党内法规“试点”的过程与机制--基于对干部任前公示制的历史考察

The Pilot Process and Mechanism of Internal Laws and Regulations of Communist Party of China--A Historical Study on the Publicity System of Cadres before Appointment

试点是中国共产党治国理政的实践创新,也是理解我国制度变迁过程的重要理论视角。已有研究多关注党外公共政策变迁过程中的试点机制,忽视了该机制在党内制度建设进程中的重要作用。对领导干部任前公示这一党内制度的历史性考察,可以剖析党内法规“试点”的演变过程与内在机制。研究发现,任前公示制经历了“地方试点—条块扩散—中央推广—条块再创新(含配套制度创新)—中央选择性吸纳”的多阶段演变过程。在党内法规体系化进程中,政党统领属性在试点机制中发挥重要作用,主要呈现为政治权威引领下的条块联动机制和政治势能驱动下的央地互动机制。不同于传统的基于效率原则的试验机制,党内法规化进程驱动着党内试点在条块组织中的展开、扩散及再造。

Piloting is an innovation of the Communist Party of China(CPC)in the practice of governing,and it is also an important theoretical perspective to understand the process of institutional and policy change.The existing studies have paid more attention to the pilot mechanism in the process of external public policy changes,ignoring the important role of this mechanism in the process of the internal system construction.In view of the historical investigation of CPC s internal system of the Publicity of Cadres before Appointment(PCA),this research analyzes the evolving process and mechanism of CPC s internal piloting.The study found that the system of the PCA experienced a multi-stage pilot process of“local pilots→block diffussion→central promotion→block re-innovation(including the supporting system innovation)→central selective absorption”.In the process of CPC s systematization of internal laws and regulations,the leadership attribute of CPC plays an important role in the pilot mechanism,which is mainly presented as a sectoral linkage mechanism between the central and local governments under the guidance of CPC s political authority and a central-local interaction mechanism driven by CPC s political capacity.Different from traditional experimental mechanisms with the principle of efficiency,the process of CPC s internal legal regulation drives the expansion,diffusion,and reconstruction of CPC s internal pilot programs in its block structure.