“国有企业党委(党组)发挥领导作用”如何改变国有企业公司治理结构?——从“个人嵌入”到“组织嵌入”

From Embeddedness of Individuals to Embeddedness of Organizations: The Party and the Structure of State-owned Enterprise Governance

党组织参与企业治理是中国特色社会主义政治经济学重要而独特的议题。党的十九大在对党章的修改中删去了"政治核心"四字,增写了"国有企业党委(党组)发挥领导作用……依照规定讨论和决定企业重大事项",这意味着党组织参与治理从个人嵌入到组织嵌入的重大转变。基于相关法规文件和调研资料,文章研究了十八大后加强党建对国企治理结构的改变。研究发现:第一,企业内部,横向上构建党委党组决定"什么不能干"、管理层决定"干不干/怎么干"决策分工机制;纵向上,党章修改区分国企党委(党组)和国企中党的基层组织,分别赋予二者领导作用和围绕经营开展工作职能,完善了企业"决策-执行"层级分工。第二,在企业外部,"管资本就要管党建"重塑政治干预格局,管资本改革削弱了行政部门外部干预,而"领导作用"强化企业党组织内部干预,以期达到赋予国企完整决策权和遏制"内部人控制"的双重目标。

The Party Constitution revised at the 19 th National Congress of the CPC deleted "political core" and added "SOEs‘Party committees(leading Party members’ groups) play a leading role... discuss and decide major matters in accordance with laws and regulations". This means the what the Party participates in corporate governance transformed from "embeddedness of individuals" to "embeddedness of organization". This paper studies how strengthening Party building changed SOEs’ governance structure and the findings are: 1. Within SOEs, horizontally, this constitutes decision-making mechanism that Party committees(leading Party members’ groups) decide "what cannot be done" and the management decides "what is to be done and how". Vertically, the new Party Constitution makes a distinction between "Party committees(leading Party members’ groups)" and "primary Party organizations", qualifies the former for the leading role and the latter to work around management, which improves the hierarchical division about "decision and execution". 2. Outside SOEs, capital management reform weakens the external intervention of government and "leading role" strengthens the internal intervention of Party organizations within SOEs, aiming at qualifying SOEs for complete decision-making power and avoiding "insider control" problem.