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PMM ND Xu Et Al 1 New development: Wang Anshi’s Wanyanshu as the origins of modern public management? Yunxiao Xu, Caichen Ma and James L. Chan A recent paper in this journal (Drechsler, 2013) traced the origins of modern Western public management to the Wanyanshu, a memorandum Wang Anshi submitted in 1058 to a Song Dynasty emperor in China. We raise doubts about the author’s assessment and claims about that still remarkable document about government human resource management, in part by citing Chinese historians’ ambivalence. Believing in the value of Sino-Western comparative research in public management, we push back the origins of Chinese statecraft by 2,000 years by suggesting further research into older and greater Chinese contributions to global public management. Keywords: China; civil service examination; human resource management; international comparative public management; Wang Anshi; Wanyanshu. Professor Drechsler’s article in the September Wang Anshi’s Wanyanshu Yunxiao Xu is 2013 issue of Public Money & Management praised The Wanyanshu was in effect Wang Anshi’s Associate Professor highly a memorandum submitted in 1058 by mission report to the emperor. Calling it ‘a of Public Finance, Wang Anshi, a Chinese Song Dynasty official to report to the Emperor Renzhong about current School of Economics, the emperor, regarding it as ‘one of the key affairs’, Wang Anshi wrote it after serving six Peking University, texts of Chinese public management’ and ‘one years as a local government official. Thus he China; and Visiting of the first texts of public management in the had learned first-hand a great deal of the Researcher (2013– modern sense’ (Drechsler, 2013, p. 1). He realities of what was going on in government 14), Humphrey further traced the origins of modern, and society, and accumulated many reform School of Public presumably Western, public management to ideas to submit to the emperor and his ministers. Affairs, University of the Wangyanshu, as the memorandum is The memorandum, therefore, was written to Minnesota, USA. commonly known.* While we applaud address specific issues of the time and to provide Professor Drechsler’s recognition of Wang useful advice, in keeping with the Confucian Anshi’s contribution, our research has found tradition for officials to mind only their own Caichen Ma is that Chinese historians are divided over the business and referring to the wisdom of ancient Professor of Public significance of that still remarkable document sages. Finance and by a young local government official. We also We researched the original Chinese text of Director of the Fiscal raise doubts about the legitimacy of leaping Wanyanshu and translated some key terms Development from comparative research to a claim of differently to better reflect what we regard as Research Center, origins, which would require stronger the intended meanings. Whereas the references School of Economics, evidence of diffusion and influence of ideas. to the Wanyanshu in Drechsler (2013) were Nankai University, In view of the scholarly and practical value based on the translation in Chapter VII of China. of further Sino-Western comparative Williamson (1935), we analysed the original research, we suggest a research agenda that text in The Collected Works of Wang Anshi. We use is promising in uncovering the origins of the more specific ‘instruction’ instead of the James L. Chan is Chinese statecraft as a contribution to global more general ‘teaching’; ‘compensation’ instead Professor Emeritus public management. of the more general ‘nurturing’; the more general of Accounting, process of ‘recruitment’, instead of the specific University of Illinois activity of ‘selection’; and ‘reappointment’ instead at Chicago; and *Following convention, Chinese names in this article begin of ‘appointment’ to emphasize later personnel Distinguished with the family name followed by the given name, i.e. Wang is Wang Anshi’s family name. The ‘Memorial in Ten action. Overseas Professor, Thousand Words’ is called here by its popular title of For easier comprehension, we present the Peking University, Wanyanshu, a term that consists of three characters Wan essence of the entire Wanyanshu in an China. Yan Shu in Drechsler (2013). uninterrupted passage below, instead of © 2014 CIPFA PUBLIC MONEY & MANAGEMENT MAY 2014 2 segments as appeared in Drechsler (2013, pp. demotion or dismissal. 3–6): In conclusion, if we exercise strategic thinking, make The implementation of laws and rules requires competent calculations, implement the measures gradually, personnel developed in advance. The development and motivate people with rewards, and judge officials by management of human talents for government has four results, it would be easy to increase the talents available components: instruction, compensation, recruiting, to government. reappointment. The Wanyanshu can be better understood in the Instruction: In order to better prepare candidates for context of how government officials and civil government offices, there should be a system of local servants were selected in imperial China. By the and national schools with qualified teachers and a Song Dynasty (960–1279 AD), the practice of practical curriculum. While the current system of appointing government officials by means of civil service examination should continue, it should examinations was firmly established since it was test the candidates’ specialized preparation for started in the Sui Dynasty (607 AD) and expanded performing specific tasks in government (instead of during the Tang Dynasty (618–907 AD). These reciting classics and writing essays). Furthermore, examinations of various cohorts of candidates both civil administration and military training should were authorized by royal decrees to be held in be emphasized, as the purpose is to prepare competent regional centres and eventually in the capital, personnel to properly manage the affairs of the state. with the finalists being examined by the emperor himself. Candidates were drawn from various Compensation: The basic salaries of civil servants strata of society throughout the country and should be raised to adequate levels to make up for the were judged on the basis of their moral standing differences from other types of employment, so that and command of the designated classics through they would have sufficient financial means to support a series of standardized tests. The classics were their families and maintain an appropriate life style.* generally the Four Books and Five Classics. The Furthermore, after they die their descendants should Four Books containing the core of Confucianism be supported by the state. These financial provisions are: Great Learning, Doctrine of the Mean, Analects, should be complemented by measures to inculcate in and Mencius. The Five Classics, ancient Chinese them a sense of propriety, as well as penalties, including texts used as basis of studies by Confucians, are: banishment, for those who disobey the rules. Officials Classic of Poetry, Book of Documents, Book of Rites, I of higher ranks should set an example for their Ching or the Book of Changes, Spring and Autumn subordinates, so that it would not be necessary to rely Annals. on punishment to enforce the rules of ethics. Since passing increasingly rigorous tests meant a greater chance of achieving higher Recruitment: The recruitment of civil servants should ranks in the officialdom, participation and good be done in a decentralized manner with nominations performance in these examinations had a solicited from throughout the country for decision by significant impact on the education of young the throne. Candidates should be evaluated on their men. Thus began the tradition that continues to basis of their character, knowledge and ability to the present day in China that the best students perform by means of their words and deeds over a should become government officials. The saying probationary period by more experienced officials. ‘excellent students should become government Successful ones would be appointed and be entrusted officials’ perfectly captures the relationship with the task of recruiting another generation of between the academe and the officialdom, better officials. termed the ‘mandarinate’ (Woodside, 2006). Furthermore, due to a fear that the generals Reappointment: It is important to match ranks and might be disloyal, civilians were put in charge of positions with the candidates’ differing levels of the military, thus lowering the status of the character, ability and specialty. After they are military and the neglect of the art of war. These appointed, government officials should be given long considerations led to periodic debates throughout enough a period of time, such as three years, to Chinese history about the relative emphasis of demonstrate their abilities and show the results of various subjects, and which classics should be their performance, or the lack thereof. The evaluation included in the official curriculum. will determine their promotion with greater rewards, A critique of Drechsler’s claims Drechsler has succeeded in demonstrating that * Woodside (2006, p. 47) characterized this as the link between official corruption and low salaries, and credited Wang Anshi’s Wanyanshu has ‘contemporary Wang Anshi as arguing this was a ‘first principle of politics’. relevance’, in that the following human resource PUBLIC MONEY & MANAGEMENT MAY 2014 © 2014 CIPFA 3 management practices contribute to good appropriate method for demonstrating the government: quality
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