China’s reform and opening-up policies over the past more than 40 years have brought remarkable achievements. Behind these economic successes lies the continuous enhancement of China’s national governance capacity. National governance is not limited to top-down management by the central government; it also encompasses governance at various local levels.
In recent years, China has paid greater attention to reform and innovation in grassroots governance. The modernization of grassroots governance refers to the use of modern concepts, methods, and technologies to manage and provide services to urban and rural communities, enabling people to enjoy more convenient, secure, and equitable lives. After years of experience, China’s capabilities in this area have increased significantly, becoming an important manifestation of people-centered modernization in China.
Contrary to some Western perspectives that characterize China as an authoritarian country lacking democratic mechanisms, grassroots governance in China is based on participation and cooperation among various actors and can be regarded as one of the experiences of governance and Chinese-style democracy. Therefore, China’s experience may offer valuable lessons for many developing countries, particularly non-Western countries. Focusing on the “Fengqiao Experience”[1], one of the important examples of grassroots governance in China, this article examines this issue.
1. Institutionalization of Grassroots Governance in China
Weaknesses in grassroots governance, particularly in rural areas, had long been one of China’s major challenges. A large population, relatively lower levels of public education, limited awareness among some farmers of their rights, and the absence of effective mechanisms for defending those rights had resulted in the accumulation of disputes and conflicts in rural areas. Urban communities also faced similar challenges in resolving disputes.
This situation gradually attracted the attention of China’s central government, and in recent years, the modernization of grassroots governance has become an important component of the national strategy.
In October 2019, the Fourth Plenary Session of the 19th Central Committee of the Communist Party of China was held with a focus on modernizing China’s system and capacity for national governance. For the first time, grassroots governance assumed an important position within the national governance system. Within this framework, emphasis was placed on establishing mechanisms of people’s self-governance at the grassroots level under the leadership of Communist Party organizations. People’s self-management, self-service, self-education, and self-supervision were also emphasized. Attention was further given to expanding channels for people to express their views and to institutionalizing and standardizing direct democracy at the grassroots level.
In 2021, the Central Committee of the Communist Party of China and the State Council issued a dedicated document on strengthening the modernization of the system and capacity of grassroots governance. The objective was to establish a system in which Communist Party organizations provide unified leadership, the government performs its functions in accordance with the law, different organizations cooperate with one another, and the people participate extensively. Within this framework, self-governance, the rule of law, and governance based on morality were expected to operate alongside one another.
The document also emphasized the establishment of grassroots service and management platforms characterized by such features as grid-based management, targeted service delivery, and information sharing. In 2023, the Chinese government established the “Central Social Affairs Administration,” one of whose principal responsibilities is coordinating the development of local governments and grassroots governance.
2. The Importance of the Fengqiao Experience in Chinese Governance
Fengqiao is a small town in Zhuji City, Zhejiang Province, China. Since the 1960s, the area has developed an experience in addressing social problems and educating individuals that later became an effective model of grassroots governance. With the support and attention of Chinese leaders, this experience has become one of the important symbols of grassroots governance in the new era.
A) The Origins and Evolution of the Fengqiao Experience
In 1963, during the Socialist Education Movement, officials and residents of Fengqiao faced the issue of how to deal with “backward elements.” Instead of relying on coercive measures, they employed persuasion, reasoning, and education, relying on local people to resolve problems. This experience subsequently became known as the Fengqiao Experience.
The core principle of this experience was: “mobilizing and relying on the people, preventing problems from being transferred to higher levels, resolving problems locally, achieving fewer arrests and better public security.”
Over more than four decades, this experience underwent several transformations. Initially, it focused on educating and reforming individuals within the framework of class struggle. Following the beginning of reform and opening up, it moved toward comprehensive social security governance. In the new century, it expanded to include areas such as public security, the development of the legal system, and the provision of public services.
Throughout these transformations, the fundamental principle of “preventing the escalation of conflicts and resolving problems locally” was maintained, while new elements appropriate to changing circumstances were added.
In 2003, Xi Jinping emphasized the importance of preserving, promoting, and innovating the Fengqiao Experience. Subsequently, he repeatedly stressed the development of this experience in the new era. The Report to the 20th National Congress of the Communist Party of China in 2022 also emphasized “adhering to and developing the Fengqiao Experience in the new era.”
In September 2023, Xi Jinping once again visited Fengqiao and emphasized the need to develop this experience in the new era. He called for combining self-governance, the rule of law, and governance based on morality, as well as strengthening governance based on grid management, targeted services, and information support.
Overall, the Fengqiao Experience has evolved from an early model of social control into a comprehensive model of social governance emphasizing persuasion, communication with the people, the use of legal instruments, and the resolution of problems at the grassroots level.
B) The Main Characteristics of the Contemporary Fengqiao Experience
The essential nature of the contemporary Fengqiao Experience is the implementation of the mass line of the Communist Party of China: under the leadership of the Party, people are mobilized and organized, and their own capacities are relied upon to resolve their problems.
In the new era, this experience has undergone changes in three principal areas:
1. Changes in the Nature of Problems
In the past, the primary focus was on educating and reforming “backward elements.” In the new era, however, the objective is to resolve social problems and respond to people’s growing demands for a better life. Volunteer groups and mechanisms for social cooperation are also used to facilitate mutual assistance among people.
2. Expansion of the Scope of Application
In the past, the experience was primarily applied in rural areas. Today, it has expanded to all areas of grassroots governance, both urban and rural. The principle that “small problems should be resolved in villages, major problems in towns, and conflicts within local communities” remains its central principle.
3. Transformation of Governance Methods
In the past, problems were primarily addressed through face-to-face interactions. In the new era, however, online and offline methods have been integrated, while legal instruments and digital technologies—particularly artificial intelligence—have assumed greater importance.
Despite these changes, the core characteristics of the Fengqiao Experience have remained unchanged: the central role of Communist Party organizations in grassroots governance, a people-centered approach and reliance on the people, service to the people, and resolution of problems at the level where they arise. Indeed, preventing the escalation of conflicts and resolving them locally constitutes the most important principle of this experience.
3. Implications of the “Fengqiao Experience” for Developing Countries
Although the Fengqiao Experience originated in China, its governance principles, particularly the resolution of conflicts at the grassroots level, can offer useful lessons to developing countries facing similar challenges.
First: Establishing a Low-Cost Model for Mediation and Governance
One of the important characteristics of this experience is reducing the costs of dispute resolution by establishing grassroots mediation mechanisms.
For example, the Fengqiao Social Governance Center brings together services such as dispute reception, people’s mediation, legal services, psychological counseling, and comprehensive management within a single institution. People’s requests are received through a one-stop service window and, depending on the nature of the issue, are referred to the appropriate institution or organization. Complex disputes are also examined with the participation of multiple institutions.
By reducing barriers between different administrative bodies and facilitating people’s access to services, this approach lowers the costs of governance and rights protection. Such a model may be useful for developing countries that lack efficient legal and judicial systems. These countries can establish comprehensive governance service platforms and enhance coordination among different institutions at the grassroots level while adapting the model to their own laws and local circumstances.
Second: Preventing Conflicts at Their Source
Rather than acting only after a dispute has emerged, the Fengqiao Experience emphasizes preventing conflicts from emerging and escalating in the first place.
In Fengyuan Village, important issues are examined through a participatory and multilateral process. The issue is initially raised by the village committee, while the views of Party members and representatives of villagers are collected. The issue is then discussed in relevant meetings and voted upon. Finally, the decision is made public and placed under public supervision.
By combining social governance with rural development, this mechanism involves people in important decision-making processes and thereby reduces the likelihood of conflicts emerging.
Many developing countries face problems such as unequal distribution of resources, a lack of transparency in allocation processes, and limited channels for protecting rights. The Fengqiao Experience demonstrates that collective negotiation, equal participation, and transparency in decision-making can play an important role in preventing grassroots conflicts.
Third: Human-Centered Attention and Social Support
Another important characteristic of the Fengqiao Experience is its attention to the human dimensions of governance. The objective of this approach is not merely social control, but also improving people’s well-being, satisfaction, and sense of belonging through participation and social support.
In Zhuji City, numerous social organizations have been established to provide services such as creating employment opportunities for young people and women, providing educational facilities for children, and offering elderly-care services.
These organizations have become a bridge between the government and the people and maintain closer connections with society in resolving disputes and providing services. By supporting vulnerable groups, such organizations contribute to strengthening social trust and building cohesive local communities.
For developing countries, this dimension of the Fengqiao Experience is also highly significant. Attention to human dignity, support for vulnerable groups, and social participation are values that transcend national boundaries. Different countries can, according to their local conditions and characteristics, draw upon this experience to strengthen grassroots social governance and move toward more harmonious societies and better governance.
Conclusion
Over several decades, the Fengqiao Experience has evolved from a local experiment for resolving social problems into a broad model of grassroots governance. It emphasizes public participation, local problem-solving, preventing the escalation of conflicts, social mediation, the use of local institutional capacities, and attention to vulnerable groups.
The most important lesson of this experience for developing countries is that effective grassroots governance does not necessarily require expanding administrative structures or increasing government expenditure. Rather, it can be based on establishing participatory, transparent, and low-cost mechanisms for resolving disputes, strengthening cooperation among institutions, and increasing public participation.
From this perspective, the Fengqiao Experience can serve as a source of study and adaptation for developing countries, particularly those facing challenges such as weak judicial mechanisms, lack of transparency, unequal distribution of resources, and limited social participation. However, the application of this experience should take place in accordance with the political, social, cultural, and legal conditions of each country and should be adapted to its local characteristics.
[1] Fengqiao Experience