Policy making in China’s space program: A history and analysis of the Chang’e lunar orbiter project

China’s space program is one of the most advanced, rapidly improving and opaque in the world. Insight into the program’s policy-making process could help eliminate misunderstandings, make intentions more clear and promote stability in US–China relations. This case study of China’s first lunar orbiting probe traces the project from initial policy proposal through agenda-setting, policy approval and final policy implementation. It reveals a highly rational decision-making process that is ruled by incrementalism, consensus building, scientific judgment and the use of leading small groups to coordinate among ministries. This research was guided by several relevant theories, including the “fragmented authoritarian” framework of power, the theory of the “policy entrepreneur” and the recently developed “inside access model”. The paper is one of the first published accounts in the English language to detail, from policy proposal to policy implementation, China’s first mission to the Moon.