“党的领导”如何嵌入政府过程?——以党政联合发文为分析框架

How Is the Leadership of CPC Embedded in the Government Process?An Analysis Framework Based on the Joint Process of Document Production by the Party and Government

“党的领导”既是一种政治原则,也是一整套实现国家治理现代化的体制机制。在国家治理的场景中,文件作为科层内部联系的载体贯穿政府活动的始终,而党政联合发文又是党政治理结构高效运行的重要依托和实现党领导政府的具体机制,兼具党的文件和政府的政策性文件双重属性,使其成为观察“党的领导”嵌入政府过程的直观视角。党政联合发文机制的运行过程涵盖动议、起草、修改、会签和公布五个前后衔接的环节。基于此提炼分析框架,可以将“党的领导”嵌入政府过程的基本逻辑抽象为“议题设定—规则创制—效力生成”,分别代表着任务嵌入、内容嵌入和权威嵌入三重维度。借助对这一机制的阐释,可能有助于从理论层面回应政党是以何种方式与国家政权发生关联进而实现有效治国理政这一问题。可以发现,“党的领导”不仅是一种政治原则,还是一整套相互衔接的体制机制。其中,党政联合发文在贯彻“党的领导”上发挥了重要作用。

Leadership of CPC is a kind of political principle and a set of mechanisms to reliaze national governance.In contemporary Chinese government process,documents run through government activities all the time,and document production by the Party and government jointly is an important mechanism for efficient operation of party-government governance structure,making this mechanism an intuitive perspective to observe the embedding of leadership of CPC into the government process.There are five parts in the operation process,including motion,drafting,revision,countersignature and announcement.Based on this process,the basic logic of embedding can be described as issue setting,rule creation and effectiveness generation,which represent three dimensions of task embedding,content embedding,and authority embedding.This study may be helpful to understand how party is associated with state power.