省级机构设置自主权的实践路径与理论逻辑——以新一轮地方机构改革为中心的考察

The Practical Route and Theoretical Logic of Organization Establishment Autonomy at Provincial Level——Study on a New Round Local Organization Reform

赋予省级及以下机构更多自主权,允许地方因地制宜设置机构和配置职能,是本轮党和国家机构改革的重要任务。研究发现,省级党委机构设置自主权体现为优化决策议事协调机构、加大党政机构合并设立或合署办公力度,政府机构设置自主权体现为根据专属职能、新形势任务设置地方特色机构和变通设置挂牌机构等。总体上可将省级机构设置自主权归纳为特殊任务组织、纵向职责分工、横向职责整合、资源禀赋差异、制度约束应对等五大理论逻辑。优化地方机构职能体系,仍需要处理好党政机构运行规范化、上下级机构业务衔接、垂直管理与属地管理关系等问题。

Give more decision making power to governments at and below the provincial level and allow local governments to set up organizations and deploy functions with local conditions are the vital missions of deeper reform of Party and state institutions. Base on the study of organization establishment scheme,we find that party organization establishment autonomy includes optimizing the decision-making and coordinating organization,and exploring to merge Party and government bodies with similar functions or for them to work together as one office while keeping separate identities. The administrative organization establishment autonomy includes setting up characteristic organizations for special function and new situation,and setting up signboard organizations flexibly. In general,the organization establishment autonomy at provincial level can be concluded to five theoretical logics:special mission,vertical division of responsibility,transverse integration of responsibility,difference between resource endowment and reaction of institutional constraint. To further improve the local institution and responsibility system,we need to standardize party and administrative organization operation,link up business processes between upper and lower levels and handle relations between the departments directly under the Central Government and the local governments.