Thirty years of grassroots governance: changing characteristics of village heads in China

Tonglong Zhang and Zisen Chen

Journal of Chinese Governance, 2025, vol. 10, issue 3, 339-366

Abstract: This study examines the evolving characteristics of village heads in rural China amid shifting state–society relations. Drawing on an unique, nationally representative panel dataset tracking 525 village heads across 100 villages from 1991 to 2019, we employ descriptive statistics and institutional periodization within a dual-pressure theoretical framework that views village leaders as mediators balancing bottom-up voter demands with top-down Party directives. Our findings reveal an evolution in village leadership—from ‘traditional elites’ reliant on personalistic authority, and ‘economic elites’ leveraging market-oriented competencies, ultimately to ‘administrative bureaucrats’ aligned closely with Party standards. This leadership transformation is significantly accelerated by institutional mechanisms including direct elections, Party-branch development, and the recent nationwide implementation of the ‘one-shoulder pole’ policy. Additionally, notable regional variations highlight path-dependent governance trajectories, with economically advanced regions such as Jiangsu adopting bureaucratic norms earliest, whereas grain-producing and western regions demonstrate slower transitions. By linking micro-level leadership characteristics to macro-level policy shifts, this paper extends debates on bureaucratization processes, demonstrating how the state leverages the legitimacy conferred by limited electoral competition. The study contributes empirically robust insights into grassroots governance and enriches theoretical discussions on state capacity, bureaucratic professionalization, and rural governance strategies.

Date: 2025
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DOI: 10.1080/23812346.2025.2517539

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