Beyond the campaign-style enforcement: A consensual approach to bridge the environmental policy implementation gap

Existing studies on environmental policy implementation in China have largely been focused on the inadequacy of environmental policy implementation at local levels and the adversarial campaign-style enforcement used to remedy it, while overlooked other approaches to addressing environmental issues. We present a case in which a consensual approach was used to control water pollution and identify key factors contributing to the adoption and success of such an approach. The research unit is the process of water pollution control in Shandong Province from 2002 to 2011. During the case period, the pulp and paper industry (the leading polluting source) was regulated with gradually tightened water pollution discharge standards which were made and implemented in a consensual way, surface water quality was greatly improved, and the economic output of the regulated industry grew rapidly. Key factors contributing to the adoption and success of such an approach include the presence of a capable policy entrepreneur who played an important role in policy innovation, forging consensus building in policy making and facilitating consensual policy implementation; the deep and wide involvement of the regulated firms in the policy making process which allowed them to share know-how and express preferences; and the strong political support from provincial higher-ups which signaled strong political wills. The findings enrich our understanding of environmental policy enforcement in China by adding a set of internal factors to a literature pool focusing more on the the influence of such external factors as institutional incentiveson policy processes and outcomes.