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CSE Authority & Governance: The Governing System of China
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Transcript of CSE Authority & Governance: The Governing System of China
CSE Authority & Governance:
The Governing System of China
Overview of Governing System
The Chinese Communist Party The Organizational Structure of State Institutions
The Central State Institutions The Local Governance Structure The Matrix Muddle and the techniques to run the system
The Configurations of Political Power The Top Leadership The Xitong (systems)
The Party-State: the Party Control of Chinese Government
The Chinese Communist Party (CCP) The National Party Congress (中国共产党全国代表大会)
1,500 delegates meet once every 5 years Solidifies the central political tasks for the party Provides the occasion for appointments to top party posts and to
the Central Committee The Central Committee (中国共产党中央委员会)
Several hundred members convene once or twice a year All members hold other substantive positions and receive
privileges Central Committee meetings (plenum) discuss and announce
policies The Politburo (中国共产党中央委员会政治局)
The command headquarters of the party Typically 14-25 members who form the top power elite
The Standing Committee of Politburo (政治局常务委员会) 4-9 members meet weekly
The Chinese Communist Party (CCP)
The Secretariat (中央书记处) Staff support for the Politburo and the Central Committee
The Military Affairs Commission (中共中央军事委员会) In charge of People’s Liberation Army
Central Committee Departments General Office (中共中央办公厅 )
Coordination of administrative details for Central party bureaucracy Organization (中央组织部)
Personnel appointments Propaganda (中央宣传部)
Media, education, political study, and public health United Front (中央统战部)
Relations with noncommunist parties International liaison (中央对外联络部)
Foreign affairs and relations with other communist parties
The Organizational Structure of CCP Center
CCPNational Congress
Central Committee
Central Discipline Inspection Committee
Central Military Committee
General Secretary: Hu Jintao
Standing Committee of Politburo
Politburo Central Secretariat
Members: Hu Jintao, Wu Bangguo, Wen Jiabao, Jia Qinglin, Zeng Qinghong, Huang Ju, Wu Guanzheng, Li Changchun, Luo Gan
Members: Wang Lequan, Wang Zhaoguo, Hui Liangyu, Liu Qi,Liu Yunshan, Li Changchu, Wu Yi, Wu Bangguo, Wu Guangzheng, Zhang Lichang, Zhang Dejiang,Chen Liangyu, Luo Gan, Zhou Yongkang, Hu Jintao,, Yu Zhensheng, He Guoqiang, Jia Qinglin, Guo Boxiong,Huang Ju, Cao Gangchuan, Zeng Qinghong, Zeng Peiyan, Wen Jiabao,
Secretaries:Zeng QinghongLiu YunshanZhou YongkangHe GuoqiangWang GangXu CaihouHe Yong
Chairman: Hu JintaoVice-Chairmen: Guo Boxiong, Cao Gangchuan, Xu Caihou
Secretary: Wu Guanzheng
The Model of CCP Organizational Pyramid
Standing Committee
Politburo
Central Committee
National Party Congress
Provincial Party Committees
Prefecture Party Committee
County Party Committee
Party Cells in All Social Organizations
Individual Party Members
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The Apex of Power: The Politburo Standing Committee(16th Party Congress)
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Hu Jintao Wu Bangguo Wen Jiabao Jia Qinglin Zeng Qinghong Huang Ju Wu Guanzheng Li Changchun Luo Gan
17th Party Congress Hu Jintao - President of the People's Republic of China,
General Secretary of the CPC, Chairman of the Central Military Commission.
Wu Bangguo - Chairman of the Standing Committee of the National People's Congress
Wen Jiabao - Premier of the State Council of the People's Republic of China
Jia Qinglin - Chairman of the People's Political Consultative Conference Li Changchun - "Propaganda Chief" Xi Jinping - Top-ranked member of CPC Secretariat Li Keqiang - no official posts He Guoqiang - Head of Central Commission for Discipline Inspection Zhou Yongkang - Head of Political and Legislative Affairs Committee
The State Institutions
National People’s Congress (NPC) (全国人民代表大会 ) The legislature serves 4-year term and convenes once a year The Standing Committee of NPC meets more frequently The strengthening institutional capacity and roles of NPC
The State Council (国务院 ) The Cabinet in China’s governing system Consists of subordinate commissions and ministries The State Council membership consists of the Premier, Vice
Premier, State Councilors (equivalent in rank to vice premier), and all heads of commissions and ministries
Commissions and ministries head their own nationwide vertical bureaucratic hierarchies
The Presidency The Judiciary System
The Organizational Structure of Political System
National People’s Congress (NPC) 全国人民代表大会
Standing Committee of NPC全国人民代表大会常务委员会
President国家主席
State Council国务院
Central Military
Commission
中央军事委员会
SupremePeople’s
Court最高人民法院
SupremePeople’s
Procuratorate最高人民检察院
The Legislature – National People’s Congress (NPC)
NPC
NPC Standing Committee
Meeting of Chairmen of Standing Committee
Special Committees Staff Office Deputy CredentialExamination Committee
• Ethics• Legislative• Civil Affairs & Judiciary• Finance & Economy• Education, Science, Culture, & Health• Foreign Affairs• Overseas Chinese• Environment & Resource Protection• Agriculture & Countryside
• General Affairs• Legislative Work Committee• Budgetary Committee• Hong Kong SAR Basic Law Committee• Macao SAR Basic Law Committee
The Organizational Structure of the State CouncilPremier: Wen Jiabao
Executive Vice Premier: Huang JuVice Premiers: Wu Yi, Zeng Peiyan, Hui Liangyu
State Countilors: Zhou Yongkang, Cao Gangchuan, Tang Jiaxuan, Hua Jianmin, Chen Zhili
Secretary General: Hua Jianmin
Ministry of Foreign Affairs Ministry of National DefenseLi Zhaoxing Cao Gangchuan
Ministry of Education National Development and Reform CommissionZhou Ji Ma Kai
Ministry of Science and Technology State Ethnic Affairs Commission Xu Guanhua Li Dek Su
Ministry of Public Security Ministry of State Security Zhou Yongkang Xu Yongyue
Ministry of Supervision Ministry of Civil AffairsLi Zhilun Li Xueju
Ministry of Justice Ministry of FinanceZhang Fusheng Jin Renqing
Ministry of Personnel Ministry of Labor and Social Security Zhang Bolin Zheng Silin
Ministry of Land and Resources Ministry of Construction Sun Wensheng Wang Guangtao
Ministry of Transportation Ministry of RailwayZhang Chunxian Liu Zhijun
Ministry of Information Industry Ministry of Water Resources Wang Xudong Wang Shucheng
Ministry of Agriculture Ministry of CommerceDu Qinglin Bo Xilai
Ministry of Culture Ministry of Public HealthSun Jiazheng Wu Yi
People’s Bank of China National Audit Office Zhou Xiaochuan Li Jinhua
National Population and Family Commission of Science, Technology andPlanning Commission Industry for National Defense Zhang Weiqing Zhang Yunchuan
Ministries & Commissions (28)
Agencies Directly Under State Council (18)
General Administration of Customs Mou Xinsheng
State Administration of Taxation Xie Xuren
State Administration for Industry and Commerce Wang Zhongfu
Administration of Quality Supervision and Quarantine Li Changjiang
State Administration of Environmental Protection Xie Zhenhua
General Administration of Civil Aviation of China Yang Yuanyuan
State Administration of Radio, Film, and Television Wang Taihua
General Administration of Press and Publication Shi Zongyuan
General Administration of Sports Liu Peng
National Bureau of StatisticsLi Deshui
State Forestry Administration Zhou Shengxian
State Food and Drug Administration Zheng Xiaoyu
State Administration of Work Safety Wang Xianzheng
State Intellectual Property Office Wang Jingchuan
National Tourism Administration He Guangwei
State Administration of Religious Affairs Ye Xiaowen
Counselors’ Office of the State Council Cui Zhanfu
General Administration Office Jiao Huancheng
Offices (6) Institutions (14)
Overseas Chinese Affairs Chen Yujie
Hong Kong and Macao Affairs Liao Hui
Legislative Affairs Cao Kangtai
Research Office Wei Liqun
Taiwan Affairs Chen Yunlin
Information Office Zhao Qizheng
Xinhua News AgencyTian Congming
Chinese Academy of SciencesLu Yongxiang
Chinese Academy of Social SciencesChen Kuiyuan
Chinese Academy of EngineeringXu Kuangdi
Development Research CenterWang Mengkui
National School of AdministrationHua Jianmin
China Seismological BureauChen Jianmin
China Meteorological AdministrationQin Dahe
China Banking Regulatory CommissionLiu Mingkang
China Securities Regulatory CommissionShang Fulin
China Insurance Regulatory CommissionWu Ding Fu
State Electricity Regulatory CommissionChai Songyue
National Council of Social Security FundXiang Huaicheng
National Natural Science FoundationChen Yiyu
Special Agency Directly Under State Council (1)
State Owned Assets Supervision & Administration CommissionLi Rongrong
Source: Zhang, Zhibin
The Local Governance Structure
Part II: Local
The Hierarchical Structure of Chinese Government
Central GovernmentState Council
Provinces (22)Municipalities (4) Autonomous Regions (5)
SpecialAdministrative
Regions (2)
Hong KongMacao
Heilongjiang, Jilin, Liaoning, Hebei, Shanxi, Henan, Shandong,Jiangsu, Anhui, Zhejiang, Fujian, Jiangxi, Hubei, Hunan, Guangdong, Shannxi, Ganxu, Qinghai, Sichuang, Guizhou, Yunnan, Hainan
Beijing, TianjinShanghai, Chongqing
Inter Mongolia, Xinjiang Uygur, Tibet, Ningxia Guangxi
Prefectures (332)
(Cities)
Counties (2860)
Townships (44850)
Villages
Districts (830)
Districts Counties
Sources: Zhang, Zhibin
The Provinces
The enormous differentiation between provinces Size, wealth, topography, dialect, culture, economic structure
The importance of provinces in China’s governing system The hierarchical rank of provinces
No binding orders to any others The crucial actors in Chinese governing system
Provincial cooperation in “central” construction projects and enterprises
The size of provinces requires autonomous authority for provinces Provinces control the appointments of all but highest provincial
officials The leverages of the Center over activities of the provinces are
eroded Reform has shifted power away from Beijing to provinces
The Local Governing Bodies
Cities At any hierarchical rank Function as economic centers Full array of party and government organs which replicate those in
provinces and the center Counties
The major implementers of policies Replicate provinces and the center in full array of party and government
organs Townships
Peasants administration Localities for non-farm enterprises No full array of party and government organs Direct election at the village level since late 1980s
The Matrix Muddle: Tiao/Kuai Guanxi The matrix
Nationwide bureaucratic system meshes both vertical (coordination from center to locality) and horizontal (coordination within a given geographic area) governing bodies
The dominance of the CCP furthers complexity of the bureaucratic web Tiao and Kuai
The Tiao ( 条 ) (lines) – the vertical bureaucracies The Kuai ( 块 ) (pieces) – the horizontal bureaucracies
Tiao / Kuai Guanxi (条块关系 ) The relationship between vertical and horizontal bodies Lingdao Guanxi (领导关系 ) (leadership relationship) – the one with
priority Yewu Guanxi (业务关系 ) (professional relationship) – the one without
binding forces
Line of Authority in the Hierarchical Matrix
Guangdong Provincial
Energy Department
Guangdong Provincial Government
Zhongshan CountyCCP Committee
CCP County OrganizationDepartment
Zhongshan County Government
Zhongshan County Energy Department
Provincial Level
County Level
The Techniques to Run the Governing Matrix System
The difficulties of running the governing matrix system The pressure of building up to the Center The cooperation issue
The techniques to run the system Ideology
The importance criterion The consensus criterion Ideology worked as guidance of policy lines and goals
Decentralization Negotiation Improving and channeling information
Democratic centralism – public and political consultation Meeting system and document system
Configuration of Political Power
Top leadership since 2002 The core leader has less power over his colleagues than was the case of
Mao and Deng Formal requirements laid down in rules and regulations are taken more
seriously within the top group The top leadership group is less cohesive and less powerful than its
predecessors The differentiation of top leaders
By functional area of work The leadership small groups
By degree of specialization The key generalists The bridge leaders The specialized leaders
The Leadership Small Group
Party affairs Government work State security Foreign affairs Finance and economic affairs Taiwan work Agricultural affairs Party-building work Propaganda and ideological work Commission for public sector reform Financial work commission Large-scale-enterprise work commission Political and legal affairs
Organization of Power in ChinaLeadership Small Groups
Xitong 系统 ( system)
Relevant party departments or government ministries and commissions, and their subordinate organs
From a few to more than a dozenpertinent officials
Grouping of functionally relatedbureaucracies; the most importantare Party Affairs, Propaganda / education, Organization / Personnel,political / Legal Affairs, Military affairs, Finance / Economics
The Xitong ( 系统 ) ( system )
Xitong is a group of bureaucracies that together deal with a broad task the top leaders want performed
All of the Xitong aim to shape the behavior of China’s people
The importance of specific Xitong varied during different historical stages
The Xitong are virtually invisible on China’s organization charts
Most of the organs in Xitong other than the military report to the territorial party committees rather than up the line within their Xitong
Party Affairs Xitong ( 党务系统 )
The Composition Headed by the general secretary of CCP Consists of the first secretaries of every territorial party committee
2400 counties; 660 municipals; 44867 townships Functions
The key personnel that make the Chinese system “work” on a territorial basis Oversee implementation of political priorities sent down from above Play important role in all leadership appointments within their territories, shape
major decisions, adjudicate disputes, coordinate efforts, and lobby higher levels Centralized Operation
Vertical relationship within Party Affairs Xitong is characterized with binding leadership relationship
Each territorial party committee is directly subordinate to the one on the next higher level
Organization Affairs Xitong ( 组织系统 )
Composition Consists of the organization and personnel departments at all
levels of the party and government bureaucracies Functions
To determine who should be appointed to positions of authority throughout the political system and in related bodies such as schools and hospitals
The management of personnel The maintenance of personnel dossiers (档案 )
Operation Operate according to instructions peculiar to the Organization
xitong Decentralized operation
Territorial party committee directly commands the organization department
Propaganda and Education Xitong ( 宣教系统 )
Composition Propaganda and education bureaucracies Media, all schools and colleges, research institutes, cultural units
Functions To shape the values and perspectives of the entire population Mass political campaigns
The attenuated role of Propaganda and Education Xitong The economic reform The eroded orthodox ideology The confusion in value system
The rampant materialism
Political and Legal Affairs Xitong ( 政法系统 )
Composition Public security bureaus, court system, prosecurator
system, prison system, fire department, border guards, secret police
Functions Civilian coercive apparatus Diminishing importance
Operation Dual leadership
Public-security organs are under the control both of their territorial party committee and of the public security organ one level higher
Other Xitongs
Finance and Economics Xitong (财经系统 ) To make the urban economy grow Became more importance during the reform era
Less interference from political and propaganda system More resources
Military Xitong (军事系统 ) The leadership of the Chinese military A state within the state The CCP Central Military Commission
General Staff Department General Political Department General Logistics Department General Equipment Department
The Party-State
Party control of the Government Nomenklatura appointment
Lists of leading positions over which party units exercise the power of appointment and dismissal
List of reserve candidates for those positions Rules governing the actual processes of appointments and dismissals
Interlocking directorates Party core groups and party life
V illa ge
T o w n sh ip
C o u n ty/D is trict
C it y
P ro v in ce
C e n ter
Party Structure
T o w n sh ip
C o u n ty/D is trict
C it y
P ro v in ce
C e n ter
Governm ent Structure
Village
The Interlocking Structure between the Party and the Government
The Interlocking Structure between the Party and the Government Head of State
President Vice-president
Party Structure Government Structure
General SecretaryPolitburo Standing Committee
Politburo
ExecutivesPremier
State Council Standing CommitteeState Council
Central Military Commission
AdministrationSecretariat
Central Committee Departments:• Organization (personnel appointment)• Propaganda (media, education, and political study)• United Front (non-communist parties)•International Liaison (foreign affairs)
State Council General OfficeMinistries and Commissions
• Foreign Affairs• National Defense• State Development and Reform Commission• etc.
Rule AdjudicationSupreme People’s Court Supreme People’s ProcuratorateCentral Discipline Inspection Committee
Assemblies
Central CommitteeNational Party Congress
NPC Standing CommitteeNational People’s Congress