LGBT ACTIVISM IN CHINA government has downsized its apparatus and given responsibility for policy implementation to local governments (and since these governments often lack the capability and political will to follow through)social organizations are needed to ensure implementation. The importance of HIV/AIDS in explaining the presence of LGBT activists should not be understated.Chinese NGOs in most issue areas emerge and flourish only insofar as their activities complement government interests.3 Gay groups are granted political space to the extent that they help tackle the growing HIV/AIDS crisis, reaching high-risk groups that the government cannot.44 Activists use public health' frames,casting their activities almost exclusively in terms of how they can help combat HIV/AIDS.These groups 'must be loud about AIDS but quiet about other issues'in order to enjoy the most political space.45 Because the central government has devolved policy implementation responsi- bility to local officials,opportunities for LGBT groups to provide services are highly dependent upon local government preferences,which can vary significantly Activists must work to maintain good relations with these officials and avoid any activities perceived as contrary to their interests.46 If a local government is not interested in HIV/AIDS,for example,political opportunities for LGBT groups will not be as plentiful.Activists believe that the political space for gay and lesbian work is greater in southern provinces like Yunnan and Sichuan than others,largely because of their distance from the more politically closed Beijing.47 Although Yunnan NGO leaders report generally positive relations with local governments,Yunnan provincial officials are seen as close-minded compared to those in other areas.Yunnan activists offer Sichuan as an example of 'real openness'. An activist was in awe of the province,declaring it China's'gay heaven'48 Sichuan's political opportunities for gay and lesbian groups are more than just legend.Leaders of Sichuan gay organizations speak glowingly of political openness,as well as minimal cultural and social pressures against LGBTs. While some leaders in Sichuan explain the unusually good environment by citing the province's long history of being 'open and friendly to outsiders',49 a 43.Hildebrandt,Forging a Harmonious Middle Path. 44.Jon Cohen,'A new treatment campaign,but with limited weapons',Science 304,(2004).pp.1433-1434. 45.Interview,Kunming,27 November 2007. 46.Hildebrandt,Forging a Harmonious Middle Path.Activists do not believe positive relationships with the government are due to shifting attitudes.An activist from one of the oldest gay organizations in Yunnan reports that, as recently as five years ago,gays were simply ignored,with most officials ignorant of their existence(Interview, Kunming.28 August 2007).Many believe that if there was no HIV/AIDS problem,officials would never acknowledge homosexuality.Even in more progressive provinces,like Yunnan and Sichuan.leading officials 'still dislike gays'(Interview,Chengdu,14 November 2007);they do not think about gays outside of HIV/AIDS,and if they do,'it's probably in a bad way'(Interview.Kunming,23 November 2007).A Yunnan-based activist reserved his harshest criticism for 'party officials'rather than 'government officials',describing the former as 'old,conservative. and backward'who prefer gays and lesbians 'not exist at all'(Interview,Kunming.3 December 2007). 47.Sometimes the need to address HIV/AIDS is so great that local governments turn a blind eye to organizations that have ulterior motives.A gay activist in Yunnan reports that NGOs can be unusually antagonistic when addressing HIV/ AIDS,but believes local govemments are more forgiving because they provide a valuable service(Interview,Kunming.3 December 2007).A former leader in Yunnan reports that many international groups working on HIV/AIDS are Christian missionaries.While the government is uncomfortable with their presence,their need for assistance in stopping the crisis currently outweighs concerns about illegal religious activities (Interview,Kunming,12 September 2007). 48.Interview,Kunming.29 November 2007. 49.Interview.Chengdu,14 November 2007. 853government has downsized its apparatus and given responsibility for policy implementation to local governments (and since these governments often lack the capability and political will to follow through) social organizations are needed to ensure implementation. The importance of HIV/AIDS in explaining the presence of LGBT activists should not be understated. Chinese NGOs in most issue areas emerge and flourish only insofar as their activities complement government interests.43 Gay groups are granted political space to the extent that they help tackle the growing HIV/AIDS crisis, reaching high-risk groups that the government cannot.44 Activists use ‘public health’ frames, casting their activities almost exclusively in terms of how they can help combat HIV/AIDS. These groups ‘must be loud about AIDS but quiet about other issues’ in order to enjoy the most political space.45 Because the central government has devolved policy implementation responsi￾bility to local officials, opportunities for LGBT groups to provide services are highly dependent upon local government preferences, which can vary significantly. Activists must work to maintain good relations with these officials and avoid any activities perceived as contrary to their interests.46 If a local government is not interested in HIV/AIDS, for example, political opportunities for LGBT groups will not be as plentiful. Activists believe that the political space for gay and lesbian work is greater in southern provinces like Yunnan and Sichuan than others, largely because of their distance from the more politically closed Beijing.47 Although Yunnan NGO leaders report generally positive relations with local governments, Yunnan provincial officials are seen as close-minded compared to those in other areas. Yunnan activists offer Sichuan as an example of ‘real openness’. An activist was in awe of the province, declaring it China’s ‘gay heaven’.48 Sichuan’s political opportunities for gay and lesbian groups are more than just legend. Leaders of Sichuan gay organizations speak glowingly of political openness, as well as minimal cultural and social pressures against LGBTs. While some leaders in Sichuan explain the unusually good environment by citing the province’s long history of being ‘open and friendly to outsiders’,49 a 43. Hildebrandt, Forging a Harmonious Middle Path. 44. Jon Cohen, ‘A new treatment campaign, but with limited weapons’, Science 304, (2004), pp. 1433–1434. 45. Interview, Kunming, 27 November 2007. 46. Hildebrandt, Forging a Harmonious Middle Path. Activists do not believe positive relationships with the government are due to shifting attitudes. An activist from one of the oldest gay organizations in Yunnan reports that, as recently as five years ago, gays were simply ignored, with most officials ignorant of their existence (Interview, Kunming, 28 August 2007). Many believe that if there was no HIV/AIDS problem, officials would never acknowledge homosexuality. Even in more progressive provinces, like Yunnan and Sichuan, leading officials ‘still dislike gays’ (Interview, Chengdu, 14 November 2007); they do not think about gays outside of HIV/AIDS, and if they do, ‘it’s probably in a bad way’ (Interview, Kunming, 23 November 2007). A Yunnan-based activist reserved his harshest criticism for ‘party officials’ rather than ‘government officials’, describing the former as ‘old, conservative, and backward’ who prefer gays and lesbians ‘not exist at all’ (Interview, Kunming, 3 December 2007). 47. Sometimes the need to address HIV/AIDS is so great that local governments turn a blind eye to organizations that have ulterior motives. A gay activist in Yunnan reports that NGOs can be unusually antagonistic when addressing HIV/ AIDS, but believes local governments are more forgiving because they provide a valuable service (Interview, Kunming, 3 December 2007). A former leader in Yunnan reports that many international groups working on HIV/AIDS are Christian missionaries. While the government is uncomfortable with their presence, their need for assistance in stopping the crisis currently outweighs concerns about illegal religious activities (Interview, Kunming, 12 September 2007). 48. Interview, Kunming, 29 November 2007. 49. Interview, Chengdu, 14 November 2007. LGBT ACTIVISM IN CHINA 853