中国党政组织关系的具体形态和生成逻辑

The Organizational Structure and Generative Logics of Party⁃Government Relation in China

党政关系是党和国家机构改革和中国国家治理体系的核心,但落实到具体的党政组织结构上,现有研究呈现出宏观分合形态和具体组织形式的脱节,以及缺乏对不同组织形式内在逻辑的探讨。本文设定了衡量党政组织关系分合程度的具体标准,以“分设-合一”维度依次分析了党政组织关系的五种不同形态:党委领导下的党政分设、统领协调、归口领导、合署办公、合并设立,总结了其概念、特征、演进和分布;基于这一维度,分析了影响党政关系分合的四种影响因素,认为党的领导越趋向全面系统化、党政机构协调成本降低空间越大、政府机构业务综合性战略性越强、工作政治性越强而导致党政责任边际模糊,则党政组织越倾向合一,同时在不同自主性强度的改革中,这种分合关系会在政府纵向层级间呈现差异化特征;最后提出了对未来我国党政关系分合模式的优化建议。

The Party⁃government relation is a crucial issue of party and government institutio reo n rganization and national governance system in China.The existing studies fails to connect the status of division⁃and⁃integration pattern in macro⁃level and specific organizational patterns in micro⁃level p,roviding insufficient explanations on internal logics of different organizational patterns.This paper set a series of concrete criteria to measure the degree of division⁃and⁃integration pattern between party and governmental agencies,analyzing five different modes of party⁃government organizational patterns specific leadership,collaborative office,organizational mergence.The definition,characteristics evo,lution and application of those five patterns have been discussed profoundly.Four key impact factors to explain the division⁃and⁃integration pattern of party⁃government institutions have been advanced such as the value of ruling party leadership,the organizational functioning cost,the professional degree of routine job and accountability&restraint mechanism between party⁃government organizations.Meanwhile,the vertically hierarchical institution also matters to explain the division⁃and⁃integration pattern choice in different tiers of governments.Finally,this paper has also advanced a series of policy recommendations to improve the division⁃and⁃integration pattern of party⁃government organizations in China in the future.