PUBLIC
ADMINISTRATION
IN SOUTHEAST ASIA
THAILAND, PHILIPPINES, MALAYSIA,
HONG KONG, AND MACAO
© 2011 by Taylor and Francis Group, LLC
PUBLIC ADMINISTRATION AND PUBLIC POLICY
A Comprehensive Publication Program
EDITOR-IN-CHIEF
EVAN M. BERMAN
Distinguished University Professor
J. William Fulbright Distinguished Scholar
National Chengchi University
Taipei, Taiwan
Founding Editor
JACK RABIN
1. Public Administration as a Developing Discipline, Robert T. Golembiewski
2. Comparative National Policies on Health Care, Milton I. Roemer, M.D.
3. Exclusionary Injustice: The Problem of Illegally Obtained Evidence,
Steven R. Schlesinger
5. Organization Development in Public Administration, edited by Robert T. Golembiewski
and William B. Eddy
7. Approaches to Planned Change, Robert T. Golembiewski
8. Program Evaluation at HEW, edited by James G. Abert
9. The States and the Metropolis, Patricia S. Florestano and Vincent L. Marando
11. Changing Bureaucracies: Understanding the Organization before Selecting
the Approach, William A. Medina
12. Handbook on Public Budgeting and Financial Management, edited by Jack Rabin
and Thomas D. Lynch
15. Handbook on Public Personnel Administration and Labor Relations, edited by

Jack Rabin, Thomas Vocino, W. Bartley Hildreth, and Gerald J. Miller
19. Handbook of Organization Management, edited by William B. Eddy
22. Politics and Administration: Woodrow Wilson and American Public Administration,
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23. Making and Managing Policy: Formulation, Analysis, Evaluation, edited by
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25. Decision Making in the Public Sector, edited by Lloyd G. Nigro
26. Managing Administration, edited by Jack Rabin, Samuel Humes, and Brian S. Morgan
27. Public Personnel Update, edited by Michael Cohen and Robert T. Golembiewski
28. State and Local Government Administration, edited by Jack Rabin and Don Dodd
29. Public Administration: A Bibliographic Guide to the Literature, Howard E. McCurdy
31. Handbook of Information Resource Management, edited by Jack Rabin
and Edward M. Jackowski
32. Public Administration in Developed Democracies: A Comparative Study, edited by
Donald C. Rowat
33. The Politics of Terrorism: Third Edition, edited by Michael Stohl
34. Handbook on Human Services Administration, edited by Jack Rabin
and Marcia B. Steinhauer
36. Ethics for Bureaucrats: An Essay on Law and Values, Second Edition, John A. Rohr
37. The Guide to the Foundations of Public Administration, Daniel W. Martin
39. Terrorism and Emergency Management: Policy and Administration, William L. Waugh, Jr.
40. Organizational Behavior and Public Management: Second Edition, Michael L. Vasu,
Debra W. Stewart, and G. David Garson
43. Government Financial Management Theory, Gerald J. Miller
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49. Handbook of Court Administration and Management, edited by Steven W. Hays
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50. Handbook of Comparative Public Budgeting and Financial Management, edited by
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53. Encyclopedia of Policy Studies: Second Edition, edited by Stuart S. Nagel
54. Handbook of Regulation and Administrative Law, edited by David H. Rosenbloom
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55. Handbook of Bureaucracy, edited by Ali Farazmand
56. Handbook of Public Sector Labor Relations, edited by Jack Rabin, Thomas Vocino,
W. Bartley Hildreth, and Gerald J. Miller
57. Practical Public Management, Robert T. Golembiewski
58. Handbook of Public Personnel Administration, edited by Jack Rabin, Thomas Vocino,
W. Bartley Hildreth, and Gerald J. Miller
60. Handbook of Debt Management, edited by Gerald J. Miller
62. Handbook of Local Government Administration, edited by John J. Gargan
63. Handbook of Administrative Communication, edited by James L. Garnett
and Alexander Kouzmin
64. Public Budgeting and Finance: Fourth Edition, edited by Robert T. Golembiewski
and Jack Rabin
67. Handbook of Public Finance, edited by Fred Thompson and Mark T. Green
68. Organizational Behavior and Public Management: Third Edition, Michael L. Vasu, Debra
W. Stewart, and G. David Garson
69. Handbook of Economic Development, edited by Kuotsai Tom Liou
70. Handbook of Health Administration and Policy, edited by Anne Osborne Kilpatrick
and James A. Johnson
72. Handbook on Taxation, edited by W. Bartley Hildreth and James A. Richardson
73. Handbook of Comparative Public Administration in the Asia-Pacific Basin, edited by
Hoi-kwok Wong and Hon S. Chan
74. Handbook of Global Environmental Policy and Administration, edited by
Dennis L. Soden and Brent S. Steel
75. Handbook of State Government Administration, edited by John J. Gargan
76. Handbook of Global Legal Policy, edited by Stuart S. Nagel
78. Handbook of Global Economic Policy, edited by Stuart S. Nagel
79. Handbook of Strategic Management: Second Edition, edited by Jack Rabin,

Gerald J. Miller, and W. Bartley Hildreth
80. Handbook of Global International Policy, edited by Stuart S. Nagel
81. Handbook of Organizational Consultation: Second Edition, edited by
Robert T. Golembiewski
82. Handbook of Global Political Policy, edited by Stuart S. Nagel
83. Handbook of Global Technology Policy, edited by Stuart S. Nagel
84. Handbook of Criminal Justice Administration, edited by M. A. DuPont-Morales,
Michael K. Hooper, and Judy H. Schmidt
85. Labor Relations in the Public Sector: Third Edition, edited by Richard C. Kearney
86. Handbook of Administrative Ethics: Second Edition, edited by Terry L. Cooper
87. Handbook of Organizational Behavior: Second Edition, edited by
Robert T. Golembiewski
88. Handbook of Global Social Policy, edited by Stuart S. Nagel and Amy Robb
89. Public Administration: A Comparative Perspective, Sixth Edition, Ferrel Heady
90. Handbook of Public Quality Management, edited by Ronald J. Stupak
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91. Handbook of Public Management Practice and Reform, edited by Kuotsai Tom Liou
93. Handbook of Crisis and Emergency Management, edited by Ali Farazmand
94. Handbook of Comparative and Development Public Administration: Second Edition,
edited by Ali Farazmand
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95. Financial Planning and Management in Public Organizations, Alan Walter Steiss
and Emeka O. Cyprian Nwagwu
96. Handbook of International Health Care Systems, edited by Khi V. Thai,
Edward T. Wimberley, and Sharon M. McManus
97. Handbook of Monetary Policy, edited by Jack Rabin and Glenn L. Stevens
98. Handbook of Fiscal Policy, edited by Jack Rabin and Glenn L. Stevens
99. Public Administration: An Interdisciplinary Critical Analysis, edited by Eran Vigoda
100. Ironies in Organizational Development: Second Edition, Revised and Expanded,
edited by Robert T. Golembiewski

101. Science and Technology of Terrorism and Counterterrorism, edited by Tushar K. Ghosh,
Mark A. Prelas, Dabir S. Viswanath, and Sudarshan K. Loyalka
102. Strategic Management for Public and Nonprofit Organizations, Alan Walter Steiss
103. Case Studies in Public Budgeting and Financial Management: Second Edition,
edited by Aman Khan and W. Bartley Hildreth
104. Handbook of Conflict Management, edited by William J. Pammer, Jr. and Jerri Killian
105. Chaos Organization and Disaster Management, Alan Kirschenbaum
106. Handbook of Gay, Lesbian, Bisexual, and Transgender Administration and Policy,
edited by Wallace Swan
107. Public Productivity Handbook: Second Edition, edited by Marc Holzer
108. Handbook of Developmental Policy Studies, edited by Gedeon M. Mudacumura,
Desta Mebratu and M. Shamsul Haque
109. Bioterrorism in Medical and Healthcare Administration, Laure Paquette
110 . International Public Policy and Management: Policy Learning Beyond Regional,
Cultural, and Political Boundaries, edited by David Levi-Faur and Eran Vigoda-Gadot
11 2. Handbook of Public Sector Economics, edited by Donijo Robbins
11 3. Handbook of Public Administration and Policy in the European Union, edited by
M. Peter van der Hoek
114. Nonproliferation Issues for Weapons of Mass Destruction, Mark A. Prelas
and Michael S. Peck
11 5. Common Ground, Common Future: Moral Agency in Public Administration,
Professions, and Citizenship, Charles Garofalo and Dean Geuras
11 6. Handbook of Organization Theory and Management: The Philosophical Approach,
Second Edition, edited by Thomas D. Lynch and Peter L. Cruise
11 7. International Development Governance, edited by Ahmed Shafiqul Huque
and Habib Zafarullah
11 8. Sustainable Development Policy and Administration, edited by
Gedeon M. Mudacumura, Desta Mebratu, and M. Shamsul Haque
119 . Public Financial Management, edited by Howard A. Frank
120. Handbook of Juvenile Justice: Theory and Practice, edited by Barbara Sims

and Pamela Preston
121. Emerging Infectious Diseases and the Threat to Occupational Health in the U.S.
and Canada, edited by William Charney
122. Handbook of Technology Management in Public Administration, edited by
David Greisler and Ronald J. Stupak
123. Handbook of Decision Making, edited by Göktu˘g Morçöl
124. Handbook of Public Administration, Third Edition,
edited by Jack Rabin,
W. Bartley Hildreth, and Gerald J. Miller
125. Handbook of Public Policy Analysis, edited by Frank Fischer, Gerald J. Miller,
and Mara S. Sidney
126. Elements of Effective Governance: Measurement, Accountability and Participation,
edited by Kathe Callahan
127. American Public Service: Radical Reform and the Merit System, edited by
James S. Bowman and Jonathan P. West
128. Handbook of Transportation Policy and Administration, edited by Jeremy Plant
129. The Art and Practice of Court Administration, Alexander B. Aikman
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130. Handbook of Globalization, Governance, and Public Administration, edited by
Ali Farazmand and Jack Pinkowski
131. Handbook of Globalization and the Environment, edited by Khi V. Thai, Dianne Rahm,
and Jerrell D. Coggburn
132. Personnel Management in Government: Politics and Process, Sixth Edition,
Norma M. Riccucci and Katherine C. Naff
133. Handbook of Police Administration, edited by Jim Ruiz and Don Hummer
134. Handbook of Research Methods in Public Administration, Second Edition, edited by
Kaifeng Yang and Gerald J. Miller
135. Social and Economic Control of Alcohol: The 21st Amendment in the 21st Century,
edited by Carole L. Jurkiewicz and Murphy J. Painter
136. Government Public Relations: A Reader, edited by Mordecai Lee

137. Handbook of Military Administration, edited by Jeffrey A. Weber and Johan Eliasson
138. Disaster Management Handbook, edited by Jack Pinkowski
139. Homeland Security Handbook, edited by Jack Pinkowski
140. Health Capital and Sustainable Socioeconomic Development, edited by
Patricia A. Cholewka and Mitra M. Motlagh
141. Handbook of Administrative Reform: An International Perspective, edited by
Jerri Killian and Niklas Eklund
142. Government Budget Forecasting: Theory and Practice, edited by Jinping Sun
and Thomas D. Lynch
143. Handbook of Long-Term Care Administration and Policy, edited by
Cynthia Massie Mara and Laura Katz Olson
144. Handbook of Employee Benefits and Administration, edited by Christopher G. Reddick
and Jerrell D. Coggburn
145. Business Improvement Districts: Research, Theories, and Controversies, edited by
Göktu ˘g Morçöl, Lorlene Hoyt, Jack W. Meek, and Ulf Zimmermann
146. International Handbook of Public Procurement, edited by Khi V. Thai
147. State and Local Pension Fund Management, Jun Peng
148. Contracting for Services in State and Local Government Agencies, William Sims Curry
149. Understanding Research Methods: A Guide for the Public and Nonprofit Manager,
Donijo Robbins
150. Labor Relations in the Public Sector, Fourth Edition, Richard Kearney
151. Performance-Based Management Systems: Effective Implementation and Maintenance,
Patria de Lancer Julnes
152. Handbook of Governmental Accounting, edited by Frederic B. Bogui
153. Bureaucracy and Administration, edited by Ali Farazmand
154. Science and Technology of Terrorism and Counterterrorism, Second Edition, edited by
Tushar K. Ghosh, Mark A. Prelas, Dabir S. Viswanath, and Sudarshan K. Loyalka
155. Handbook of Public Information Systems, Third Edition, edited by Christopher M. Shea
and G. David Garson
156. Public Administration in East Asia: Mainland China, Japan, South Korea, and Taiwan,

edited by Evan M. Berman, M. Jae Moon, and Heungsuk Choi
157. Public Administration and Law: Third Edition, David H. Rosenbloom, Rosemary O'Leary,
and Joshua Chanin
158. Governance Networks in Public Administration and Public Policy, Christopher Koliba,
Jack W. Meek, and Asim Zia
159. Public Administration in Southeast Asia: Thailand, Philippines, Malaysia, Hong Kong
and Macao, edited by Evan M. Berman
Available Electronically
PublicADMINISTRATIONnetBASE
© 2011 by Taylor and Francis Group, LLC

Edited by
EVAN M. BERMAN
PUBLIC
ADMINISTRATION
IN SOUTHEAST ASIA
THAILAND, PHILIPPINES, MALAYSIA,
HONG KONG, AND MACAO
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Library of Congress Cataloging-in-Publication Data
Public administration in Southeast Asia : Thailand, Philippines, Malaysia, Hong Kong and Macao /
editor, Evan M. Berman.
p. cm. (Public administration and public policy ; v. 160)
Includes bibliographical references and index.
ISBN 978-1-4200-6476-6 (hardcover : alk. paper)
1. Public administration Southeast Asia. 2. Civil service reform Southeast Asia. 3. Southeast
Asia Politics and government. I. Berman, Evan M.
JQ98.A58P83 2010
351.59 dc22 2010033716
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© 2011 by Taylor and Francis Group, LLC
 is book is dedicated to civil servants who, the world
over, improve the lives of billions of people.
© 2011 by Taylor and Francis Group, LLC

xi
Contents
Acknowledgments xv
About the Authors xvii
Comments on Purpose and Methods xxiii
1 Public Administration in Southeast Asia: An Overview 1
EVAN BERMAN
SECTION I THAILAND
PONLAPAT BURACOM
2 History and Political Context of Public Administration in  ailand 29
BIDHYA BOWORNWATHANA
3 Decentralization and Local Governance in  ailand 53
ACHAKORN WONGPREEDEE AND CHANDRA MAHAKANJANA
4 Public Ethics and Corruption in  ailand 79
JUREE VICHITVADAKAN
5 Performance Management Reforms in  ailand 95
TIPPAWAN LORSUWANNARAT AND PONLAPAT BURACOM
6 Civil Service System in  ailand 113
PIYAWAT SIVARAKS
SECTION II MALAYSIA
LOOSEE BEH
7 History and Context of Public Administration in Malaysia 141
JAMES CHIN

8 Decentralization and Local Governance in Malaysia 155
PHANG SIEW NOOI
9 Public Ethics and Corruption in Malaysia 171
LOOSEE BEH
© 2011 by Taylor and Francis Group, LLC
xii ◾ Contents
10 Performance Management Reforms in Malaysia 193
TRICIA YEOH
11 Civil Service System in Malaysia 211
NOOR HAZILAH ABD MANAF
SECTION III HONG KONG
PETER T. Y. CHEUNG
12 History and Context of Public Administration in Hong Kong 239
ELIZA W. Y. LEE
13 Intergovernmental Relations Between Mainland China and
the Hong Kong SAR 255
PETER T. Y. CHEUNG
14 Public Ethics and Corruption in Hong Kong 283
IAN SCOTT
15 Performance Management in Hong Kong 295
ANTHONY B. L. CHEUNG
16 Civil Service System in Hong Kong 315
JOHN P. BURNS
SECTION IV THE PHILIPPINES
ALEX BRILLANTES JR.
17 History and Context of the Development of Public Administration
in the Philippines 333
DANILO R. REYES
18 Decentralization and Local Governance in the Philippines 355
ALEX BRILLANTES JR. AND JOSE TIU SONCO II

19 Public Ethics and Corruption in the Philippines 381
EDUARDO T. GONZALEZ
20 Performance Management Reforms in the Philippines 397
MA. OLIVA Z. DOMINGO AND DANILO R. REYES
21 Civil Service System in the Philippines. 423
JOEL V. MANGAHAS AND JOSE O. TIU SONCO II
SECTION V MACAO
NEWMAN M. K. LAM
22 History and Context of Public Administration in Macao 463
LIU BOLONG
23 Intergovernmental Relations Between Mainland China and the Macao SAR 475
ALEX H. CHOI
© 2011 by Taylor and Francis Group, LLC
Contents ◾ xiii
24 Public Ethics and Corruption in Macao 501
BRUCE K. K. KWONG
25 Performance Management Reform in Macao 519
NEWMAN M. K. LAM
26 Civil Service System in Macao 537
EILO YU WINGYAT
Index 561
© 2011 by Taylor and Francis Group, LLC

xv
Acknowledgments
A book like this is only possible with the sincere dedication of the authors and all others who
believe in its purpose. For the authors, their reward has been the chance to tell their part of the
story of public administration in Southeast Asia.  e editors, coordinators, and production sta
have had the honor of helping them do so. As editors, we especially want to acknowledge the
work of the area coordinators of this book: Ponlapat Buracom ( ailand), Loosee Beh (Malaysia),

Peter T.Y. Cheung (Hong Kong), Alex Brillantes (the Philippines), and Newman Lam (Macao).
Without their support, this project could not have succeeded.  ey are the “unsung heroes” of this
project. We also thank Rich O’Hanley, Lara Zoble and Maura May who are outstanding editors
and publishers of Taylor & Francis.
In addition, we remember two people who have passed away since the beginning of this proj-
ect. Rich O’Connell (senior editor) and Professor Jack Rabin (editor-in-chief) both encouraged
and supported this work through Taylor & Francis. We are sure that they would be pleased to see
this book in its  nal form. Finally, an untold number of people made it possible for us to work on
this book, including colleagues, former teachers, and spouses. I deeply thank Dira Berman, my
spouse. We deeply appreciate the support and contributions of all.
Evan Berman
© 2011 by Taylor and Francis Group, LLC

xvii
About the Authors
LooSee Beh is senior lecturer in the Department of Administrative Studies and Politics, Faculty
of Economics and Administration, University of Malaya. She received her PhD from University
Putra Malaysia. Her research interests are public administration, human resource management,
governance issues, and policy analysis. She has published in local and international publications,
and serves as resource person with local and international bodies in workshops, conferences, and
training sessions. She was on sabbatical leave as a visiting academic at the Center for Governance
and Public Policy/Department of Politics and Public Policy, Gri th University in 2008–2009.
She is also an editorial board member of the international journal, Contemporary Management
Research.
Evan M. Berman is university chair professor at the National Chengchi University in Taipei
(Taiwan), Doctoral Program in Asia-Paci c Studies, and the Department of Public Administration.
He is also editor-in-chief of American Society for Public Administration’s (ASPA) book series in
Public Administration & Public Policy (Taylor & Francis), and senior editor of Public Performance
& Management Review. His areas of interest are public performance, human relations and motiva-
tion, and emerging forms of governance. He has published in the leading journals of the discipline.

He is also editor-in-chief of Encyclopedia of Public Administration and Public Policy (3/e, 2007).
Before joining NCCU, he was the Huey McElveen Distinguished Professor at Louisiana State
University, past recipient of a Distinguished Fulbright Scholarship at Yonsei University (Seoul,
South Korea), and taught at the University of Central Florida and the University of Miami. He
was raised in the Netherlands.
Liu Bolong is professor in the Department of Government and Public Administration,
University of Macao. He also serves as director for the Research Center for Contemporary China
Studies at the University of Macao. He writes and edits books including China Public Policies,
Evaluation on China’s Agricultural Policies, and Administrative Reforms in China’s Special Economic
Regions. He has also contributed many articles on Macao public administration and reforms,
and comparison between Hong Kong and Macao political developments. His current research
interests include policy studies in Mainland China, Hong Kong, and Macao, and Macao public
administrative reforms.
Bidhya Bowornwathana is associate professor in the Department of Public Administration,
Faculty of Political Science, Chulalongkorn University, Bangkok,  ailand. He served as secre-
tary and member of the Royal  ai Government’s National Administrative Reform Commissions.
His publications appeared in Public Administration Review, Governance, Public Administration
and Development, Asia Pacifi c Journal of Public Administration, Public Administration: An
International Quarterly, and International Public Management Review. He has a forthcoming
© 2011 by Taylor and Francis Group, LLC
xviii ◾ About the Authors
chapter in Rosemary O’Leary, David Van Slyke, and Soon Hee Kim, eds.,  e Future of Public
Administration, Public Management and Public Service Around the World:  e Minnowbrook
Perspective, Georgetown University Press. He co-edited several books such as Civil Service Systems
in Asia (with John P. Burns); Comparative Governance Reform in Asia (with Clay Wescott); and
 e Many Faces of Public Management Reform in Asia-Pacifi c (with Clay Wescott and Lawrence
R. Jones).
Alex B. Brillantes Jr. is professor and dean of the National College of Public Administration
and Governance, University of the Philippines (UP-NCPAG). He earned his doctorate degree in
political science at the Hawaii University and has participated in an executive leadership training

program at the Kennedy School of Government, Harvard University. He has served as execu-
tive director of the Local Government Academy of the Department of the Interior and Local
Government and director of the Center for Local and Regional Governance of UP-NCPAG. He
has been serving as a senior policy and governance specialist to development organizations in vari-
ous capacity development programs and activities in the Philippines and abroad. He has authored
books and numerous papers and articles on matters of public administration, political science, and
decentralization.
Ponlapat Buracom is currently an associate professor and director of the International Doctoral
Program in Development Administration at the Graduate School of Public Administration,
National Institute of Development Administration (NIDA) in Bangkok,  ailand. He is also
a member of the Administrative Board of NIDA Research Center and has served as an advi-
sor at Devawongse Varopakarn Institute of the Ministry of Foreign A airs. His recent publica-
tions include: Explaining the Growth of Public Spending in  ailand (2007) and Public Spending:
Allocative Effi ciency and International Experiences (2008). He received his PhD in political science
with a specialization in political economy from Northwestern University, USA. His research inter-
ests include public sector economics, comparative administrative development, public spending
analysis, and budgeting.
John P. Burns is chair professor of politics and public administration at the University of
Hong Kong. He obtained undergraduate degrees from St. Olaf College and Oxford University,
and a PhD in political science from Columbia University. He teaches courses and does research
on comparative politics and public administration, specializing in China including Hong Kong.
His research interests focus on public sector human resource management, civil service reform,
party-state relations, and public sector reform. He is author or editor of eight books, and his
articles have appeared in the China Quarterly, Journal of Contemporary China, Pacifi c Aff airs, and
Public Administration and Development. He is a member of the editorial committee of the China
Quarterly and served on the HKSAR Government’s Civil Service Training and Development
Advisory Committee from 1997 to 2003.
Anthony B.L. Cheung, GBS, JP, is president of the Hong Kong Institute of Education,
carrying the concurrent title of chair professor of public administration. He is also director of
the Center for Governance and Citizenship at the Institute. Professor Cheung received his PhD

degree in government from the London School of Economics and Political Science, University
of London, UK. He has written extensively on governance, privatization, civil service and public
sector reforms, government and politics in Hong Kong and China, and Asian administrative
reforms. He writes regular columns in the South China Morning Post, Ming Pao (in Chinese),
and Hong Kong Economic Journal (in Chinese). Professor Cheung is a non-o cial member of
the Executive Council of the Hong Kong Special Administrative Region, chairman of the
Consumer Council, chairman of the Subsidized Housing Committee of the Housing Authority,
member of the Greater Pearl River Delta Region Business Council, and member of the board
© 2011 by Taylor and Francis Group, LLC
About the Authors ◾ xix
of directors of  e Hong Kong Mortgage Corporation Limited. Professor Cheung is the found-
ing chairman of the policy think-tank SynergyNet and a founding director of the Hong Kong
Policy Research Institute. He is a former member of the Legislative Council (1995–1997) and
former vice-chairman of the Democratic Party (1994–1998).
Peter T.Y. Cheung is associate professor and director of the MPA Program in the Department
of Politics and Public Administration at the University of Hong Kong. He holds a PhD in political
science from the University of Washington, Seattle. He was a former research and planning direc-
tor in the Central Policy Unit of the Hong Kong Special Administrative Region Government.
He is also the coordinator of the Greater Pearl River Delta and Hong Kong Research Area of the
Strategic Research  eme on Contemporary China Studies and the China Area of Inquiry for the
new undergraduate curriculum at the University of Hong Kong. His research focuses on the rela-
tions between the central government in Beijing and Hong Kong, cross-boundary cooperation in
south China, and the politics of policy making in Hong Kong.
James Chin is Professor and Head of the School of Arts and Social Sciences, Monash University,
Malaysian Campus. He has published widely on Malaysian politics in journals such as Asian
Survey, Journal of Contemporary Asia, Journal of Democracy, Electoral Studies, Democratisation,
Cotemporary South East Asia, Asian Journal of Political Science, South East Asian A airs and
South East Asia Research. His most recent publication is the edited volume, Impressions of the
Goh Chok Tong Years in Singapore by Bridget Welsh, James Chin, Arun Mahizhan, and Tan
Tarn How (Eds.), 2009. He holds a PhD from Victoria University of Wellington. Prior to his

academic career, he worked as a  nancial journalist.
Alex H. Choi is assistant professor in the Department of Government and Public
Administration, University of Macao. His publications have appeared in journals like Studies in
Political Economy, Critical Asian Studies, Journal of Contemporary Asia, and Journal of Comparative
Asian Development. His current research interests include migrant workers, democratization, elec-
tronic government, and  ird World governance.
Ma. Oliva Z. Domingo, DPA, is a professor at the National College of Public Administration
and Governance and concurrently the director of the Center for Leadership, Citizenship and
Democracy of the same college. Dr. Domingo teaches courses in human resource development,
human behavior in organizations, public personnel administration, organization studies, volun-
tary sector management, and resource generation for the voluntary sector. She is also involved in
various research, training, and consultancy activities with a variety of clientele for projects spon-
sored by local and international institutions. Dr. Domingo received her doctor of public adminis-
tration degree from the University of the Philippines.
Eduardo Gonzalez is professor at the Asian Center, University of the Philippines. He was
formerly president of the Development Academy of the Philippines. He is also honorary fellow of
the Asian Productivity Organization. He has authored numerous journal articles and edited books
on governance and institutions. He obtained his PhD in public policy from the Wharton School,
University of Pennsylvania, and a master of urban and regional development from the University
of the Philippines. His research interests include institutional economics, public policy analysis,
political economy, and development studies.
Bruce Kam-kwan Kwong is an assistant professor in the Department of Government and
Public Administration, University of Macao. His research interests include elections in Hong
Kong and Macao, policing in greater China, and anti-corruption in Macao. He has written sev-
eral referred journal articles, book chapters, and co-edited books on topics of Hong Kong and
Macao politics and public administration. His recent publication is the book entitled Patron-
Client Politics and Elections in Hong Kong, published in early 2010.
© 2011 by Taylor and Francis Group, LLC
xx ◾ About the Authors
Newman M.K. Lam is associate professor in the Department of Government and Public

Administration, University of Macao. He is a member of the Macao government’s Conselho
Consultivo para a Reforma da Administração Pública and Comissão De Avaliaçao Dos Serviços
Públicos. He had previously served as head of the Department of Social Sciences and later as head
of the Department of Government and Public Administration, University of Macao. His research
interest is in civil service reform, organization behavior, and public  nance.
Eliza W.Y. Lee is an associate professor in the Department of Politics and Public
Administration, the University of Hong Kong. She obtained her BSocSc from  e Chinese
University of Hong Kong and her PhD from Syracuse University. Prior to joining HKU, she
taught at  e Chinese University of Hong Kong. Her current research interests are the politics of
social policy development, civil society organizations, participatory governance, public manage-
ment and gender, with particular focus on Hong Kong and its comparison with selected Asian
states. Her articles have appeared in Governance, Policy and Politics, Journal of Social Policy,
Voluntas, Public Administration Review, Asian Survey, and International Review of Administrative
Science. She is a member of the editorial board of Voluntas, and an associate editor of the Asian-
Pacifi c Journal of Public Administration. She is currently the principal investigator of an RGC-
funded research project entitled “ e Politics of Social Policy Development in Hong Kong:
Societal Mobilization in a Semi-Democracy.”
Tippawan Lorsuwannarat is an associate professor and Dean of the Graduate School of Public
Administration, National Institute of Development Administration (NIDA), Bangkok,  ailand.
She is an academic council member of Rajabhat University at Nakhonrajsima and a research sub-
committee member of the O ce of the National Anti-Corruption Commission. She was also an
advisory committee member of the Software Industry Promotion Agency (Public Organization), a
sub-committee of the Government Administrative Reform Committee, and a specialist for  ailand
International Public Sector Standard Management System and Outcomes ( ailand International
PSO). Her recent publications include Public Administration: the Partnerships among Public, Local,
and Civil Society (Central Administration) (2009) funded by the National Research Council of
 ailand, Budget Reform Implementation in  ailand (2008), and E-Government in  ailand:
Development or Illusion (2006). She received her BA in economics from  ammasat University and
her MPA from the National Institute of Development Administration in Bangkok. She has a PhD
degree in administrative studies from York University, Canada. Her research interests include orga-

nizational innovation, public management, e-government, and government budgeting.
Chandra-nuj Mahakanjana is assistant professor at the Graduate School of Public
Administration, National Institute of Development Administration in Bangkok,  ailand. She
received her PhD and MA in political science from Northern Illinois University, USA and her
BA from the Department of Political Science, Chulalongkorn University in Bangkok,  ailand.
Her research areas are decentralization, local government, democratization, social capital, and civil
society.
Noor Hazilah Abd Manaf is an associate professor in the Department of Business
Administration, Faculty of Economics and Management Sciences, International Islamic University
Malaysia. She received her MPA and PhD degrees from the University of Malaya. Her research
interest in public administration focuses mainly on quality management and service quality,
and healthcare management. She is currently visiting research fellow at the Institute of Health
Management, Ministry of Health Malaysia.
Joel V. Mangahas is a professor at the National College of Public Administration and
Governance (NCPAG), University of the Philippines, and is currently working with the Asian
Development Bank Philippine Country O ce as country specialist. Prior to this, he served as
© 2011 by Taylor and Francis Group, LLC
About the Authors ◾ xxi
college secretary and director for studies at the Center for Public Administration and Governance
Education, NCPAG, and then as director of the Center for Policy and Executive Development.
Dr. Mangahas has had extensive consulting assignments with the Asian Development Bank, the
Asian Development Bank Institute, the European Commission, the United Nations Development
Program (UNDP), the World Bank, and a number of government agencies in the Philippines and
abroad. He has published articles and papers in local and international journals and books. He
received his PhD in political science from Kobe University, Japan, and his PhD in Philippine stud-
ies from the University of the Philippines.
Phang Siew Nooi is a professor in the School of Business, Sunway University College,
Malaysia. She received her PhD from the University of Birmingham, UK. Phang has special
interest in public administration, particularly local government management and is a specialist
in this area of research and development, especially in Malaysia. In this context, she is associ-

ated as a country expert and research consultant with various local and international agencies.
Phang has authored and co-authored numerous local and international publications on local
government management and  nance as well as on urban environmental management.
Danilo Dela Rosa Reyes, DPA, is a professor at the National College of Public Administration
and Governance (NCPAG), University of the Philippines. He served as director of the Center for
Administrative Development (now Center for Policy and Executive Development) of the NCPAG
and as a member of the board of directors of a number of corporations in the Philippines, including
the United Coconut Planter’s Bank. Dr. Reyes also worked as consultant for some elected national
government o cials and several government agencies. He has authored various books and articles
in the  eld of public administration. He received his doctor of public administration degree from
the University of the Philippines.
Ian Scott is emeritus professor and fellow of the Asia Research Center at Murdoch University
and adjunct professor in the Department of Public and Social Administration at the City
University of Hong Kong. He taught at the University of Hong Kong between 1976 and 1995 and
was chair professor in the Department of Politics and Public Administration between 1990 and
1995. Between 1995 and 2002, he was chair professor of Government and Politics at Murdoch
University. His recent research has focused on the public sector in Hong Kong and on public ser-
vice ethics and corruption.
Piyawat Sivaracks is a senior executive o cer in the  ailand O ce of the Civil Service
Commission and director of its Civil Service Training Institute, which is responsible for the study
and evaluation of training and development for public sector human resource management, analy-
sis and research on policies, systems, and guidelines on public personnel development, and the
training and development of o cials.
Jose O. Tiu Sonco II is a lecturer at the National College of Public Administration and
Governance, University of the Philippines (UP-NCPAG). He earned his MA in political science
at the Graduate School of International Cooperation Studies, Kobe University, Japan, and a BA
in public administration at UP-NCPAG. He has served as research associate for UP-NCPAG
since 2002 and has been involved in many research and extension activities, such as training for
local and national government o cials. His research interests include governance, decentraliza-
tion,  scal decentralization and intergovernmental  scal transfers, performance measures, and the

political dynamics of policy change and institutions. He has co-authored a number of articles and
papers published by international and local institutions.
Juree Vichit-Vadakan teaches at the National Institute of Development Administration
(NIDA) in Bangkok, and has served as dean, vice-president, and president of NIDA. Dr. Juree
earned her BA, MA, and PhD degrees from the University of California, Berkeley. Her main
© 2011 by Taylor and Francis Group, LLC
xxii ◾ About the Authors
interests are civil society as a development partner, transparency and accountability for good gov-
ernance, and gender equality and women’s participation in decision making. She also founded the
Center for Philanthropy and Civil Society, and is a strong advocate for women’s leadership and
political engagement through her studies on women’s issues. She also served as chair of Women for
the Promotion of Democracy and was appointed to the United Nations Commission on the Status
of Women (2004–2007). Dr. Juree received the Hass International Award 2006 and an honorary
doctor degree in law from Indiana University in 2007.
Eilo Yu Wing-yat is an assistant professor in the Department of Government and Public
Administration, University of Macao. He also serves as coordinator of the Public Administration
Program and teaches Macao and Hong Kong Public Administration in the University of Macao.
His research focuses on government and politics in Macao, Hong Kong, and Taiwan. He has
authored and co-authored articles and book volumes in public sector reform, e-government and
politics, and party and election. He has also conducted several government research projects on
public sector reform in the Macao Special Administrative Region.
Achakorn Wongpreedee is assistant professor of Public Administration and a director of the
Master of Public Administration Executives Program (Phitsanulok campus) in the Graduate School
of Public Administration, National Institute of Development Administration (NIDA),  ailand.
He graduated with a BA ( rst class honor) and a PhD in political science from Chulalongkorn
University. After six years of staying as a Japanese Government Scholarship recipient, he graduated
another  eld of doctoral degree from Kyoto University’s Graduate School of Asian and African Area
Studies. He is interested in democratization, decentralization, and local government and politics
in  ailand.
Tricia Yeoh was formerly director of the Center for Public Policy Studies at the Asian Strategy

and Leadership Institute (ASLI) based in Kuala Lumpur. She is now a member of its advisory panel,
and is currently attached to the Selangor State Government as research o cer for the Selangor
chief minister. Her past positions include regional coordinator for Asia Paci c at Revenue Watch
Institute. She is quali ed in econometrics and has a masters of science in research methodology
in psychology. She has written and presented at international conferences, and her comments as a
Malaysian analyst have appeared in the Economist, the International Herald Tribune, and the New
York Times, among others. Her interests include socioeconomic policy on public administration,
national unity and interethnic relations, and revenue transparency of the extractive industry.
© 2011 by Taylor and Francis Group, LLC
xxiii
Comments on Purpose
and Methods
Evan Berman
 is book serves the needs of those who wish to learn how government works in Southeast Asia,
focusing on the systems of public administration. Whether readers are practitioners, professors,
students, or just those with plain curiosity, nowhere else will they  nd a book that provides such a
comprehensive treatment of public administration in Southeast Asia as presented. For many years,
people have been fascinated with the cultures, peoples, and governments of Southeast Asia, and
now they have a book that discusses the apparatus of governments in Southeast Asia—their agen-
cies, contexts, processes, and values.
Growing internationalization and increased sophistication in teaching of public administra-
tion increases the need for actual factual information about these public administration systems.
While separate journal articles and government reports look at some of these aspects, this book
provides a comprehensive and comparative, in-depth look at major components of administrative
systems. Speci cally, topics cover the history and context of public administration, performance
management reforms, civil service reforms, public ethics and corruption, and central-local gov-
ernment relations across several countries and regions. In this book, these topics allow answering
such questions as:
◾ What is the history of public administration development in Southeast Asia?
◾ How are major decisions made in the agencies in Southeast Asia?

◾ What are the ethical underpinnings of public agencies in Southeast Asia?
◾ Why are intergovernmental relations an essential issue in Southeast Asia?
◾ What are the politics behind economic development e orts?
◾ To what extent is performance management emphasized in Southeast Asia?
◾ What is the nature of civil service reform in Southeast Asia?
◾ What is the nature of e orts to combat government corruption in Southeast Asia?
Without doubt, these are interesting matters, and both research and practices require this knowl-
edge. For example, theory generation requires solid familiarity of the underlying facts of the
region.  is book is a second, parallel volume to Public Administration in East Asia: Mainland
China, Japan, South Korea and Taiwan, published earlier. Both books are organized in parallel
© 2011 by Taylor and Francis Group, LLC
xxiv ◾ Comments on Purpose and Methods
sections that discuss similar topics of the countries and administrative regions (Hong Kong,
Macao). When read in conjunction with the  rst book, readers can engage in comparative analysis
that involves  ailand, the Philippines, Malaysia, Hong Kong, Macao, Mainland China, Japan,
South Korea, and Taiwan.  ese two volumes provide the essential “one stop” shopping for public
administration in East and Southeast Asia.
*
 is book also has several distinctive features that we think readers will value. First, this
account is written by those of the region, not by those outside the region.  e advantage of getting
the insider perspective and viewpoint is self-evident. Second, the authors are all experts in their
 elds, having published many journals and books in the discipline. Brief biographies are provided
in the opening pages of this book.  ird, authors were asked to cover both essentials as well as
advanced points in their chapters. Fourth, each chapter contains useful resources to pursue fur-
ther interest in speci c, in-depth matters. Fifth, authors were given broad leeway and discretion
to discuss whatever way they felt were most important for others outside geographic area to know
about.  ey could also discuss additional topics. By doing so, we encourage the use concepts or
perspectives that are di erent or distinctive to their area.
 e selection of countries and regions in this book re ects the diversity of Southeast Asia.
Some are large (e.g.,  ailand), and some are small (e.g., Macao).  ey vary in colonial legacy:

American and Spanish (the Philippines), British (Hong Kong and Malaysia), and Portuguese
(Macao);  ailand has no colonial legacy. One is Buddhist ( ailand), one is Muslim (Malaysia),
and the others are secular. Of course, the countries and administrative regions do not encompass
all in the region.  e nature of any detailed examination requires inevitable trade-o between
breadth (countries) and depth (topics); it is inherent to a project such as this.  e selection is also
based on the availability of scholarship and experts in each  eld that can write at global standards.
In some countries, public administration is nascent, at best, while in one instance (Singapore)
scholars are unwilling or unable to share their views.  e selection of topics within each country
or administration region was guided by disciplinary interests and the possibility of using material
in public administration education, in these countries and beyond.  e practicality of market-
ing matters. For example, public administration education in  ailand is strong and centralized
within National Institute for Development Administration within which a book such as this can
 nd widespread adoption. We think that these chapters will be widely used in education through-
out the world. We hope that in due time another volume might be compiled for countries not
included here.
Of course, I am not an insider of Southeast Asia. In the spirit of full disclosure, I was raised in
the Netherlands and spent 20 years of my professional career in the United States. My wife is from
Brazil, which I have visited often. I have travelled several times to Africa, too. I am now working
at National Chengchi University in Taiwan, and I am editor-in-chief for Taylor & Francis of the
book series within which this volume appears (see About the Authors). I think my familiarity with
the West is an advantage in this e ort. Western concepts are signi cantly culturally and contextu-
ally embedded, that sometimes have di erent meanings or shades in Southeast Asia. I also used
my editorial and scholarly experience to help avoid misinterpretation and confusion, and to ensure
that writing styles meet global expectations for easy and smooth reading, which I hope readers
appreciate. I carefully tried to convey the meanings and intentions of the authors.
*
It should be noted that the countries in Public Administration in East Asia: Mainland China, Japan, South Korea
and Taiwan include two additional chapters for each country, namely, public policy processes (and citizen par-
ticipation) and e-government.
© 2011 by Taylor and Francis Group, LLC