District government as a policy entrepreneur: Understanding policy experimentation in China’s Wujin District

Inconsistent policy implementation has been widely observed in Chinese institutional reforms. The central government has experimented with policymaking in a strategic way against tensions between inherited regulatory deficiencies and ongoing development. And, despite the central government’s authority over local governments, the latter operate with a remarkable degree of discretion. By synthesizing policy experimentation theories and policy entrepreneurship, we consider the Wujin District government, as a policy entrepreneur that identified and acted within a “policy window” and explore how it interpreted and actualized policy tasks set by the central government in relation to the rural land reform. The central government designated 33 county-level administrations as testbeds for removing institutional obstacles to coordinated urban-rural land governance. The Wujin District was granted greater administrative autonomy pertinent to local reform initiatives. Further, the Wujin District reorganized its inter-governmental relations by delegating power downward to forge a reform coalition. Critically, Wujin succeeded in aligning local development priorities with central policy goals. Taking an agent-centric perspective, we also examine historical and contextual factors relevant for behavioral changes. The findings indicate that the Wujin District government acted as an effective policy entrepreneur and on this basis made crucial contributions to policy innovation.