In order to change the fragmental situation of government administration that was caused by new public management campaign and is getting more and more serious, those countries which are regarded as the pioneers of this campaign, such as Britain, haveadopted a cooperative and holistic strategy and held that it is necessary to build a holistic government.

The disputes between Chinese local governments emerge themselves gradually along with the deepening of reforms,which reduce the cooperation between local governments,prevent to mold an overall government,make the joint efforts of governments hard to function,and then gives a discount to the comprehensive effect.