In reality, the various government units are often fiefdoms that defy central directives. It is not as if Unilever came to China with its eyes closed. The company paid for the high-priced guidance of consultants in drawing up its mainland strategy. One of the first ventures was with the maker of Maxam toothpaste, a well-known local brand. Unilever ended up with ventures that made and sold soap, laundry detergent, sanitary napkins, ice cream and other products.
Every additional partner means additional trouble.
Zero would be best - wholly owned foreign ventures are being allowed with increasing frequency in China, though they remain the exception. Avoid a 50-50 ownership split where no one has the ability to make quick decisions. Stick to international standards and practices on such matters as accounting, customer service, marketing and dealing with corruption, even if it means losing market share in the short run. Entering the market as a big player risks a big disaster. Remain nimble at the beginning so that a quick change, including a full-scale retreat, is not too painful.