Abstract
This paper argues that the People’s Republic of China (PRC) should be considered alongside European examples as a case study of unsustainable debt policies. It presents a paradox of relatively strong central government fiscal position and profligate local spending behaviour that have generated massive hidden liabilities for local governments and state-owned banks. We will present the most updated knowledge of the scope of local state indebtedness since the massive anti-recession stimulus packages of 2008–11, and examine its root and proximate causes including fiscal incentives inherent in the post-1994 tax system, land use rights, and the urbanization projects associated with China’s export-oriented, rapid-growth developmental model.
Access this chapter
Tax calculation will be finalised at checkout
Purchases are for personal use only
Preview
Unable to display preview. Download preview PDF.
References
Ahmad, E. (2011) ‘Should China Revisit the 1994 Fiscal Reforms?’, ZEF-Discussion Papers on Development Policy, no. 154, University of Bonn.
Azuma, Y. and Kurihara, J. (2011) ‘Examining China’s Local Government Fiscal Dynamics: With a Special Emphasis on Local Investment Companies (LICs)’, Politico-Economic Commentaries, no. 5, pp. 121–40.
Bahl, R. (1998) ‘Central-Provincial-Local Relations: The Revenue Side’, in D. J.S. Brean (ed.), Taxation in Modern China, New York: Routledge.
Bailey, W., Huang, W. and Yang, Z. (2011)’Bank Loans with Chinese Characteristics: Some Evidence on Inside Debt in a State-controlled Banking System’, Journal of Financial and Quantitative Analysis, 46(6), 1795–830.
Breslin, S. (2011) ‘China and the Crisis: Global Power, Domestic Caution and Local Initiative’, Contemporary Politics, 17(2), 185–200.
Budget Report (2011) ‘Several Provinces in China’. Available at www.people. corn.cn.
Cai, H. and Treisman, D. (2006) ‘Did Government Decentralization Cause China’s Economic Miracle?’, World Politics, 58(4), 505–35.
Canuto, O., and Liu, L. (2010a) ‘Subnational Debt Finance: Make it Sustainable’, in O. Canuto and M. Giugale (eds), The Day After Tomorrow: A Handbook on the Future of Economic Policy in the Developing World, Washington, DC: World Bank.
Canuto, O., and Liu, L. (2010b) ‘Subnational Debt Financing and the Global Financial Crisis’, Premise Note, Poverty Reduction and Economic Management Network, Washington, DC: World Bank.
Cao, C. and Zao, Z. (2011) ‘Funding China’s Urban Infrastructure: Revenue Structure and Financing Approach’, Research Report, CTS11–10.
Cao, G., Feng, C., and Tao, R. (2008) ‘Local “Land Finance” in China’s Urban Expansion: Challenges and Solutions’, China and World Economy, 16(2), 19–30.
Chan, K.W. (1998) ‘Infrastructure Services and Financing in Chinese Cities’, Pacific Rim Law and Policy Journal, 7(3), 503–28.
Chen, G. (2012) ‘Look at the Fiscal Balance from the Fiscal Deficit Perspective’, in Collection of Chen Gong’s Articles (1963–1995), Beijing: Renmin University Press.
China Society of Economic Reform (2010) ‘Urbanization, Land System and Sustainable Economic Growth: Can it Continue by Land Supported Urbanization?’, CSER Research Report, available at http://www.cser.org.cn/news/239.aspx.
Ding, C. (2003) ‘Land Policy Reform in China: Assessment and Prospects’, Land Use Policy, 20(2), 109–20.
Ding, C. (2005) ‘Land Acquisition in China: Reform and Assessment’, Lincoln Institute of Land Policy, mimeo WP05CD1.
Easterly, W. (1999) ‘The Ghost of Financing Gap: Testing the Growth Model Used in the International Financial Institutions’, Journal of Development Economics, 60(2), 423–38.
Estache, A., and Fay, M. (2010) ‘Current Debates in Infrastructure Policy’, Commission on Growth and Development WP 49, Washington, DC: World Bank.
Estache, A. (2010) ‘Infrastructure Finance in Developing Countries: An Overview’, European Investment Bank Papers, 15(2), 60–89.
Glick, R. and Spiegel, M. (2012) ‘Asia’s Role in the Post-Crisis Global Economy’, FRBSF Economic Letter 2012–24, A Pacific Basin Note, 13 August.
Goodstadt, L.F. (2012) ‘China’s LGFV Crisis 2011: The Conflict Between Local Autonomy, National Financial Interest and Financial Reforms’, HKIMR Working Paper no. 03.
Huang, Y. (1996) Inflation and Investment Controls in China: The Political Economy of Central-Local Relations During the Reform, Cambridge: Cambridge University Press.
He, Y. and Man, Y.C. (2012a) ‘The Debt of Local Financing Platforms: Magnitude, Risk and Governance’, Public Finance Research, 1(2), 35–7 (in Chinese).
He, Y. and Man, Y.C. (2012b) ‘The Risk Control of Local Government Debt Financing: Analysis from the Perspective of Land Public Finance’, Finance & Trade Economics, 2(5), 45–50 (in Chinese).
Kuijs, L. and Wang, T. (2012) ‘China’s Pattern of Growth: Moving to Sustainability and Reducing Inequality’, China and World Economy, Special Issue, 20(1), 49–61.
Kumar, M., and Woo, J. (2010) ‘Public Debt and Growth’, IMF Working Papers 10/174, Washington, DC: International Monetary Fund.
Lardy, N. (2010) ‘The Sustainability of China’s Recovery from the Global Recession’, PIIE Policy Brief, No. PB10–7, March.
Lin, C.S. and Yi, F. (2011) ‘Urbanization of Capital or Capitalization on Urban Land?’, Urban Geography, 32, 50–79.
Liu, L. and Pradelli, J. (2012) ‘Financing Infrastructure and Monitoring Fiscal Risks at the Subnational Level’, Policy Research Working Paper WP6069, Washington, DC: World Bank.
Liu, L. and Tan, K.S. (2013) ‘Subnational Credit Rating’, the World Bank, policy research Working Paper no. 5013.
Ley, E. (2009) ‘Fiscal (and External) Sustainability’, Economic Policy and Debt Department, Washington, DC: World Bank.
Lin, K.C. (2012) ‘The Political Economy of Rapid Transport Infrastructure Expansion in China’, Centre for Rising Powers Working Paper Series no. 3, University of Cambridge, January. Available at: http://www.polis.cam.ac.uk/crp/research/workingpapers/.
Lin, K.C. (2008) ‘Macroeconomic Disequilibria and Enterprise Reform: Restructuring the Chinese Oil and Petrochemical Industries in the 1990s’, The China Journal, 60, 49–79.
Lin, K.C. and Shih, V. (2008) ‘Formal and Informal Institutions, Infrastructure Financing, and the Regional Distribution of Roads in China’. Paper presented at the annual meeting of the Association for Asian Studies.
Lin, K.C. and Tao, R. (2012) ‘Social Inequality’, in Chris Ogden (ed.), Handbook of China’s Governance and Domestic Politics, London: Routledge.
Lin, S. (2011) ‘China’s Fiscal Policy and Fiscal Sustainability’, chapter 3 in Assessment of the Impact of Stimulus, Fiscal Transparency and Fiscal Risk, T. Ito and F. Parulian, ed. ERIA Research Project Report, No. 1. Available online at: http://www.eria.org/publications/research_proj ect_reports/assessment-on-theimpact-of-stimulus-fiscal-transparency-and-fiscal-risk.html.
Lin, S. (2003) ‘China’s Government Debt: How Serious?’, China: An International Journal, 1(1), 73–98.
Liu, L. (2010) ‘Strengthening Subnational Debt Financing and Managing Risks’, Review of Economic Research, Ministry of Finance of China, 16 August, Beijing, PRC.
Man, J.Y. and Hong, Y. (ed.) (2010), China’s Local Public Finance in Transition, Cambridge, MA: The Press of Lincoln Institute of Land Policy.
MHURD (Ministry of Housing and Urban-Rural Development) (various years) Zhongguoguotuziyuantongjinianjian (China Land and Resources Statistical Yearbook), Beijing: Zhongguodizhichubanshe.
Montinola, G., Qian, Y. and Weingast, B. (1995) Tederalism, Chinese Style: The Political Basis for Economic Success in China’, World Politics, 48(1), 50–81.
Monan, Z. (2013) ‘China’s Hidden Debt Risk: Not Too Big to Fail’, Project Syndicate, 20 March.
NAO (National Audit Office) (2011) ‘Quanguo defang zhengfuxingzhaiwushengjijieguo (Results from a Nationwide Audit of Local Government Debts)’, 35.
NAO (2013) ‘The Report of Nationwide Government Debt Audit’, 30 December.
Naughton, B. (2009) ‘Understanding the Chinese Stimulus Package’, China Leadership Monitor, 28(5). The Hoover Institute. Available online at http://media.hoover.org/sites/default/files/documents/CLM28BN.pdf.
NBS (National Bureau of Statistics) (2011) Zhongguotongjinianjian) (China Statistical Yearbook, Beijing: China Jihua Press.
Ni, H. (2012) ‘China’s Infrastructure Investment Financing System’, National Business Daily, 6 January.
Oi, J. C. (1999) ‘Two Decades of Rural Reform in China: An Overview and Assessment’, The China Quarterly, 159, 616–28.
People’s Bank of China (2011) ‘The Report of Regional Financial Performance (2010)’. Available at http://www.pbc.gov.cn/publish/zhengcehuobisi/3663/2011/20110601212610189374552/20110601212610189374552_.html.
Peterson, G.E. (2006) ‘Land Leasing and Land Sale as an Infrastructure-financing Option’, Working paper, Washington, DC: World Bank.
Peterson, G.E. and Kaganova, O. (2010) ‘Integrating Land Financing into Subnational Fiscal Management’, World Bank Policy Research Working Paper, no. 5409, Washington, DC: World Bank.
Plekhanov, A. and Singh, R. (2005) ‘How Should Subnational Government Borrowing Be Regulated? Some Cross-Country Empirical Evidence’, IMF Staff Papers, 53(3), 426–52.
Qian, Y. and Weingast, B. (1997) ‘Federalism as a Commitment to Preserving Market Incentives’, Journal of Economic Perspectives, 11(4), 83–92.
Quintanilla, J.C. (2009) Public Finance Sustainability in Subnational Governments, London: Debt Relief International Ltd.
Rodden, J. (2004) ‘Comparative Federalism and Decentralization: On Meaning and Measurement’, Comparative Politics, 36(4), 481–500.
Roubini, N. (2011) ‘China’s Unsustainable Growth Model: The Rising Risk of a Hard Landing After 2013’, Roubini Global Economics Analysis, 17 August.
Shah, A. and Shen, C. (2006) ‘Fine Tuning the Intergovernmental Transfer System To Achieve A Harmonious Society and A Level Playing Field for Regional Development in China’, The World Bank. Available online at http://siteresources.worldbank.org/PSGLP/Resources/ShahandShenP.pdf.
Shen, C., Jin, J. and Zou, H. (2012) ‘Fiscal Decentralization in China: History, Impact, Challenges and Next Steps’, Annuals of Economics and Finance, 13(1), 1–51.
Shih, V. (2010a) ‘Local Government Debt: Big Rock-Candy Mountain’, Chinese Economic Quarterly, 14(2), 26–32.
Shih, V. (2010b) ‘China’s 8,000 Credit Risks’, The Wall Street Journal, 9 February.
Shirk, S. (1993) The Political Logic of Economic Reform, Berkeley: University of California Press.
Stiglitz, J. (2010) Freefall: America, Free Markets, and the Sinking of the World Economy, New York: W.W. Norton.
State Council of the PRC (2009) ‘The Notice to Adjust the Initial Capitalization Requirement for Infrastructure Projects’, Guofa No. 27.
Su, F., Tao, R. and Yang, D.L. (2012) ‘Rethinking the Institutional Foundations of China’s Hyper Growth: Official Incentives, Institutional Constraints, and Local Developmentalism’, in Oxford Handbook on Development.
Su, F., and Tao, R. (2012) ‘Asian Tiger or Fragile Dragon? Understanding China’s Development Model’, working paper. Available online at http://www.brookings.edu/-/media/events/2012/2/21%20china/20120221_chinas_development_model.pdf.
Tao, R., Su, F., Liu, M. and Cao, G. (2010) ‘Land Leasing and Local Public Finance in China’s Regional Development: Evidence from Prefecture-level Cities’, Urban Studies, 47(10), 2217–36.
Tao, R., Su, F., Lu, X. and Zhu, Y. (2010) ‘Can Economic Performance Bring Promotion?’ GuanliShijie (Management World), 12, 13–26.
Tao, R., Su, F., Liu, M. and Cao, G. (2010) ‘Land Leasing and Local Public Finance in China’s Regional Development: Evidence from Prefecture-level Cities’, Urban Studies, 47(10), 2217–36.
Tao, R. and Yang, D. (2008) ‘The Revenue Imperative and the Role of Local Government in China’s Transition and Growth’. Paper prepared for presentation at conference on China’s Reforms, University of Chicago.
Ter-Minassian, T. and Craig, J. (1997) ‘Control of Subnational Government Borrowing’, in T. Ter-Minassian (eds), Fiscal Federalism in Theory and Practice, Washington, DC: International Monetary Fund.
Tsui, K.Y. (2011) ‘China’s Infrastructure Investment Boom and Local Debt Crisis’, Eurasian Geography and Economics, 52(5), 686–711.
Tsui, K. and Wang, Y. (2004) ‘Between Separate Stoves and a Single Menu: Fiscal Decentralization in China’, China Quarterly, 177, 71–90.
Ulrich, J. (2010) ‘The Return on Beijing’s Building Boom’, The Wall Street Journal, 30 March.
Wang, H., Tao, R. and Tong, J. (2009) ‘Trading Land Development Rights under a Planned Land Use System: The “Zhejiang Model”’, China & World Economy, 17(1), 66–82.
Wedeman, A. (2000) ‘Budgets, Extra-budgets, and Small Treasuries: Illegal monies and local autonomy in China’, Journal of Contemporary China, 9(25), 489–511.
Weingast, B. (2012) ‘Second Generation Fiscal Federalism’, IFIGR Working paper, August. Available at: http://www.ifigr.org/workshop/IFIR-CESifo/papers/weingast.pdf.
Wibbels, E. (2005), Federalism and the Market: Intergovernmental Conflict and Economic Reform in the Developing World, Cambridge: Cambridge University Press.
Wong, C.P.W. (2000) “Central-Local Relations Revisited: the 1994 Tax Sharing Reform and Public Expenditure Management in China”, China Perspectives, number 31, September-October.
Wong, C.P.W. (1992) ‘Fiscal Reform and Local Industrialization: The Problematic Sequencing of Reform in Post-Mao China’, Modern China, 18(2), 197–227.
Wong, C. P.W. and Bird, R.M. (2005) ‘China’s Fiscal System: A Work in Process’, ITP Paper 0515.
World Bank (2005) China: Land Policy Reform for Sustainable Economic and Social Development, Washington, DC: World Bank.
World Bank (2002) ‘China National Development and Sub-national Finance: A Review of Provincial Expenditures’, Washington, DC: World Bank.
Wu, Y., Wang, Z., and Luo, D. (2009) ‘Investment Record and Its Fiscal Stimulus Policy’, China Policy Institute Briefing Paper 50. Available at http://www.nottingham.ac.uk/cpi/documents/briefings/briefing-50-wu-yanrui-luoinvestment-record.pdf.
Wu, W. (2010) ‘Urban Infrastructure Financing and Economic Performance in China’, Urban Geography, 31, 648–67.
Yang, D. (2004) Remaking the Chinese Leviathan: Market Transition and the Politics of Governance in China, Stanford, CA: Stanford University Press.
Yang, D. (2012) The Global Recession and China’s Political Economy, New York: Palgrave.
Yang, D. and Naughton, B. (eds) (2004) Holding China Together Diversity and National Integration in the Post-Deng Era, Cambridge: Cambridge University Press.
Zhang, J., Gao, Y., Fu, Y., and Zhang, H. (2007) ‘Why China Have Such Good Infrastructures?’, Journal of Economic Research, 3, 32–51.
Zhang, W. (2011) ‘Promotion Game, Performance Assessment and Local Government Debt Expansion’, Journal of Shanghai Finance University.
Zheng, Y. (2007) De Facto Federalism in China: Reforms and Dynamics of Centrallocal Relations, Singapore: World Scientific Publishing.
Zhou, Q. (2004) ‘Urbanization, Rural Land Transfer Rights and Land Requisition Reform’, Keynote Speech at the International Symposium on Rural Land Requisition Reform in China. China Center for Economic Research, Peking University, Beijing PRC, 28 February.
Zhu, K. and Prosterman, R. (2007) ‘Securing Land Rights for Chinese Farmers: A Leap Forward for Stability’, Cato Development Policy Analysis Series, no. 3. Available online at http://www.cato.org/publications/development-policyanalysis/securing-land-rights-chinese-farmers-leap-forward-stability-growth.
Author information
Authors and Affiliations
Editor information
Editors and Affiliations
Copyright information
© 2014 Yang He, Kun-Chin Lin and Ran Tao
About this chapter
Cite this chapter
He, Y., Lin, KC., Tao, R. (2014). The Local Government Fiscal Imperative and Debt Financing in China. In: Arestis, P., Sawyer, M. (eds) Fiscal and Debt Policies for the Future. International Papers in Political Economy Series. Palgrave Macmillan, London. https://doi.org/10.1057/9781137269539_6
Download citation
DOI: https://doi.org/10.1057/9781137269539_6
Publisher Name: Palgrave Macmillan, London
Print ISBN: 978-1-349-44399-4
Online ISBN: 978-1-137-26953-9
eBook Packages: Palgrave Economics & Finance CollectionEconomics and Finance (R0)