调适性治理:地方党内规范性文件备案审查的制度逻辑

Adaptive Governance:The Institutional Logic of the Filing Review System for Local Intraparty Regulatory Documents

地方党内规范性文件备案审查作为一项保障地方政策权力规范运作的党内监督制度形式,在强化中央政策统一性,推进国家治理现代化等方面扮演关键角色。本文尝试从中国政党国家治理的历史线索中提出一个“调适性治理”理论框架,用以分析与解释当前地方党内规范性文件备案审查过程中的一系列制度现象及其实践,包括由正式治理与非正式治理、常规治理与动员治理、技术治理与政治治理共同形塑的制度环境,以及它们之间的机制互动与深层次制度逻辑。调适性治理的稳定存在与机制生产既是法规部门组织结构及其所处制度环境,以及对环境不断适应与塑造的产物,也是法规部门保持工作灵活变通与政治能动,缓解治理紧张所导致的结果。这可以从工作通报、审查标准、指导案例、问题处理等制度调适过程得到具体呈现。然而,调适性治理在为地方党内规范性文件备案审查工作带来有效性的同时,也存在目标替代、制度变通、政治偏好、法治张力等制度局限。这为我们全面客观评价调适性治理的制度过程及其对地方党内规范性文件备案审查的影响提供了资源。

As a form of inner-party supervision system to ensure the standardized operation of local policy power,the Filing Review System for Local Intraparty Regulatory Documents plays a key role in strengthening the unity of central policy and promoting the modernization of national governance.This paper attempts to propose a theoretical framework of“adaptive governance”from the historical clues of the governance of Chinese political parties,which is used to analyze and explain a series of institutional phenomena and practices in the process of filing review local intraparty regulatory documents,including the institutional environment jointly shaped by formal governance and informal governance,conventional governance and mobilization governance,technical governance and political governance,and the mechanism interaction between them and the deep-seated institutional logic.The stable existence and mechanism production of adaptive governance is not only the result of the organizational structure of the regulatory department and its institutional environment,as well as the continuous adaptation and shaping of the environment,but also the result of its flexible work and political initiative to ease governance tensions.This can be embodied in the process of system adjustment such as work notification,review standards,guidance cases,and problem handling.However,while adaptive governance brings effectiveness to the filing and review of local intraparty regulatory documents,it also has institutional limitations such as target substitution,system flexibility,political preference,and tension of the rule of law.This provides resources for us to comprehensively and objectively evaluate the institutional process of adaptive governance and its impact on the filing review system for local intraparty regulatory documents.