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2020 | OriginalPaper | Buchkapitel

11. Structural Restraints and Institutional Innovation in Local Governance

verfasst von : Xianglin Xu

Erschienen in: Social Transformation and State Governance in China

Verlag: Springer Singapore

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Abstract

In the governance system under China’s unitary administration model, local governments not only have to undertake the overall administration responsibility for the regional development and stability but also have to accept the professional and functional supervision of various departments of the central government.

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Vorheriges Kapitel Institutional Restriction and System Innovation in the Reform of the Administrative Examination and Approval System

Nächstes Kapitel The Relationship Between Government and Enterprises in the Reform of State-Owned Enterprises

Zhang (2003).

Mainly refers to two levels of government: the municipal and district (county), compared to the provincial and township (street), have relatively complete political power structures and independent financial structures, thus making them more autonomous and able to take stronger initiatives in performing their functions and supplying public goods.

Li and Lu (2015).

Liao (2006).

Zhao (2004).

Pan (2010).

Hao (2015).

Li and Liu (2013).

Chen (2014).

Di (2014).

Lv (2007).

Luo (2013).

ibid.; Beijing Municipal Government Legislative Affairs Office Research Group, “Review of the present situation and reform of administrative examination and approvals (Part 1),” Administrative Law Review, 2003 (1).

Baum pointed out that “the transfer (transfer from the free market to the regulated economy) damages the citizens and consumers, since, in order to create more consumption, there are things some officials think they should consume, they have to pay more taxes, pay a higher price, but they get less than what they really wanted.” Reprinted from Lu (2002).

Yu and Gao (2012).

Elkin and Soltan (1993).

Xie et al. (1995).

Zhu and Zhang (2005).

Zhou (2014).

Zhou (2008).

Zhou and Lian (2012).

In the strip-line system of government relations, there are different forms of vertical management: the first is the implementation of vertical management at the national level, including the number of ministries and state bureaus, such as the Ministry of Railways, the General Administration of Customs, and the State Administration of Taxation; and the ministries agencies in local governments, such as audit commissioner, provincial bureaus or regional and municipal investigation corps, etc.; second is the vertical management within the province, including the Local Taxation Bureau, land and resources management departments, etc.

Ma (1998), Zhou (2009).

Wang Kewen has found that for real estate development projects, there are upwards of 130 different fees (excluding eight tax-related fees) from developing the land to completing the process of examination and approval, accounting for more than 15% of the cost of the entire real estate sales. This does not include all kinds of hidden costs the enterprise must pay to obtain administrative approval. He points out that the examination and approval authorities are highly combined with departmental interests. See also: Wang (2014).

Shen (2014).

Zhang (2014).

Ma (1993).

A local cadre pointed out that “fewer examinations and approvals mean less power, the department is smaller, and it is difficult to establish authority in the local area.” See also: Qian (2014).

Zheng (2005).

Interview material from Shunde government official, citation from Xiao and Guo (2013).

Huang and Chen (2012).

According to the Guangdong Provincial Committee of the Communist Party of China, Guangdong Provincial People’s Government on the Shunde Foshan District to Implement the Comprehensive Reform Experiment Work, Guangdong Commission (2009), Provision No. 35: “In addition to Party committees, Commission for Discipline Inspection, supervision, courts, prosecutors and based on the need for a unified and coordinated management of the city’s affairs, all other economic, social, cultural and other aspects of the transaction will be the exercise of Shunde district level city management authorities.”

According to a witness of the reform: “A year after the reform started to return, Shunde found complaints about the big ministry reform. First people complain, they think the way the department did things after the streamlining was not convenient, and then officials complained that the original administrative examination and approval was relatively stable and that 16 changes were difficult to execute and supervise. For example, the Market Supervision Bureau was merged from nine departments, and there were obstacles in how to integrate nine sets of procedures and laws. At this time, the Shunde experience had been pushed for by provincial decision-makers to try out in twenty-five areas of the province. The Shunde’s reformers felt enormous pressure, they were anxious, and asked how they could consolidate the major part of the reform.” Based on interview materials organized on January 8, 2016.

Yin (2011).

Shunde’s administrative examination and approval system reform to a large extent was borrowed from the Hainan model. Then the “three concentrations in three places” put forward are different. The latter was added to the online examination and approval system, referring to “the administrative examination and approval departments directed towards one department, undertaken by the municipal administrative service center (hereinafter referred to as ‘the center’), with centralized administrative approval on the e-government platform, in order to achieve approval service matters in the centralized place, authorization in one place, and supervision in one place.” See also: Lin (2012).

As of September 2012, the city has 508,000 private economic entities, taking up 95% of the entire economy; private enterprises contributed about 70% of the city’s GDP, 76% of tax revenues, 54% of exports and 87% of social employment. See also Ningbo Federation of Industry and Commerce Research Office: “In our country, small- and medium-sized enterprises focus on cultivating ‘invisible champions’ in the industry,” Ningbo City.

Federation of Industry and Commerce, April 24, 2013. http://www.nbgsl.org.cn/News_view.aspx?ContentId=2207&CategoryId=35.

In 1999, the two plenary session of the Ten Session of the Committee on the then-governor pointed out that Ningbo, as a national pilot city, must carry out trial work immediately and to maintain it for half a year to produce results, and encouraged the province, and asked the provincial government departments to vigorously cooperate. See also: “Ningbo City Examination and Approval System Reform Records,” pp. 5, 11.

Based on the statistical data, from July 1999 to December 2000, at the end of the pilot reform, Ningbo’s administrative approval items from the pre-reform time of 1289 was reduced to 668, a decrease of 48.2%. Then, Ningbo continued to promote the deepening of reform from early 2001 to 2002 December, with 668 of the original reservations, an additional 65 in the interim period, and a further reduction of 281, a decrease of 61.7%. See also: Office of the Leading Group for Examination and Approval System Reform in Ningbo City: “Introducing the examination and approval system reform in Ningbo City” on August 8, 2002, and November 6, 2002; statistics retrieved from the public announcement of “Ningbo must clean up after examination and approval matters” in Ningbo Daily.

See also: Gong (1999).

Ningbo municipal government documents: “On the operation plan of the economic development service hall in Ningbo City [2001] No. 82 requires that the center must abide by the needs of “small issues not leaving the window and general issues not leaving the center”, which was to in fact emphasize the coordination functions of the center.

He (2011).

Ningbo Municipal Committee of the Communist Party China Document: “On the further deepening of the administrative examination and approval system to promote the reform of administrative examination and approval organs to integrate the functions of opinion.” (Ningbo Party [2007] No. 18).

According to interviews with relevant officials at the Ningbo Municipal Audit Office: “In 2010, the mayor visited the service and met a petitioner, who intended to apply to the Haibin bath house, but because of the fire problem, it was closed down for construction. At that time, the mayor proposed that approvals should be standardized. Functional departments say that our law enforcement is the norm, while the mayor said he wanted a comprehensive specification. If an industry application or business application needs fire protection, planning what conditions are necessary should be as clear as possible, we need a standard! Later, the municipal inspection office came to our administrative examination and approval service center, to explore how to create these standards. We referred to the principle of quality standardization: ‘unification, simplification, coordination, optimization,’ and decided to carry out the standardization of reform.”

Taizhou’s industries include automobiles, motorcycles and accessories, the pharmaceuticals and chemical industry, plastic tools, household appliances and other pillar industries, with the emergence of private enterprises such as Qianjiang, Geely, Feiyue, SUPOR and other well-known brands.

Speech from the director of the Taizhou administrative service center at the “Theory and practice of Chinese administrative examination and approval system reform” forum, held in Taizhou on November 28, 2015.

The construction of the project’s phases and infrastructure projects are led by the development and reform department; technical improvement projects are led by the economic information department, and they must contact personnel from construction planning, environmental protection, civil defense, fire and other departments for comments or on-site surveys, in order to get limited pre-trial opinions or filings; construction planning permissions are led by the department of construction planning for water conservation and environmental evaluation, synchronization the residential buildings, energy saving, air defense, lightning protection and construction plan review and limited to review opinions; construction permits, led by the department of construction planning, require application materials submitted through the relevant procedures for the owners, construction planning departments must coordinate various departments synchronization for later procedures and the issuance of construction permits.

For planning purposes, clear industrial layout is relatively concentrated in the industrial park, with the park management agencies as virtual owners who are responsible for the uniform handling of geological or industrial general approvals, such as geological hazard assessments, mineral resources coverage, soil and water conservation plans of the project, and seven other project evaluation criterion. After obtaining the land, these procedures do not have to be repeated.

For projects that have not acquired land but whose subject is relatively clear, the subject application may enter the simulation examination and approval system. The examination and approval departments, by the provisions of the materials submitted for substantive examination and public announcements, may issue a simulation approval documents. Once the land transfer procedures are completed and verified, the simulation and approval documents can be converted into formal documents.

Owen (2003).

Tang and Zhu (2014).

Kingdon proposed a multi-source public policy operation flow pattern. Ideas flowing from the social agenda into the political agenda is a complex process; the situation and problems need to be combined at the origin, while the political origin and policy origin represent an open policy window. The adjustment of key personnel will lead to the transformation of the political agenda, which was reflected in the case. See also: Kingdon (2003).

Former Guangdong provincial Party secretary Wang Yang emphasized while on a field visit, “What was proposed to Shunde requires further two-directional support, involves approval from the provincial examination and approval entity, and encourage them to try first…. Although the province does not have authority, the implementation of the new rules does not affect the performance of their duties, so the province agrees to accept the responsibility, agrees to allow you to try first; anything that may influence the performance of duties influence the effect of decentralization, the provincial Central Committee will give assistance”. [See also: Wang (2012)].

Zhang (2016).

Huang (2012).

Wu and Sun (2004).

Chen et al. (2012).

Zhang (2015).

Interview materials from a government official in Taizhou’s administrative service center, November 20, 2015.

This formulation was proposed for the “dual track” economic system reform of the 1980s and refers to the “new system, old base” concept of developing system components. It argues for changing components of the new system gradually, with continuous improvement of the economic structure and institutional environment, and incrementally improving the old system. See also: Fan Gang, “The characteristics of China’s economic system reform,” taken from Wu (1996).

Heilmann (2008).

According to one of the respondents participating in the Shunde trial design: Shunde was invited scholars who developed reform programs and conducted in-depth interviews for 20 days in Hainan, to gain an in-depth understanding and grasp of the Hainan pilot experience, and thus the development of Shunde trial scheme’s numerous institutional arrangements copied the Hainan model. Interview materials from January 8, 2016.

Lin (2015).

Yang (2013).

Xu (2014).

Interview materials from relevant official at the Taizhou examination and approval office. December 11, 2015.

Ibid.

Lieberthal and Oksenberg (1988).

Mertha (2009).

Wang and Fan (2013).

Zhou (2014).

Mertha (2005).

Chen Tianxiang, “Research on Discretionary Behavior in Administrative Examination and Approvals,” Journal of Sun Yat-Sen University, 2014 (2).

Chen Tianxiang, Zhang Hua, Wu Yue, “The innovation behavior of local government administrative examination and approval system and its limits,” Journal of Renmin University of China, 2012 (5).

Di Gaoyang, “The Legislative Regulation of Discretionary Power in Administrative Examination and Approval System Reform—A Perspective of Reserving, Canceling and Delegating Administrative Examination and Approval Items,” Guihai Tribune, 2014 (5).

Elkin S. L. & Soltan K. E., New constitutionalism: Designing political institutions for a good society, University of Chicago Press, 1993.

Gong Hongbo, A Theoretical Study on the Implementation of the Government’s Reform Policy—A Case Study of the Administrative Examination and Approval System Reform in Ningbo City (1999–2013), China Social Sciences Publishing House, p. 121–123, 2014.

He Xiuliang, “Game theory analysis of the operation of the administrative service center,” Journal of China National School of Administration, 2011 (5).

Huang Dongya, Chen Chuanmin, “Tracking and investigating the operational effect of local department system reform—From the experience of Shunde District, Foshan City, Guangdong Province,” Journal of Public Administration, 2012 (6).

Huang Xiaoyong, “The standardization construction of administrative examination and approval from the perspective of the governmental reengineering process,” Administration Reform, 2012 (4).

Kingdon, J. W., Agendas, Alternatives, and Public Policies, Longman Pub Group, 2003.

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Titel: Structural Restraints and Institutional Innovation in Local Governance
verfasst von: Xianglin Xu
Verlag: Springer Singapore
Buch: Social Transformation and State Governance in China
Print ISBN: 978-981-15-4020-2

Electronic ISBN: 978-981-15-4021-9

Copyright-Jahr: 2020
DOI: https://doi.org/10.1007/978-981-15-4021-9_11

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