The Parliamentary Centre in Asia

Final Report

Co-operation Project between the Parliamentary Centre and the National People's Congress

Presented by the Parliamentary Centre

Introduction

The purpose of this final report is to:

• Report on all project activities;

• Analyze events which had a major effect, positive or negative, on the project activities and results;

• Review the results and inputs in terms of planned against actual;

• Assess the degree to which the project goal, objectives and expected results were met;

• Comment on the management of the project; and

• Identify the lessons learned and recommend any special consideration for future projects of similar nature.

The attached final financial report presents:

• A summary of actual annual and total expenditures by budget item;

• A comparison between actual and estimated expenditures; and

• A discussion on variances.

Brief History of the Project

Background

The overall purpose of this project was to support the Government of China's reform program undertaken in the context of reforming the public sector and strengthening the socialist market economy. One of the policy objectives of the program was to assist China to build up capacity in the areas of public management. The Canadian International Development Agency (CIDA) undertook a general review of its program in the field of public management, which included the identification of potential new activities in support of political reform and the strengthening of the legal/judicial system. Current developments in China indicate that there is an increasing commitment to govern by "rule of law" and to develop the institutional structures supporting a "socialist market economy". The timing therefore seemed appropriate to develop a formal initiative linking the National Peoples' Congress (NPC) and the Canadian Parliament.

There are obviously important differences between the Chinese and Canadian legislatures. Yet, at the same time there are enough similarities between the two systems on which to build a co-operative program. The role of the Standing Committee, the legislative drafting process, the role of research staff and the development of information systems, all presented potential entry points for co-operation. Canada also provided technical assistance in procedures related to the drafting of social policy and legislation, thereby enhancing the NPC's role in addressing policy issues and drafting laws and statutes.

Since there had been no previous program of co-operation between the NPC and CIDA, the initiation of a modest program allowing members of the relevant Canadian and Chinese institutions to become familiar with their respective operations was proposed by CIDA. The Agency believed that such an approach should lay the groundwork for a more ambitious and longer-term program of co-operation.

The concept of this particular project was discussed with the Deputy Director General of the NPC's Foreign Affairs Bureau in March 1998. During these discussions, a proposal for a co-operation program was presented and agreed to, in principle, by the Foreign Affairs Bureau. Chinese authorities then requested that CIDA present a more formal and detailed proposal. In response, on 16 October 1998, CIDA entered into a contract with the Parliamentary Centre of Canada (PC), to design a suitable project aimed at enhancing NPC's knowledge about the Canadian parliamentary and public management systems and provide the required technical assistance through a pilot project to be implemented between 1998 and 2001.

In October 1998, the Director of the Parliamentary Centre led a five-member team (the Canadian Core Team) to China for discussions with their counterparts (the Chinese Core Team) from the offices of NPC. Exchanges took place concerning the legislative systems and processes of the two countries followed by initial discussions on a program of co-operation. The two teams concluded the meetings by signing a document describing the objectives, organisation and some aspects of the project funding. It was agreed that the design phase of the project would be completed by a return study mission to Canada by the Chinese team in January 1999.

During the January 1999 study mission to Canada, the two Teams were able to agree on a proposed framework for the project implementation plan. This agreement outlined, in principle, the objectives of the project and, specifically, the activities that would take place during 1999 and 2000. Funding issues were also discussed and a list of contributions from each side was detailed.

Project Objectives

One of the three principal objectives of CIDA's country program for China is "to increase China's capacity to improve governance, respect for human rights and democratic development processes". This co-operation project was designed to contribute to the achievement of this particular country program objective. To accomplish this, the project worked to promote exchanges and co-operation in the field of legislation and supported China's efforts in its legislative and democratic legal system construction. The project was also designed to strengthen the dialogue and co-operation on governance issues between Canada and China.

Reiterating the objectives stated during meetings in October 1998 and January 1999, the objectives of the project were as follows:

1. To deepen the mutual understanding of the legislative systems and processes of China and Canada;

2. To seek inspiration from each others' experience

3. To enhance the skills of various levels of NPC staff and the capacity of the NPC to organize and manage its role in the legislative process in China.

The stated goal of the project, was to contribute towards increasing China's capacity to improve governance and democratic development.

The project was designed to make such a contribution by achieving a specific project purpose to promote exchanges and co-operation between the NPC and Canada in the field of legislation and to support China's efforts in its legislative and democratic legal system construction. To achieve this purpose, the project, through its activities, sought to achieve the outcome of contributing to the enhanced capacity of the NPC to organize and manage its role in the legislative process of China. In addition, the project worked to increase the mutual understanding of the legislative systems and processes of Canada and China.

Expected Results

Impacts: Within the context of the country development policy framework for China, the cooperation project between the Parliamentary Centre of Canada (PC) and the Foreign Affairs Bureau of the General Office of the Standing Committee of the NPC results in an increased capacity of the NPC to develop rule of law and become more transparent, accountable and open to public participation. The project also has the impact of contributing to better understanding on the part of the NPC of Canadian values, institutions and processes of democratic governance.

Outcomes: Deriving from the above stated purpose of the project, the outcomes of the project are twofold. The primary outcome of the project is an increased mutual understanding of the legislative processes and systems of Canada and China by both the Canadian and Chinese partners. Second the project, through its activities, contributed to an enhanced capacity of the NPC staff to organize and manage its role in the legislative process of China.

Report on all Project Activities

The project envisaged that a series of program activities, having been developed in co-operation with members of the Chinese Core Team, would be conducted, subject to the available financial resources, during the course of the project. Each activity would have a corresponding output. These activities are described in detail in this section:

Social Policy Study Mission to Canada: Over a one-week period, five representatives of the Legislative Affairs Commission (LAC) of the NPC participated in a Study Mission to Canada focused on the Chinese priority area of social policy development and program administration. The visit utilised this theme to illustrate the different structures, levels and systems of interaction involved in the Canadian policy development and legislative processes.

Outputs:

The immediate output of the activity is that the selected NPC representatives were exposed to the Canadian legislative system, including social policy development, and public consultation mechanisms and procedures. In addition, the mission provided the opportunity for the LAC representatives to be exposed to the importance of the jurisdictions of, and relations between, the federal and provincial governments in this area and the evolution of the Canadian social security system. The latter facilitated the LAC's comprehensive understanding of the Canadian system. A longer-term output of this activity was the fact that the LAC is currently reviewing China's social security system and is referring to the Canadian model, particularly with reference to old-age pension, when suggesting changes to China's system.

Chinese Legislative Study Mission to China:

Over a two-week period members of the Canadian Core Team conducted a study mission to China. The purpose of the visit was to contribute to an enhanced understanding by the Canadian Core Team members of the Chinese People's Congress system as well as the legislative and consultative processes at various governmental levels in China. On this basis, the Parliamentary Centre was then able to make a more effective and focused contribution to the project. Further, by enhancing its understanding of the Congress system, the Parliamentary Centre was able to better assist the NPC in achieving the primary goal of the project. Finally, such a visit was important in allowing the members of the Joint Steering Committee to evaluate the progress of the project to date and to negotiate alterations as needed.

Outputs: The mission served to enhance the Canadian Core Team's knowledge and understanding of the People's Congress system, its structures, and administrative mechanisms at the various levels as noted in the Performance Measurement Framework (PMF). In addition, the mission provided the opportunity for the Team to witness and learn about the direct election process at the village level and to also learn more about consultative mechanisms within the Congress system.

Property Law Seminar in Beijing: Similarly, the project purpose also aims to contribute to China's efforts in its legislative and democratic legal system construction. In this manner, through a policy seminar on property law, over 30 selected NPC officials developed an enhanced knowledge of Canadian property law, including Canada's civil and common law traditions.

Outputs: Through the two-day seminar, selected NPC and other government officials enhanced their knowledge of Canadian property law, including the civil and common law traditions. The activity led to further interest in the Canadian system and continued research by the LAC in the area of property law and taxation.

Public Participation Study Mission to Canada: Over a ten-day period, 6 staff officials of the NPC and Jiangsu People's Congress conducted an in-depth study of Canadian approaches to public consultation. The program consisted of meetings with federal and provincial government officials and non-governmental organizations with a focus on legislative bodies and their role in public consultation. The mission also provided a comprehensive study of the different levels of government in Canada and their relationships.

Outputs: The mission served to increase the capacity of the NPC to become more open to public participation and to improve relations between Parliament and the public through public consultation mechanisms and processes. Through the activity the selected NPC officials also enhanced their knowledge of Canadian public consultation mechanisms and processes. The mission also contributed to the launch of public committee hearings in the Provincial People's Congress of Jiangsu.

Management Training for NPC official in Canada: This activity involved one program manager from the Foreign Affairs Bureau who is a member of the Chinese Core Team on the project. Over the course of a two-week period, the NPC official undertook intensive training in the areas of project administration, results-based management, financial management and improving computer software skills

Outputs: The training program served to increase the capacity of the NPC staff to organize and manage its role in the legislative process of China. It also exposed a member of the NPC staff to Canadian values, institutions and processes of democratic governance. Furthermore, the one-on-one activities at the Parliamentary Centre provided opportunity to increase mutual understanding of both partners on the legislative systems and processes of China and Canada.

The training program contributed directly to the enhancement of the Foreign Affairs Bureau's reporting and management strategy for this program and ensured that Results-Based Management was effectively utilized by the NPC.

Taxation Policy Study Mission to Canada: At the request of the Legislative Affairs Commission (LAC), which is currently revising the tax legislation of China, the Parliamentary Centre organised an additional activity for the NPC and invited 5 senior officials from the LAC to undertake an in-depth study of Canadian taxation legislation and policy. The purpose of this mission was to contribute to the development of similar legislation and policy in China.

Outputs: Through the taxation policy study mission, selected LAC officials were exposed to issues of taxation and fiscal policy and have a better understanding of the Canadian tax legislation and the implementation mechanisms that ensure compliance with this tax legislation. From the mission, the LAC has developed a "Taxpayers' Declaration of Rights" modelled on the Canadian declaration they were exposed to during their visits to the Canada Customs and Revenue Agency.

The project partners hope that in the long-term this study mission will contribute to China's efforts in its legislative and democratic legal system construction. Furthermore, the participants have furthered their knowledge on the Canadian legislative and federal systems and deepened their understanding of Canada's democratic processes.

"Parliament and the Public" Study Mission to Canada: Research and information has been an important focus of this project. As mentioned in the Project Implementation Plan, the project aims to enhance specialized knowledge of the legislative systems in both countries. Since the Research Office of the General Office of the Standing Committee is currently producing a book on the Canadian Parliament, both the CEA and ChEA felt that the project could provide assistance with this work. Consequently, a study mission was organised for 5 officials from the Research Office of the NPC for an in-depth study of procedural issues and practices of the Canadian Parliament and to research the level of public participation in the parliamentary process.

Outputs: The mission contributed to active research of the delegation on foreign parliamentary systems. It exposed the delegates to the various mechanisms that ensure public participation in government policy and enhanced their knowledge of the Canadian political and parliamentary system. The Research Office is now developing a document on "Rules and Procedure of Committees" to help NPC commissions in their daily activities. This mission also facilitated an exchange with the Research Office's counterpart in the Canadian Library of Parliament.

Study Mission to China by Representatives of the Parliamentary Centre: Following the study mission to Canada by the Research Office of the NPC, a reciprocal mission to China by a Canadian team increased Canadian understanding of the National People's Congress system. This mission also provided an opportunity to promote a trusting and open relationship between partners. The mission was the final step in a lengthy and rewarding research exchange on the governance processes in both countries.

Outputs: The mission served to further enhance the Canadian Team's knowledge and understanding of the People's Congress system, particularly when concerning the less developed regions of China. The mission enabled the Canadian Team to research how the People's Congress system is organized and functions in the more remote regions of the country such as the Autonomous Region of Inner Mongolia and to investigate how both the NPC and the regional congresses work jointly on implementing China's "Western Development" policy. Furthermore, the study mission offered the Canadian Team the opportunity for comparative analysis on how the People's Congress system responds to the needs of economically strong provinces such as Jiangsu and the more remote and economically weaker regions such as Inner Mongolia.

Joint Project Review Study: The Parliamentary Centre and the Foreign Affairs Bureau of the NPC produced a joint review of the project with the aim being to document the project's contribution and to increase the project partners' understanding of each other's legislative system and processes. In doing so, the partners also drew conclusions and made suggestions for future directions for cooperation in the field of governance.

Outputs: This Joint Project Review Study was the culmination of years of fruitful exchange and mutual cooperation between the Canadian and Chinese project partners. This activity confirmed the high level of quality and repeated information exchange between the Parliamentary Centre and the NPC and is a qualitative and quantitative indicator of the project's contribution to an enhanced, specialized and focused knowledge of the legislative systems and policy issues of Canada and China by members of the two permanent Teams and other participants in the project. The fact that this Joint Project Review Study was presented jointly to CIDA also confirms the level of trust, understanding and cooperation that has evolved throughout the course of the project implementation between the two partners.

On the basis of findings and results of this internal review, CIDA is now considering the planning of a longer-term cooperation program between the Parliamentary Centre of Canada and the National People's Congress of China.

Project Findings

The following briefly highlights some of the Parliamentary Centre's analysis of events or circumstances that had a major effect, positive or negative, on the project activities and results:

¨ Seriousness of purpose from the Chinese partners The Parliamentary Centre (PC) was consistently impressed by the seriousness of purpose among Chinese delegations and their strong commitment to learn from Canada. This was reflected in the calibre and professionalism of members of delegations. It was clear from the amount of work and research that delegates accomplished while in Canada, that the Chinese do not treat study missions as "vacation time" in Canada but are dedicated to the topics and to learning the Canadian parliamentary experience. This commitment from our Chinese partners at the Foreign Affairs Bureau and from the various delegations ensured productive and results-oriented missions.

¨ Current lack of knowledge in the NPC and in China overall about Canadian politics, parliament and values.

The NPC repeatedly expressed concern that it is extremely difficult to identify Chinese scholars and NPC staff with broad knowledge of Canada. On many occasions, delegations were unable to find a suitable expert to brief them on the Canadian system prior to their departure on study missions. Accordingly, the NPC is investing time and resources to ensure that its research staff becomes more knowledgeable on Canadian politics and that this information is disseminated to the wider public. The PC-NPC Co-operation project has played an important role in increasing the level of expertise on Canada within the NPC.

¨ Close cooperation between the project partners

To a surprising degree, the NPC has ensured that the relationship it has with the Canadian Parliamentary Centre is open, trusting and inclusive. The PC felt it had a real hands-on role in the project and was genuinely involved in planning project activities. The project had an active and strong line of communication between the partners and this promoted further trust. The PC strongly believes that close co-operation was key to this project and wishes to continue collaboration.

¨ Similarity of issues and topics

Canadian participants in project activities were struck by the degree of commonality between Chinese and Canadian policy issues. The Chinese delegates also commented on the parallels between the two countries. Although the systems are at their base, extremely different, delegations found that at an issue-based level, there are many commonalities. For example, both systems are confronting issues of decentralization, reform to their social policy networks and grappling with the issue of public participation and consultation. This enabled focussed visits and further increased interest in this project. Similarities at an organizational level also exist. This was particularly evident when the Research Office visited the Research Branch of the Library of Parliament and found strong similarities in the organizational structure and mandate of both institutions.

¨ Project clarified misunderstandings and misconceptions.

The Canadian partner sees China moving ahead in a modest but assured way and has seen evidence that the NPC is playing a more active role in the development of legislation. The NPC is committed to making Parliament more effective. The NPC is interested in issues such as political parties and elections; subjects that the Canadian partners assumed would be off limits. However, it is clear that China is looking ahead and preparing for further changes that will improve and perfect the current system. Given this forward-looking trend, the Chinese delegates are open to studying a diversity of issues and their curiosity and interest grows with each new mission and each new topic. This project has helped PC confront many misunderstandings it initially had about the limitations in the scope of this program and the continuous exchange with officials from the NPC has also clarified misconceptions about the Chinese system.

In the same manner, PC has received indication from the Chinese participants that study missions also helped to educate them on misconceptions and misunderstandings about the Canadian system of politics. A recurring message from delegates is that they discover how different Canada is from the United States once they study our system in more detail. The project activities promoted a candid exchange between Chinese and Canadian participants and helped both partners to understand each other and to deepen the relationship.

¨ The Chinese are committed to incrementalism and will undertake political reform from the bottom up.

PC became increasingly aware of the commitment of the NPC to all levels of People's Congresses whether they be provincial, municipal or at the village level. PC also observed that the NPC is interested in establishing links with the different levels and wishes to integrate learning and opportunity with the lower levels of congresses. This influenced the project greatly and broadened the scope of project activities to include issues at the provincial and municipal levels. Canada's federal system provided an excellent counterpart for the People's Congresses and while the Chinese government is not interested in becoming a federation, they are keen to learn about the division and sharing of power among the national, provincial and municipal governments in Canada.

¨ NPC is interested and willing to learn about the experience of foreign countries

Over the course of two years, PC has repeatedly taken notice of the NPC's interest in outside systems. From discussions with various officials, PC feels that the NPC is open to outside systems such as the Canadian one for two reasons: 1- to develop their rule of law and 2- to open the system to public input and consultation. These are two important elements to the reforms that China is now undertaking to transform the public sector and the socialist market economy. These themes occur time and time again in study missions and the NPC seems genuinely committed to implementing reforms in those areas.

Results

The following are identifiable results that the Canadian partner feels have contributed to the overall project goal to contribute towards increasing China's capacity to improve governance and democratic development:

¨ Greater co-operation between the NPC and the various arms of government in China.

During the November 1999 Joint Steering Committee Meeting, Mr. Li Fei of the Research Office of the Legislative Affairs Commission commented that following the mission on Social Policy, the LAC was able to work in co-ordination with the Ministry for Labour and Social Policy and was able to influence some of the work of the Ministry on the issue.

Furthermore, the NPC has ensured that reports on project activities are distributed to various government institutions and to high-ranking officials within the NPC. The dissemination of this information has ensured that a wider audience within the Chinese government has a better understanding of Canadian values, institutions and processes of democratic governance.

¨ Increased mutual understanding.

The Chinese are evidently structuring this relationship with Canada within their overall study of foreign parliaments so that the project feeds into a very specific and disciplined learning process. Furthermore, the level of specificity in the policy issues and legislation that are studied during project activities ensures that there is an increased mutual understanding of the legislative systems and processes of China and Canada. The project has been successful in exposing both the Chinese and the Canadian partners to their respective systems. The NPC is committed to exposing the Canadian participants to the Chinese legislative system and believes strongly that more reciprocity should occur in this project to ensure mutual understanding rather than understanding on the Chinese side alone.

¨ Greater capacity within the NPC staff to organize and manage its role in the legislative process of China

The study missions have given several officials the opportunity to acquire information and contacts that contribute to the development of new legislation by the NPC. Specifically the project activities have increased the capacity of the LAC to review and draft legislation on issues such as taxation, social programs, and property law. Activities centred on public consultation and public participation have enabled the NPC to apply the Canadian experience to the strengthening of the legislative process in China while activities focussed on management training and research and information have increased the capacity of the NPC and the Research Office specifically to manage its institution.

The first phase of this project has been mostly about "learning" and the exchange of information. The Chinese participants have a greater recognition and understanding of the Canadian system and this is reflected in the reports PC receives with detailed analysis on the issue areas reviewed while in Canada. However, the NPC also reports that concrete actions have been taken as a result of project activities.

¨ Greater results and inputs in terms of planned against actual activities

The cooperation project between the Parliamentary Centre and the Foreign Affairs Bureau of the General Office of the Standing Committee of the NPC was the first of its kind and hence its primary objectives were to deepen the mutual understanding of China and Canada on their respective legislative systems and to seek inspiration from each other's experience. Furthermore, specific results were identified for this project in the Project Implementation Plan and it is the opinion of the Parliamentary Centre that the project has not only reached its objectives and delivered the expected results but that further results and inputs were achieved through additional activities and successful application of lessons learned.

Impact The stated impact result for this project is "an increased capacity of the NPC to develop rule of law and become more transparent, accountable and open to public participation." A second impact is that the project will also contribute to better understanding on the part of the NPC of Canadian values, institutions and processes of democratic governance. While it is generally understood that results at the impact level are likely to be achieved in the longer-term, the Parliamentary Centre strongly believes the project has already contributed to impact-level results as reported by the Chinese partners. For example, the project has contributed to the advancement of rule of law in China by assisting the Legislative Affairs Commission in reviewing several Chinese legislations such as the taxation act, the social security act and its property law. In some cases, Canadian practice was borrowed and incorporated into revised Chinese legislation. The project also contributed to the NPC's efforts to become more transparent, accountable and open to public participation. By concentrating several project activities and training on methods of public consultation, the project has increased the NPC's knowledge of public consultation and informed some of the more recent strategies to incorporate public consultation in NPC activities. Furthermore, by extending the scope of the project to regional and provincial people's congresses, the project has directly contributed to a more transparent and accountable congress system at the lower levels. The most concrete example of this result is the recent addition of public hearings to the Jiangsu Provincial People's Congress, resulting from a study mission by members of this Congress to Canada under the auspices of this project to study methods of public consultation.

Outcomes

The stated outcomes for this project were twofold: an increased mutual understanding of the legislative processes and systems of Canada and China by both partners and second, an enhanced capacity of the NPC staff to organize and manage its role in the legislative process of China. As demonstrated in numerous reports throughout the life of the project, both partners have reported an increased mutual understanding of the respective systems and are both working on publications that document the lessons learned and understanding achieved through this project. More importantly, as the level of trust and cooperation grew between both project partners, the level of understanding and openness between the partners also grew. The Parliamentary Centre firmly believes that the trusting relationship and mutual respect between the Foreign Affairs Bureau, other NPC officials and the Parliamentary Centre enabled the project to achieve greater outcomes. Specific training in the areas of public consultation, research and information skills, legislative analysis, parliamentary management and results-based management achieved the stated result of enhancing the capacity of the NPC staff to organize and manage its role in the legislative process. The project results include improved knowledge and enhanced capacity of the NPC staff to manage the NPC's role in overseeing the implementation of laws. Throughout the life of the project, NPC participants remarked that ensuring the proper implementation of laws is a growing and daunting task for the NPC. As much as possible, the project tried to address this important issue and offer the Canadian experience with this critical area of the legislative process.

Outputs

The PC-NPC Cooperation project had initially developed a series of 6 program activities, each with a corresponding output. As reported in the above section on project activities, the Parliamentary Centre has demonstrated that all project activities produced the expected results. Furthermore, by managing financial resources tightly the Parliamentary Centre was able to extend planned activities from 6 to 9 which means that additional outputs were achieved in the area of taxation, research and information, and public participation. As well, the scope of the project broadened over the course of three years and project results reached not only the NPC staff but also staff from regional, provincial and municipal congresses.

Lessons Learned

We think of Lessons Learned as benchmarks of importance. These are subjective elements that we cannot identify in the Results-Based Management framework or Performance Measurement Framework (PMF) but that are important to the life and success of the project, especially in the next phase.

¨ Trust and good communication

Trust is crucial to this partnership and both partners are positive that communication continued to improve during the course of this project and that this is directly related to the success of project activities. Trust has been pivotal to the success of the project and has enabled the partners to break new ground and to deepen the commitment of the NPC to this project. PC believes that this trust stems in part from the fact that our Chinese partners felt a relief that Canada is not imposing its own agenda and that the NPC had the freedom and liberty to choose issues of interest to them. PC believes that projects with the NPC must remain flexible and responsive to the needs of the institution. Efforts should be made to ensure that new programming feed directly into the work of NPC officials and can contribute to their daily work.

¨ Re-evaluation of Permanent Project teams

While it is important to have committed individuals working on the project, ensuring continuity and effective co-ordination between both countries, the PC feels that, particularly on its side, the permanent team did not function as was originally planned. The Parliamentary Centre felt that not all Canadian team members contributed equally to the program and further, that roles were not clearly defined for the members of the Permanent Team. If the project moves into a new phase, it will be important to discuss and re-evaluate the purpose of these teams and identify clearer roles for some of the principals. It is not simply a matter of identifying the right people for the project but to ensure that the purpose of the team is well defined and implemented.

¨ Focus is important.

PC felt that the project achieved greater results when it focussed on key issues rather than just offering a broad overview. A key practice that works is to use policy as a lens to study process. Logically, the program began with activities that were wider in their scope in order to give an overview of the system. But in more recent activities both the Canadian and Chinese partners narrowed the focus on specific policy issues and found that the level of research and understanding was further increased.

¨ Logistical changes

At the request of the Chinese partners, the project activities underwent changes to ensure better results. First of all, the length of study missions was extended from 7 to 10 days in order to provide for more meeting-time. Furthermore, program organisers made a conscious effort to provide longer blocks of time for meetings. While this may limit the number of presentations and contacts during a 10-day mission it also ensures that each meeting is comprehensive and guarantees extra time for exchange and discussion. One of the most important complaints made by delegations is the fact that Chinese participants receive little opportunity to share experiences on their system. Therefore, by organising longer meetings that incorporate discussion time, the project hoped to balance the acquisition of knowledge with the exchange of experience.

¨ Professionalism of delegations.

The project found that the list of topics sent ahead by a delegation to help prepare the in-country program is crucial to a relevant and informative study mission. As well, the preparation of delegates and the advanced research they do on topics enabled PC to organise more advanced and sophisticated meetings for participants.

¨ Importance of debriefing meetings and follow-up.

One of the most satisfying meetings during any project activity is the debriefing session where participants and organisers share their views on the activity and discuss similarities and differences between the two countries. The debriefing session not only gives opportunity for the Chinese to compare and contrast the Canadian system with their own; it also becomes a crucial meeting for the Canadian partners. Here, PC staff gains knowledge on the success of the project and more generally, acquires information about the workings of the NPC and the Chinese system.

Recommendations for future projects

In this section the Parliamentary Centre wants to express some of the important issues it would like to see addressed in any future projects with the NPC:

¨ A more focussed and thematic program

With three years of activities behind us and a better understanding of each other's systems, the PC-NPC co-operation project can now gradually build on the specific elements of the legislative process, which are relevant to the work of the NPC. PC hopes that both project partners can agree to a specific program theme that will enable the project to concentrate its activities. For example, the project could choose a specific Chinese policy area and build project activities around the various elements of this national policy.

¨ Stronger linkage between activities

To ensure more concrete results and to build on the momentum of project activities there should be greater use of workshops and seminars and less emphasis on study visits. As well, the project should ensure that study visits are twinned with other activities such as seminars or attachments that reinforce the results achieved during missions

¨ More participation on the Canadian side

The general feeling at the PC is that Canada needs to have a better sense of what the NPC is about and how it works. The Canadian partners need to gain greater knowledge on the institution and the political system in China. It follows that if the CEA has a clearer understanding of the Chinese partner and the institution it aims to assist, it can provide better technical assistance and provide a stronger program for the NPC. Therefore, PC would like to become more actively involved in the exchange of information and have greater opportunity to learn and study the NPC and the overall Chinese political system. For instance, PC would like to understand the NPC training centre.

¨ Explore the possibility to involve parliamentary institutions such as parliamentary committees from both China and Canada

While the first phase of the project clearly identified NPC staff as project participants, PC would like to explore the possibility of involving the elected officials of both countries to a greater extent. For example, this could be achieved by twinning a Canadian Parliamentary Committee with one of the Special Committees of the NPC. Such an activity would provide for extensive exchange between the staff assigned to the respective commissions but it would also provide for an exchange of information and mutual understanding between elected officials.

¨ Increase co-operation and exchange with other Canadian and international programs working with the NPC or other Chinese institutions

The Parliamentary Centre has become aware of several projects supported by CIDA and other donor agencies that work either with the NPC or other institutions in China that could benefit the work of this project. Co-operation with those agencies should be explored as some of the activities may be complimentary. For example, the Research Office, with the help of the Ford Foundation, is organising a global on-line seminar on parliamentary procedure and has invited PC to participate. This type of co-operation can benefit the project and strengthen ties between donor agencies.

¨ Expand the project to the regions and involve the provinces and municipalities to a greater extent

As mentioned in the "Findings", the project has made some effort in the first phase to include participation from all levels of People's Congresses. There have been several discussions surrounding a possible mission by the Canadian team to the rural western areas of China (e.g. Inner Mongolia) and to build project activities with those provinces as well as the province of Jiangsu. PC feels that it should explore how to better integrate the various congress levels in the project.

¨ Provide training for Congress staff at all levels through the NPC training cadre centre and through increased internships and attachments

The only major area that was not fully explored during the implementation of this project (despite its inclusion in the Project Implementation Plan) was staff training. The partners should put in place a training program that provides concrete deliverables on a systematic schedule. Furthermore, training could extend to deputies as well and include joint work with Canadian deputies. Through internships and placements, the project would ensure more in-depth exchanges and a better understanding of the systems. Training could be reciprocal to ensure that Canadian experts could also benefit from this project to learn more about the NPC and bring the knowledge back to Canada. These activities could also ensure that the project involves the Canadian Parliament more directly and the MPs, with better collaboration with the CCLA and with the Library of Parliament.

Conclusion

The Parliamentary Centre wishes to bring to a close this final report by thanking the Canadian International Development Agency and specifically the China Division for its continued support and commitment to the project. The Parliamentary Centre also extends its gratitude to the Development Assistance Section of the Canadian Embassy in China and to Mr. Richard Larivière, Senior Development Officer in the China Division.

The success of this project would not have been possible without the dedication and resolve of the Chinese Core Team from the Foreign Affairs Bureau. Through the leadership of the Chinese Co-directors, Mme Ye Wei Wei and her successor Mr. Zhong Ronglai, the Foreign Affairs Bureau ensured the success of this project by identifying strong NPC participants, producing timely reports and participating actively in project planning, monitoring and evaluation. The Parliamentary Centre feels that above all, it was the trust and mutual respect between the Canadian and Chinese Core Teams that led to a successful and effective project.

In closing, the Parliamentary Centre considers that the PC-NPC Cooperation Project was successful in achieving its goal, objectives and expected results. More importantly, this project built a solid foundation of trust and mutual understanding between Canada and China in the area of good governance and laid the groundwork for future programming. The Parliamentary Centre certainly hopes new initiatives will develop, building on the results of this project. ***