The organisational practices of the Foreign Affairs Office (FAO) of the Xi’an Municipal People’s Government are shaped by the characteristics of a Chinese municipal administrative system: hierarchical governance, politically embedded decision-making, protocol-oriented operations, multi-department coordination, and increasing—but uneven—attempts at modernisation. My WBL provided a direct and practical observation of these practices, especially through involvement in several international cooperation events. This section examines four major organisational features that consistently influenced how projects were managed and executed.

2.1 Hierarchical Governance and Administrative Routines

The FAO operates within a strict hierarchical administrative structure, where authority flows from the Mayor and Vice Mayors down to the FAO Director, Deputy Directors, Division Chiefs, and staff. Decision-making is centralised, and most project-related documents—invitation letters, briefing notes, event proposals, meeting minutes, or external correspondences—must pass multiple levels of internal approval before implementation.

This structure ensures political accountability and reduces risks in foreign-related activities; however, it also increases procedural latency. For example, during the Cuenca–Xi’an Ceramic Mural Initiative, even minor changes such as updating the Chinese–Spanish bilingual signage required circulation through several layers of review, often causing significant delays for partners in Ecuador awaiting confirmation.

While hierarchy brings organisational stability, its operational cost is high: it reduces flexibility in international cooperation projects that require timely adjustments, especially when dealing with overseas partners operating in different political and cultural systems. My experience demonstrated that efficiency in this environment depends heavily on understanding bureaucratic expectations and navigating approval chains.

2.2 Political Sensitivity and Protocol-Based Operations

Foreign affairs work is inherently political. The FAO emphasises adherence to protocol, political discipline, and message control. This includes the correct use of official titles, seating arrangements, flag placements, document phrasing, and the timing of official replies. During the Silk Road Economic Belt Cities Roundtable, every document—concept note, session theme, delegation description—required scrutiny not only for factual accuracy but also for political tone.

Protocol discipline also governs public image. For instance, during the Kyoto Youth Choir visit, the FAO required strict compliance with reception standards regarding transportation, greeting arrangements, hospitality details, and group photo procedures. These reinforce diplomatic norms but also place pressure on project teams, requiring high precision and minimal error across routine activities.

2.3 Cross-Department Coordination and Fragmented Responsibilities

Another defining characteristic of municipal foreign affairs work is its inter-departmental nature. The FAO rarely executes projects independently; instead, it acts as a coordinating hub across various municipal departments. Examples include:

1. The Cuenca–Xi’an Mural Initiative, which required cooperation with the Culture and Tourism Bureau, Propaganda Department, Qujiang administrative zone, and local cultural institutions.
2. Preparatory work for the Euro-Asia Economic Forum, involving the Development and Reform Commission, Commerce Bureau, and industry associations.
3. Coordination of the International Sister Cities Digital Economy Alliance, which required engagement with technology companies, the Municipal Big Data Bureau, and academic partners.

Each department operates under different priorities and timelines. This often results in fragmented information flows and inconsistent progress. During my placement, delays frequently emerged because departments waited for one another, and coordination meetings sometimes failed to assign clear ownership of tasks unless authority was formally designated.

The FAO's coordinating role is therefore both indispensable and challenging. Effective project execution depends on continuous communication, clear division of responsibilities, and persistent follow-up—all practices I integrated into my personal workflow during the placement.

2.4 Gradual Movement Toward Modernisation and Innovation

Despite strong traditional bureaucratic practices, the FAO is gradually moving toward modernisation. Younger staff and certain leaders are increasingly advocating digital tools, project-based management, and international best practices. For example, the establishment of the International Sister Cities Digital Economy Alliance reflects a desire to move beyond ceremonial diplomacy toward thematic and strategic cooperation.

Some divisions have begun experimenting with structured documentation, such as using briefing templates or basic Gantt-style project schedules. However, these practices are not yet institutionalised; rather, they rely on individual initiative. As a result, innovation appears sporadic and inconsistent.

My WBL capstone project—the development of a City Diplomacy Strategic Handbook—directly addresses this gap by proposing structured tools, SOPs, and strategic frameworks that could support the FAO in transitioning from task-based administration to a more strategic, professionalised model of city diplomacy.

2.5 Summary of Organisational Practices

Overall, organisational practices at the FAO reflect a blend of political discipline, administrative stability, procedural rigidity, and emerging innovation. Understanding these dynamics provided a foundation for analysing leadership and management behaviours within the organisation. The next section will explore how innovative leadership interacts with these organisational conditions.