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The Political Economy of State Sector Restructuring in China: Cross-Provincial Evidence 2008–2017

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Abstract

Results reported in this article, on local implementation of mixed-ownership reforms and the corporatization of Chinese state-owned enterprises (SOE) in the period 2008–2017, confirm that political and economic factors determine the possibility, objective, and pace of SOE corporate restructuring. With a starting point in a comprehensive review of the literature on Chinese SOE reforms in the late 1990s and early 2000s, hypotheses on the effects of 1) market supporting institutions, 2) fiscal and financial stability constraints, and 3) social stability constraints on state sector ownership reforms were identified. Industrial economy statistics found in province-level statistical yearbooks were used to test the continuing relevance of these hypotheses and to provide the basis for an updated analysis of the ownership structure of local state-owned enterprises in a new phase of SOE reforms. Most of the firm-level findings reported here are consistent with those of previous studies. However, in contrast to earlier stages of SOE reforms, we find that fiscal pressure on local governments no longer functions as a driver of local-state-sector ownership restructuring. The analysis implies that the Chinese government’s current SOE reform strategy, which this time focus on mixed ownership, is mainly relevant for high-performing SOEs located in rich provinces with well-developed market-supporting institutions.

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Fig. 1

Source: National Bureau of Statistics and author’s notes. All non-corporatized SOEs (国有企业) remain fully state-owned

Fig. 2

Source: author’s calculations based on provincial statistical yearbooks. Missing data in 2008 and 2017 for Henan province

Fig. 3

Source: author’s calculations based on provincial statistical yearbooks. Missing data in 2008 and 2017 for Zhejiang, Yunnan, Shanghai, Qinghai, Jiangxi, Hunan, Henan, Guizhou, Guangxi, Guangdong, Gansu, Fujian, Beijing and Anhui

Fig. 4

Source: author’s calculations based on Jiangsu and Heilongjiang provincial yearbooks 2008–2018. In 2011, the scope of industrial statistics above designated size increased from CNY 5mil to CNY 20mil in terms of annual main business income. This change was implemented for various state-controlled enterprise categories starting from 2013 onwards

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Notes

  1. Central SASAC is an institution directly under the management of the State Council. It is an ad-hoc ministerial-level organization directly subordinated to the State Council. In addition, China’s has 36 province-level SASACs (31 province-level units plus 5 selected cities) and 331 city-level SASACs. http://www.sasac.gov.cn/n2588035/n2641584/c4390834/content.html

  2. “Local SOEs” refers to enterprises controlled by government entities below the central government level. As of 2016, 89,548 local SOEs reported to the SASAC system [66]

  3. (19022 SHIEs—(1946 SOEs + 3617 SSLLC)) *100 / 19022 SHIEs = 70.75%

  4. (19022 SHIEs—1946 SOEs) *100/19022 SHIEs

  5. The employment indicators used in the years 2008–2010, 2012, 2014 and 2016 reflect employment in non-state sectors in urban areas across the whole local economy (industry and non-industry sectors). The employment indicators used in the years 2011, 2013, and 2015 reflect employment in non-state industrial sectors only, but include both urban and rural areas.

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Appendices

Appendix 1

Table 5 Descriptive statistics and correlation table

Appendix 2

Table 6 Random effects models testing hypothesis 1–4, excluding Heilongjiang, Liaoning, and Jilin provinces

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Beck, K.I. The Political Economy of State Sector Restructuring in China: Cross-Provincial Evidence 2008–2017. J OF CHIN POLIT SCI 28, 273–299 (2023). https://doi.org/10.1007/s11366-022-09835-x

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