Participatory budgeting and the party: Generating ‘citizens orderly participation’ through party-building in Shanghai

Abstract This article provides a qualitative examination of two cases of Participatory Budgeting (PB) in Shanghai – a long-running PB initiative in Minhang District, organised in cooperation with the District People’s Congress, and a one-off project in Yangjing Sub-district, Pudong, in 2017, jointly organised by a community foundation and residents’ committee. The article seeks to interrogate the relationship between the Party, state and society at the sub-municipal level through one ‘state-facing’ PB initiative and one ‘society-facing’ PB initiative. We reveal how PB is deeply embedded in Party structures and networks, formally in the case of Minhang and informally in the case of Yangjing. Our research contributes to three debates on participatory governance in urban China. Firstly, contrary to the existing literature, PB neither primarily ‘emancipates’ citizens nor off-loads budgetary decisions onto them; instead, PB contributes towards party-building and citizens’ orderly participation, thereby strengthening overall Party leadership. Secondly, we challenge the widely-used term ‘party-state’, instead separating out these three entities and showing how they serve distinct roles in grassroots governance innovations such as PB. Thirdly, we show how participatory mechanisms developed in one political and cultural context can have vastly differing effects when employed in another.