中心工作模式与县域党政体制的运行逻辑——基于江西省D县调查

Central Work Pattern and Operational Logic of County Party-Government System——Based on the Investigation of D County of Jiangxi Province

本文旨在揭示县级党组织在县域经济社会发展中扮演的角色,阐发县域治理的基本逻辑与机制。与西方科层制是基层治理的基本机制不同,中国县域治理的科层组织不仅受到党政体制的塑造,而且党政体制直接介入县域治理事务。调查发现,中心工作模式是县域党政体制领导和介入治理事务的主要机制。县级党委根据县域经济社会发展的总体思路,从众多治理事务中遴选出重要的治理事务作为党委的中心工作,并以目标责任的形式下发给下级党政部门。县域党政体制为了完成中心工作,通过党的组织体系对县域内的政府部门进行改造和重组,充分调动了和有效地整合了党政部门的资源,推动了县域经济社会的发展。在县域党政体制中,党政既非完全合一,又非分离对立,而是有统有分,分工协作,形成“党委领导,政府主导”的治理格局。本文深化了对县域治理机制和逻辑的理解,对党政体制与科层体制进行了实质性区分,在理论上具有较大突破。

This paper aims to reveal the role of county-level party organizations in the county economic and social development,and elucidate the basic logic and mechanism of county governance.This paper adopts the methods of interview and participant observation to study our research.In the county governance,the central work pattern is the main mechanism that the county party and government system uses to lead and intervene in governance affairs.According to the overall thinking of the county economic and social development,the county Party Committee selects the significant governance affairs as their central work from the multitudinous ones,and sends the selected ones to the subordinate party and government departments in the form of target responsibility.In order to complete the work from the central government,the county party and government system carries out transformation and reorganization work targeting at government departments within the county through the party’s organizational system,which promotes the development of the county economic society.Further analysis shows that in the county party and government system,the party and government are neither a completely organic whole nor a separated opposition,but such a governance pattern that"Party Committee takes the lead while government plays the leading role"involving both unification and separation.This paper deepens the understanding of mechanism and logic of the county governance,and distinguishes between the party-government system and the bureaucratic system,which makes a great breakthrough in theory.