The innovative personality? Policy making and experimentation in an authoritarian bureaucracy

Why do local officials in an authoritarian bureaucracy experiment with policy, even when directed not to do so by central-level officials? This study suggests that policy experimentation in this institutional environment can best be understood as an interaction between the structure in which local officials are embedded and individual-level personality attributes. Leveraging a new data set from a series of original surveys with local policy makers in mainland China, conducted between 2016 and 2018, we discern three baseline personality types: authoritarian, consultative, and entrepreneurial. We thereafter examine the individual-level characteristics of local officials who will innovate irrespective of a centralization of bureaucratic power and interests, as currently experienced under Chinese President Xi Jinping. We find that local policy makers engage in policy innovation when they are more focused on resolving governance problems and that increased risk reduces but does not eliminate their willingness to innovate. Based on these findings, we contend that future studies of policy innovation should use an evolutionary framework to examine the interaction between preferences and selection pressures.