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The Essence of Governance: the Development of Public Administration in China

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THE ESSENCE OF GOVERNANCE: THE DEVELOPMENT OF PUBLIC ADMINISTRATION IN CHINA Yongfei Zhao A Thesis Submitted to the Graduate College of Bowling Green State University in partial fulfillment of the requirements for the degree of MASTER OF PUBLIC ADMINISTRATION December 2005 Committee: Dr. D. S. Chauhan, Advisor Dr. John Hoag Dr. Shannon Orr © 2005 Yongfei Zhao All Rights Reserved iii ABSTRACT Dr. D. S. Chauhan, Advisor The government of China has made concerted efforts to modernize the society by undertaking major administrative reforms and by professionalizing public service education since 1999. In addition to various administrative reform programs initiated by Deng Xiaoping and implemented by Jiang Zemin and Hu Jintao, the inauguration of Master of Public Administration degree programs has provided the real meaning to those administrative reforms in enhancing the management capacity of government employees. All these efforts are directed toward establishing public administration as a discipline. This study provides (1) the historic overview of the development of public administration in China; (2) examines the administrative structures and reforms undertaken by the Chinese government to modernize administrative systems; (3) analyzes the establishment of MPA degree programs to develop professional public service; and (4) assesses the impact of globalization on political, administrative, and economic institutions in Chinese society. Throughout the study, a special attention has been paid to the examination of the impact of Chinese culture, values, tradition, and socialist ideology on the governance process. iv To Dr. Chauhan and My Parents v ACKNOWLEDGEMENTS I am deeply indebted to my academic advisor, Professor D. S. Chauhan, for his constant encouragement and help to complete my thesis. He has devoted tremendous amount of his valuable summer time and efforts in guiding, correcting and editing the manuscript throughout the process of completion of my research and the preparation of the final draft for review by the thesis committee. He has not only taught me how to conduct research, organize my ideas and write a thesis, but also taught me important skills to become a good researcher and to prepare myself to engage in higher educational studies. His professional attitudes and behaviors will have a great impact on my future career as a teacher, a researcher, and/or a scholar. To me, he is more like one of my parents than simply a distinguished professor. Besides my academic learning, he also gave me enormous help during the two years of study at Bowling Green State University as an international student. Therefore, I dedicate this work to him as a person of great admiration and a source of constant encouragement and respect. My greatest respects go to my parents who not only brought me to this world but also served as a constant source of support, love and encouragement. Without their continued help I would have never been where I am academically today. It has been a painful experience to work on my thesis during the summer without the required financial support, especially in a foreign country. It is my parents who constantly encouraged me and generously supported my education in the U.S. Without their help, I could hardly survive the monotonous and costly living in the United States. I owe everything to them for their unqualified support. vi Ann-Gee Lee and Truman Dinkel reviewed the draft of the thesis and made numerous editorial suggestions regarding the improvement in the language. I thank them for their help. I am also grateful to my best friend, Jia Yun in Shanghai, China, who has always been the right person to talk to during the time when I felt homesick and lonely. He was always willing to help when I needed from him. I must also acknowledge my roommate and best friend Po-Lin Pan from Taiwan who is giving me valuable advice and suggestions in providing social support. Guangyong Lu, Xuan Wan, Jian Li, Juan Meng and Na Gao have also been constantly on my side to contribute to the completion of this thesis in a variety of ways. Last but not the least, some of my peers and American friends, who have been a constant source of inspiration, include Julie George, Pan Win, Brian Heskamp, and Tamara Shatashivili. vii TABLE OF CONTENTS Page CHAPTER I. DEVELOPMENT OF PUBLIC ADMINISTRATION IN CHINA: A HISTORICAL OVERVIEW...................................................................................... 1 Public Administration in the Prehistoric Era ............................................................. 1 Public Administration in the Monarchical System .................................................... 5 Public Administration during the Nationalists Movement ........................................ 13 The Revolutionary Communist China ....................................................................... 19 CHAPTER II. ADMINISTRATIVE ORGANIZATION: STRUCTURES AND FUNCTIONS ............................................................................................................ 26 The Administrative Organization of Public Administration in China....................... 26 The Reorganization Efforts in China ........................................................................ 44 The Intergovernmental Relationships ....................................................................... 51 CHAPTER III. PROFESSIONALIZATION OF PUBLIC SERVICE EDUCATION ........ 60 Intellectual Foundations of Public Administration.................................................... 60 Public Service Education ........................................................................................... 63 Employee Training and Career Management Programs............................................ 71 CHAPTER IV. THE FUTURE OF PUBLIC ADMINISTRATION IN CHINA................. 79 Role of CPAS in the Development of Public Administration ................................... 79 Professionalization of Public Administration in China ............................................. 83 Role of Public Administration in Improving the Management of State Enterprises . 86 Impact of Globalization on Public Administrative Reforms ..................................... 87 CHAPTER V. CONCLUSIONS .......................................................................................... 93 viii NOTES ......................................................................................................................... 98 REFERENCES ...................................................................................................................... 101 APPENDICES ....................................................................................................................... 109 BIBLIOGRAPHY.................................................................................................................. 176 ix LIST OF APPENDIXES Appendix I. Comparative Listing of Pinyin System and Chinese Language Characters ..... 109 Appendix II. The Chronicles of Monarchical Dynasties in Chinese History ....................... 112 Appendix III. Fifty-Five Chinese Ethnic Minority Groups ................................................. 114 Appendix IV. The Structure of the Central Government Established In 1949..................... 115 Appendix V. The Central Government Structure of the PRC in 1954 ............................... 116 Appendix VI. The Structure of the State Council in 1982.................................................... 117 Appendix VII. The Structure of the State Council in 1988 .................................................. 118 Appendix VIII. The Structure of the State Council in 1998................................................. 119 Appendix IX. The Structure of the State Council in 2003.................................................... 120 Appendix X. Excerpt from the Confucian Code................................................................... 122 Appendix XI. A List of MPA Programs In China ................................................................ 128 Appendix XII. Excerpts from Deng Xiaoping’s Speeches in Wuchang, Shenzhen, Zhuhai and Shanghai ............................................................................................................ 130 Appendix XIII. Full Text of Jiang Zemin's Report at 16th Party Congress .......................... 140 x LIST OF FIGURES/CHARTS/TABLES/MATRIXES Figures Page 1 The Central Government System in the Tang Dynasty ..................................... 9 2 The Structure of Nationalist Government of the ROC .............................................. 18 3 The Structure of the CPC Central Organization ........................................................ 29 4 The Organizational Structure of the National People’s Congress ............................. 33 5 Organizational Structure of the State Council ........................................................... 36 6 The Structure of the People’s Courts System in the PRC.......................................... 39 7 The Central Government Structure of the PRC in 1954............................................ 47 8 The Relationships between the CPC and the Government ........................................ 54 9 The Core Courses Setup in Fifteen major Universities in China............................... 65 10 Number and Percentage of MPA Programs Located in Different Regions in China 85 Charts 1 Real Annual GDP Growth Rate in China (%)..................................................... 24 2 Elective Courses Arrangements in
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