党委整合条块:县域统合治理的权力过程与运行机制——以T县“美丽乡村建设领导小组”为例

From Deliberation,Coordination to Oversight:How do Leading Groups Shape the Centralization of County Governance—Taking the“Beautiful Countryside Construction Leading Group”of T County as an Example

在县域体制内,条线部门和乡镇属地所具有的事权代理身份赋予了条线专项治理和乡镇属地治理的合法性,此种结构易导致行动者注意力偏差,进而影响到县域体制整体效能的发挥。因而县委实现整体协作的体制运作,成为县域治理转型的必然趋势。在对T县“美丽乡村建设领导小组”的个案分析中发现:党委通过授权独立且实权化的中枢机构(领导小组办公室)承载了党委的决策权、监管权,实现了行政权力集中的常态化运行;条线部门和乡镇属地被纳入领导小组作为成员单位进行责任监管,条线部门的资源统筹权和事权主导被消解;党委通过阶段的运动式治理分解中心工作,并将考核监督运用至工作推动的全过程,实现党委对政策执行环节的过程介入和动态监管。县域体制实现了超越决策统筹和组织协作之上的行政权力集中,即在政策执行层面实现全过程监管,在原有条块分立的代理人治理基础上构造了县域统合治理方式。

In the county system,the agency status of the line department and the township territorial endows the legitimacy of the special governance of the line and the township territorial governance.This structure can easily lead to the attention deviation of actors,which in turn affects the overall county system.performance of performance.Therefore,the system operation of the county party committee to achieve a high degree of centralization and overall coordination has become an inevitable trend in the transformation of county governance.In the case analysis of the“Beautiful Countryside Construction Leading Group”in T County,it is found that the Party Committee carries the decision-making power and supervision power of the Party Committee through the authorization of an independent and real central body(the Leading Group Office),and realizes the normal operation of the Party Committee’s centralized power.;Line departments and township territories are included in the leading group as member units for supervision and management,and the line departments have the power to coordinate resources and process supervision rights are eliminated;The whole process of promotion realizes the process involvement and dynamic supervision of the party committee in the policy implementation link.The county system has achieved centralization beyond decision-making and coordination,that is,the whole process of supervision at the policy implementation level,and the centralized governance of the county system has been constructed on the basis of the original separate agency governance.