing candidates per seat is tightly controlled (usually about 120 candidates for every 100 seats), and electioneering is illegal.
What is it meant to do? Technically speaking, the NPC is the nation’s highest legislative body, representing the apex of the Chinese ‘state’ power structure (as opposed to the ‘party’ structure, with which it is intertwined). At its annual meetings, it discusses major policy initiatives and ratifies them into law, while its smaller, year-round Standing Committee is responsible for more day-to-day legislation.
What does it actually do? Though there still remains a certain whiff of the ‘rubber-stamp’ about it (China’s 4bn yuan stimulus package flitted by this year with barely a mention), the NPC has become an increasingly politicised body in recent years.
The fact that bills forged by the State Council (headed by Papa Wen, China’s equivalent of a cabinet) usually breeze through the NPC with little opposition at the voting stage often masks the torturous business of hammering out the details that can now take place over the course of events like the annual plenums, (a re-emergent by-product of a deep cultural tendency to try and reach consensus wherever possible).
While everyone involved still professes a fundamental loyalty to the party line, different delegates may hold wildly different opinions about the direction in which the country is headed and how best to get it there. Increasingly, NPC legislation represents not just the original intentions of the country’s leadership clique, but the compromise reached after these differing voices have had their say.
This brings us back to the issue of democratisation (yes, that old chesnut). While Wu Bangguo may have dismissed multi-party democracy out of hand, an increasingly vocal NPC presents intriguing possibilities. There is little doubt on this last point – this morning’s papers contain stories of one NPC delegate suggesting acidly that the body would be more effective if less time were spent on collective self-congratulation and more on discussing legislation, while others have called for greater and earlier transparency of central government proceedings, or full immunity of speech [should appear here later today] to allow for wider-ranging debate – comments that would have been unthinkable a few years back.
The question is where next? An empowered NPC and an overhauled, more competitive electoral system could, if properly handled, end up being every bit as ‘representative’ as many of the world’s supposed democracies. Is a one-party democratic model possible, or will the steering hand of the CCP only become more subtle in its stifling of genuine debate? Check back here in 20 years or so to find out!