How Do Toothless Tigers Bite? Extra-institutional Governance and Internet Censorship by Local Governments in China

China has constructed a rigorous state apparatus to control its online social content. To date, research has largely focused on the central government's cyber control, but the less studied local cyberspace administrative forces are also important. Our fieldwork and interviews at a county-level cyberspace administration office (CAO) in east China reveal that the local CAO had been rendered a “toothless tiger” with insufficient technology, power and labour. However, it has made up for these deficiencies by utilizing systems such as outsourced surveillance, organized mass reporting and personnel secondment. We contend that these practices, which we label “extra-institutional governance” (EIG), emerge when bureaucracies with limited resources face external pressures. The findings shed light on how censorship machines operate in local governments in China and reveal the general dynamics of how bureaucratic organizations adapt to environmental pressures.