The CCP, Campaign Governance and COVID-19: Evidence from Shanghai

This paper examines Shanghai's grassroots COVID-19 management as a lens to explore the role of local Chinese Communist Party (CCP) organisations in public policy implementation in China. We bring together literature on the Party-state relationship with literature on 'routine' and 'mobilizational' governance to construct a framework that conceptualises the CCP as the central actor in implementing public policy through campaigns. We distinguish 9 governance techniques deployed by the CCP in grassroots COVID management, which we illustrate with evidence from 37 semi-structured interviews conducted in summer 2021 with secretaries and directors from local Residents' Committees, government officials mobilised to assist with pandemic management, representatives from property management companies and Party-Mass Service Centres, as well as volunteers and residents. We demonstrate that, although Party-led policy implementation elicits comprehensive compliance, it places significant pressure on the system of grassroots governance.