Amidst all the uninformed opinions about the constitutional changes at China’s recent two sessions of parliament, this piece by Eric Li is the most balanced I have read (in the Global Times.). The only point with I disagree somewhat concerns the merging party and state. The reason is that Xi Jinping has been promoting China’s unique multi-party system more than ever before. The nine political parties all play a role.
Why Xi’s lifting of term limits is a good thing
SHANGHAI — Western media and the Chinese chattering classes have been in an uproar since China’s National People’s Congress approved constitutional changes that included lifting the two-term presidential limit. China approves “president for life,” proclaimed Western media.
But this misinterprets the nature of the development. And the world appears to be overlooking consequential political reforms taking place in China that will impact our collective future for the better.
The presidential term limit has no bearing on how long a top Chinese leader can stay in power and lifting it by no means allows anyone to rule for life. In fact, the position of real power — the general secretary of the Chinese Communist Party Central Committee — has never had term limits. The most recent draft of China’s constitution, written in 1982, set the presidency as a symbolic head of state, with no actual power. Although the two offices happened to have been occupied by the same person for more than 25 years since Jiang Zemin, the institutional mechanics of the offices are rather separate.
Formally unifying these two positions at the very top will transform the entire Chinese governance structure by institutionally fusing the party and the state. This reform is good for China simply because the party has developed into the most competent national political institution in the world today.
As to the issue of lifetime rule, the party does have institutional mechanisms, both mandatory and customary, that govern officials’ retirement. In fact, the party constitution specifically states that no position has lifetime tenure. This system has been developed over decades and covers the many tiers of the party’s organizational structure, from the Politburo to ministerial and provincial positions. Within this framework, it is possible for Xi to lead the country for longer than his recent predecessors. But not for life.
Age limits have varied over time and differ based on position. The custom for most senior leaders in recent years has been to retire at the age of 68, which is often extended to complete a term. Exceptions have been made for the position of general secretary (one served, successfully, through his late 70’s). But still, it’s always finite.
However, eliminating the presidential term limit is still significant. It is part and parcel of highly consequential and, in my view, constructive political reforms. These reforms were set in motion at the 18th party congress held in 2012 and were a particular focus at the third plenum in 2013. I wrote then that the fusing of party and state would be the most far-reaching political transformation in Chinese governance. The completion of the current constitutional reform is the culmination of that process.
Since the founding of the People’s Republic in 1949, the leadership of the party has been central to China’s political DNA. However, institutionally the system has gone through significant growing pains. At first, China adopted the Soviet system that separated, at least on the institutional level, the party and government. The top organs — the party central committee, the National People’s Congress and the state council were parallel. But in reality, the party led everything. This produced significant conflicts that some have blamed as partially responsible for the disastrous Cultural Revolution.
When former Chinese leader Deng Xiaoping began his reforms over 40 years ago, he pushed a policy of administrative separation between party and government. But that was due to the particular circumstances of post-Cultural Revolution China. At the time, many senior leaders who were purged by Mao Zedong were rehabilitated and returned to their previous positions.
The party was just emerging from a period of upheaval, and those officials all came from the era of the centrally planned economy. China needed market economics. Deng’s policy unleashed younger and more forward-looking governing forces to execute the reform agenda. But more importantly, he also focused great energy on rebuilding the party institution.
In the following decades, the party has developed into one of the most elaborate and effective governing institutions in the world and, I would argue, in history. It is responsible for achieving what’s known as the greatest improvement in standard of living for the largest number of people in the shortest amount of time.
The party has now stepped forward to the front and center of Chinese governance. This constitutional reform further enshrines the party’s political centrality by extending the wording of party leadership from the preamble to the body of the constitution. At the governing level, the reform creates a super agency, the National Supervisory Commission, to combat corruption. It is an extension of the party’s Central Disciplinary and Inspection Commission and will further institutionalize the tremendous anti-corruption drive executed by the party commission over the past five years.
It is in this context that the removal of a presidential term limit is so significant. While the party’s leadership has always been politically paramount, the administrative separation of party and government has produced institutional contradictions and confusion. As China increasingly becomes a major power in the world, the office of the president has assumed greater importance, especially in China’s interactions with the rest of the world.
Bringing the presidency’s institutional mechanics in line with the office of party general secretary, and for them to be occupied by the same person, will create a more efficient and coherent governing structure and more transparency and predictability in China’s dealings with the world. It lifts the veil of pretense that, somehow, the party and state governance are not one, which is untrue and wholly unnecessary and counterproductive at this stage of China’s development. It signals the maturing of the Chinese political system that shows the world clearly how decisions are made and who is in charge.
The current Chinese system is a good combination of principle and flexibility. The principle of no lifetime tenure, combined with collective leadership and retirement rules, prevent unchecked rule for life by the wrong person. But a degree of flexibility in the retirement mechanism allows the right leader to govern longer. Xi will retire someday. But as long as he continues to lead successfully, that day will be a long way off.
I dare say that Xi has done more for China in five years than Bill Clinton, George Bush and Barack Obama combined did for the United States in 25 years. On the watches of those three American leaders, with slow and incompetent reforms and major catastrophes such as the Iraq War and the financial crisis, the U.S. managed to squander what was arguably the greatest advantage any nation ever had in history at the end of the Cold War and is now mired in dysfunction and losing its leadership position in the world. Meanwhile, opinion surveys, such as this one by the Harvard Kennedy School, show Xi consistently receiving the highest domestic approval ratings of any world leader.
It would be a mistake to judge that Xi is putting himself above the party and the nation. On the contrary, a major theme of his governing philosophy has been the centrality of the party as an institution. And in today’s China, both society and the party are much more robust and pluralistic than the time when Deng came to power.
The feedback mechanisms and channels available to China’s leaders to effectively respond to the needs of society are much more abundant today. It was popular discontent with pollution that spurred Xi’s administration into action and achieved, in just three years, the extraordinary improvement in air quality that took London and Los Angeles decades to accomplish — and the latter went through major deindustrialization, while China remains a growing industrial power.
Xi is now beginning his second term. No one knows for sure how long he will serve. But with his impressive life track record, it is understandable that there are genuine sentiments for him to lead China for a long time. Sadly, liberal democracy in its current state seems incapable of producing a leader half as good.