The Role of Research Institutions and Think Tanks in Linking Up Governance Evidence with Policy Making in China

This report, commissioned by the United Nations Development Programme (UNDP) Oslo Governance Centre (OGC), examines and assesses the role of research institutions and think tanks in linking up governance evidence with policymaking in China. It was presented at a joint OGC and International Development Research Centre (IDRC) event: Evidence on Governance into Policy, The Role of Research Institutes and Think Tanks, Jan 18-19 2009.

The authors start from the understanding that research institutes and think tanks can, in theory, play a crucial role not only in generating the knowledge and evidence needed to inform policymaking in a scientific sense, but also in informing and lending weight to particular policy positions, which can ultimately improve policymaking. In this context, the paper considers the case of China, which has seen rapid progress in the development of civil society and a rapid rise in the role of research institutes and think thanks in policymaking. The particular sector of policymaking considered in the paper is health.

Section 1 of the paper explores and presents a framework of analysis for tackling the knowledge-policy interface in China, based on the Overseas Development Institute (ODI) framework (2009) but with some modifications. (A review of the emergence of research institutes and think tanks and their role in influencing policy making in recent years in China is provided in Annex 1.) To contextualise the discussion and to give the issues a historical dimension, Section 2 provides a brief review of the recent history of health reforms in China. In Section 3, the authors examine how research institutions and think tanks have in recent years contributed to better governance in health policymaking by directly taking part in the process. They note here that: "The participation of the media and the general public in the [Chinese healthcare system reform] debate, beyond the formal think tanks and research institutes, has contributed to the enshrining of some minimum health equity as a basic principle in health policy making. However, subsequent demand-side driven research, focused on finding adequate policy solutions to the problems, have largely been confined to a few research institutes and think tanks. These research institutes and think tanks have, however, not only acted as producers of knowledge and evidence, but also as advocators for their favored policy position. And thanks to a highly liberal stance adopted by the government in this case, there has been continued participation of the media and general public in the issues. In net terms, while this highly participatory process has prolonged decision making, one expects better decisions eventually to emerge."

Section 4 considers some challenges that lie ahead for further improving the knowledge-policy link and for research institutes and think tanks to better play their role in this link in China. Among these challenges are the need for: increased democratisation in decision making; a strengthened role to civil society think tanks and research institutions; more scope and emphasis to supply-driven as opposed to demand-driven research; and more scope and emphasis to public discussions and to fuller articulation of interests and preferences by stakeholders. Specific communication-centred obstacles outlined here include:

• Limited access to information: "For a long time, in order to better understand and monitor the evolving developmental processes in the country, the government has invested hugely in collecting important data and information and has established various databases and statistical centers....However, while this wealth of information is by and large readily accessible to governmental think tanks, it is usually difficult if not impossible for civil society think tanks to access and obtain."
• Technocratic approaches: "Too often in China, policy making is dominated by technocratic approaches emphasizing the scientific and engineering side of things....But rather than this, why not simply involve all stakeholders in public discussions to allow them directly to express their preferences and attitudes to the matter, and to reach a consensus in some democratic manner?"
• Need to connect think tanks to the media and civil society: "The fast development of the Internet has contributed to the emergence of both a strengthened media and a strengthened civil society in China. In turn, this is expected to improve policy making. However, large room still exists for both the media and civil society to increase its role in influencing policies through evidence-based research, in collaboration with think tanks and research institutions."

In the paper's final section, the authors note that the "high level of openness and transparency, and the active involvement of various think tanks and research institutions in the recent health-care system reform debates, were made possible by a fairly liberal stance adopted by the political leadership to the issues....[O]ne expects such an open and transparent process eventually to improve the quality of the final decisions."