以协商实现治理——基于上海市政协官网2012—2020年选登提案的分析

Achieving Governance through Consultation: Analysis of 1562 Proposals on the Official Website of Shanghai CPPCC from 2012 to 2020

人民政协是国家治理体系的重要组成部分,政协提案是其发挥功能的一个重要渠道.政协提案的内容在多大程度上与国家治理议题相契合,以及这些提案在决策过程中多大程度上落实为具体政策,是衡量政协国家治理功能的重要指标.从决策过程来看,人民政协提案在国家治理中主要发挥三个功能:一是在政策创始阶段,通过多主体提案聚合民意;二是在政策制定阶段,通过选拔优秀提案发现精准对策;三是在政策实施阶段,通过提案办理协商推进全过程民主.然而,当前人民政协提案也存在国家治理功能发挥不足的问题,具体体现为提案者结构与提案议题结构不均衡、政协委员提案数量与提案质量不均衡、各政策主题的提案质量不均衡等三个方面.消除这些不均衡现象的举措,包括充分发挥人民政协提案的动议与凝聚民意功能,拓宽渠道提高人民政协委员的提案能力,通过"树典型"增强提案者对不同议题的提案能力,在人民政协提案中践行国家治理的全过程民主,多领域动议提高人民政协提案内容的广泛性.

The CPPCC is an important part of the state governance system,and the CPPCC proposal is an important channel to play its functions.The extent to which the contents of the CPPCC’s proposals are consistent with the state governance issues,and to what extent these proposals are implemented as specific policies in the decisionmaking process are important indicators to measure CPPCC’s state governance function.From the perspective of decision-making process,the CPPCC proposals should play three functions in state governance:first,in the initial stage of policy,gather public opinion through multi-body proposals;second,in the policy-making stage,achieve accurate countermeasures by selecting excellent proposals;third,in the policy implementation stage,promote the whole process of democracy through proposal negotiation.However,the current CPPCC proposals also have the limitations of insufficient state governance function,which is embodied in three aspects:the imbalance between the proposer structure and the proposal topic structure,the imbalance between the number and quality of the CPPCC members’proposals,and the imbalance in the quality of the proposals on various policy themes.The measures to solve these imbalances include giving full play to the functions of the CPPCC’s motions and gathering public opinions,broadening channels to improve the ability of CPPCC members to propose proposals,enhancing the proposer’s ability to propose different topics through“building models”,and practicing the whole process democracy of state governance in the CPPCC proposals.