What values are evaluated? An exploratory empirical study of the public values structure in Chinese local government performance evaluation through the case of the ‘Hangzhou model’

Performance evaluations often convey values promoted by the government. However, it is unclear in the Chinese context what ‘performance’ means when referring to appraised values because little empirical evidence exists, particularly regarding the relations between values. This study examines Hangzhou, a pioneering case among Chinese municipalities of comprehensive performance evaluation, to analyze the relations between values. We examined 2,422 performance evaluation reports and policies released to the public. After conducting content and social network analyses, we theorized the public values structure were composed of relations of hierarchy, proximity, and causality. Our findings indicate prime values were listed prior to instrumental or market-driven values. The proximity between public interest and quality is demonstrated by the highest correlation coefficients. Each value cluster contains a causal relationship, indicating one value is the means to another. We discuss the values-oriented approach to performance evaluation, the contextual nature of public values studies, and the limits of using public satisfaction in performance evaluation. As an exploratory study, this work identifies values advocated by local governments in China; such findings are absent from existing research. Moreover, this study provides a practical method for empirically studying public values.