制度与能动:论新时期党的组织工作的创新发展
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摘要
中国共产党的组织工作具有范围最广、角色最重、作用最稳定等特征。强制度和强能动这两个方面的因素及其配置的均衡协调是组织工作和组织部门取得重要地位的根本原因:党的组织形式和干部体制对组织工作给予了强有力的支持,组织工作的实施主体则通过积极的工作策略长期保持优势地位。在全面从严治党的条件下,组织工作在制度和能动这两个方面都发生了新的变化:制度支持进一步强化,主要表现在对干部党员的规范进一步向"德"偏移、组织手段的刚性约束以及工作覆盖面和职能的继续扩大;而能动行动方面的相对不足,则可能导致腐败滋生和干部的不作为、多元社会对组织工作权威性的削弱以及刚性制度对工作韧性的挑战等问题。新的能动建设策略要强化激励保护功能,包括确立三个"之家"建设的重要地位,将人才工作作为组织工作的重要任务,使组织工作更加公开和透明等。
The characteristics of the organizational work of the Communist Party of China lie in its broadness,importance and stableness.Obviously,such characters demonstrate the leadership and action modes of the Party and offer a meaningful research perspective to explore the rules and secrets of China's politics.Inspired by institutionalism and actors theory,the author follows the research methods of institution-structure-process-result in the research into the organizational work in respect of its form,characteristics,dynamics,essentials,and implementation strategies.The essential reason for the organizational work and organization department being at a central place is the balanced coordination and allocation of the two factors — a strong institution and a strong initiative.On the one hand,the form of the party organization and cadre mechanism create a forceful support system for the organizational work.The organizational committee starts during the revolution and has the revolutionary gene which helps its establishment of the vertical leadership system centered with the party cadres and of the complex network structured on the basis of the party members.This kind of organization structure and mechanism coordinates the mobilization and organization— the two political actions.Therefore,it has strengthened the power of the Party and established the center position of disciplining the cadres and the party members in the organizational work.On the other hand,the implementation of organizational work sets up a battery of generally accepted standards and evaluation methods by means of developing the inner-party regulations to promote the consensus concepts.The active construction of″Home of the Party Members″,″Home of the Cadres″,″Home of the Talents″,etc.has strengthened the inner-party incentive function,creating a clear image of the model department.These positive work strategies enable the organizational work to retain an advantageous position in the long run.Under the condition that the Party be strictly disciplined in all aspects,new changes have taken place in institutions and initiatives.The normative institution supports are further reinforced.This can be seen in the norms of disciplining the cadres and party members which increases the importance of morality and virtue when reviewing cadres.It can be seen in the reinforcement of the organizational work by emphasizing strict constraints in the organization operation.It can also be seen in the further expansion of the scope and content of organizational work and in the expansion of the functions and work coverage of the organization departments.However,in terms of initiatives,it is relatively insufficient.This may lead to corruption in the process of strengthening the overall leadership.Cadres are prone to political inaction when trapped and constrained by the demand from them for perfection.At the same time,it is also faced with the problem of a weakening authority in the pluralistic society and with the challenge of less work resilience brought by the over-strict organizational institution.In order to meet the needs of the party to organize and mobilize all possible forces in the new situation,it is urgent to construct the initiative of the organizational work.The new initiative construction strategy should reinforce the incentive protection function,such as establishing the important status of the construction of three″Homes″as mentioned above,conglomerating the talent work into the organization work system,further breaking the mysteriousness and changing it into openness and transparency,so as to make the strong initiative of the organization work into a forceful power for the implementation of the institution.
The characteristics of the organizational work of the Communist Party of China lie in its broadness,importance and stableness.Obviously,such characters demonstrate the leadership and action modes of the Party and offer a meaningful research perspective to explore the rules and secrets of China's politics.Inspired by institutionalism and actors theory,the author follows the research methods of institution-structure-process-result in the research into the organizational work in respect of its form,characteristics,dynamics,essentials,and implementation strategies.The essential reason for the organizational work and organization department being at a central place is the balanced coordination and allocation of the two factors — a strong institution and a strong initiative.On the one hand,the form of the party organization and cadre mechanism create a forceful support system for the organizational work.The organizational committee starts during the revolution and has the revolutionary gene which helps its establishment of the vertical leadership system centered with the party cadres and of the complex network structured on the basis of the party members.This kind of organization structure and mechanism coordinates the mobilization and organization— the two political actions.Therefore,it has strengthened the power of the Party and established the center position of disciplining the cadres and the party members in the organizational work.On the other hand,the implementation of organizational work sets up a battery of generally accepted standards and evaluation methods by means of developing the inner-party regulations to promote the consensus concepts.The active construction of″Home of the Party Members″,″Home of the Cadres″,″Home of the Talents″,etc.has strengthened the inner-party incentive function,creating a clear image of the model department.These positive work strategies enable the organizational work to retain an advantageous position in the long run.Under the condition that the Party be strictly disciplined in all aspects,new changes have taken place in institutions and initiatives.The normative institution supports are further reinforced.This can be seen in the norms of disciplining the cadres and party members which increases the importance of morality and virtue when reviewing cadres.It can be seen in the reinforcement of the organizational work by emphasizing strict constraints in the organization operation.It can also be seen in the further expansion of the scope and content of organizational work and in the expansion of the functions and work coverage of the organization departments.However,in terms of initiatives,it is relatively insufficient.This may lead to corruption in the process of strengthening the overall leadership.Cadres are prone to political inaction when trapped and constrained by the demand from them for perfection.At the same time,it is also faced with the problem of a weakening authority in the pluralistic society and with the challenge of less work resilience brought by the over-strict organizational institution.In order to meet the needs of the party to organize and mobilize all possible forces in the new situation,it is urgent to construct the initiative of the organizational work.The new initiative construction strategy should reinforce the incentive protection function,such as establishing the important status of the construction of three″Homes″as mentioned above,conglomerating the talent work into the organization work system,further breaking the mysteriousness and changing it into openness and transparency,so as to make the strong initiative of the organization work into a forceful power for the implementation of the institution.
引文
[1][美]沈大伟:《中国共产党:收缩与调适》,吕增奎、王新颖译,北京:中央编译出版社,2012年。[Shambaugh D.,China's Communist Party:Atrophy and Adaptation,trans.by LüZengkui&Wang Xinying,Beijing:Central Compilation&Translation Press,2012.]
[2][法]莫里斯·迪韦尔热:《政治社会学---政治学要素》,杨祖功、王大东译,北京:东方出版社,2007年。[Duverger M.,Political Sociology:Political Elements,trans.by Yang Zugong&Wang Dadong,Beijing:Dongfang Press,2007.]
[3]李维汉:《回忆与研究》(上),北京:中共党史资料出版社,1986年。[Li Weihan,Reminiscence and Research(Ⅰ),Beijing:CPC History Information Publishing House,1986.]
[4]中共中央组织部全国组织干部学院编:《中国共产党组织工作历程》,北京:党建读物出版社,2015年。[China Executive Leadership Academy of the Organization Department of the CPC(ed.),History of the CPC Organization Work,Beijing:Party Building Books Publishing House,2015.]
[5]Bell D.A.,The China Model:Political Meritocracy and the Limits of Democracy,Princeton:Princeton University Press,2015.
[6][美]塞缪尔·P.亨廷顿:《变化社会中的政治秩序》,王冠华、刘为等译,上海:上海人民出版社,2015年。[Huntington S.P.,Political Order in Changing Societies,trans.by Wang Guanhua&Liu Wei et al.,Shanghai:Shanghai People's Publishing House,2015.]
[7][法]米歇尔·克罗齐耶、埃哈尔·费埃德伯格:《行动者与系统:集体行动的政治学》,张月等译,上海:格致出版社、上海人民出版社,2017年。[Crozier M.&Friedberg E.,Actors and Systems:The Politics of Collective Action,trans.by Zhang Yue et al.,Shanghai:Truth&Wisdom Press,Shanghai People's Publishing House,2017.]
[8][美]詹姆斯·R·汤森、布莱特利·沃马克:《中国政治》,顾速、董方译,南京:凤凰出版传媒集团、江苏人民出版社,2010年。[Townsend J.R.&Womack B.,Politics in China,trans.by Gu Su&Dong Fang,Nanjing:Phoenix Publishing&Media Group,Jiangsu People's Publishing Ltd.,2010.]
[9]高世琦:《党建研究和组织工作文稿》,北京:党建读物出版社,2016年。[Gao Shiqi,Manuscript of Party Building Research and Organization Work,Beijing:Party Building Books Publishing House,2016.]
[10]中共中央组织部编:《中国共产党组织工作教程》,北京:党建读物出版社,2015年。[Organization Department of the CPC Central Committee(ed.),Organization Work Course of CPC,Beijing:Party Building Books Publishing House,2015.]
[11]中共中央组织部研究室(政策法规局)编著:《全面从严治党》,北京:党建读物出版社,2016年。[Research Office of Organization Department of the CPC Central Committee(Department of Policies and Regulations)(ed.),Seeing Party Self-governance Exercised Fully and with Rigor,Beijing:Party Building Books Publishing House,2016.]
[12]中共中央组织部党建研究所编:《全面从严治党这五年---十八大以来党的建设和组织工作成就与经验》,北京:党建读物出版社,2018年。[Party Construction Research Institute of Organization Department of the CPCCentral Committee(ed.),The Five Year of Party Self-governance Exercised Fully and with Rigor:The Achievements of Party Construction and Organization Work after the 18th Congress,Beijing:Party Building Books Publishing House,2018.]
(1)《党章》的第一、二、五、六章全部是组织工作内容,第三、四、九、十、十一章中也有重要体现。
(2)以中共中央办公厅法规局、中共中央纪委法规室、中共中央组织部办公厅编的《中国共产党党内法规选编(2007—2012)》(法律出版社2014年版)为例,该书收录了五年来中共中央和中央纪委、中央办公厅、中央组织部发布的部分现行有效的党内法规和规范性文件,共计117件,其中属于组织工作范畴的是56件,占47.9%。
(3)2014年,中共中央组织部为庆祝建部90周年,拍摄了一部电视专题片《使命》。在第二集《铸就辉煌》中,把中国共产党实现了“把一穷二白的旧中国建设成为当今第二大经济体”这一奇迹的奥秘归纳为这两个方面。
(1)本文的专项调查证明了这一点:有64.9%的人认为组织部是一个重要部门,31.16%的人认为组织部是一个权力部门,27 .57%的人认为组织部是一个要害部门。
(2)参见佚名《习近平强调:建设一支宏大高素质干部队伍》,2013年6月29日,http://www.xinhuanet.com//politics/2013-06/29/c_116339948.htm,2018年8月29日。
(3)本文的专项调查表明,“严谨”一词在被访者描述对组工干部的印象中居于首位,组织工作的严谨、认真、踏实成为普遍印象。在584份有效问卷中,对组工干部印象的开放性问题的调查结果进行词频分析,其权重分别为:严谨1,公正0.925 4,踏实0.879 3,神秘0.860 7,公平0.831 7,亲民0.828 1,热情0.818 3,尽职尽责0.813 7,助人0.808 7;内容分析的权重为:严谨认真1,亲民奉献0.45,公平公正0.18,有权威0.18,能强0.12,忙碌辛苦0.11,神秘0.09,有前途0.05。
(1)参见《组织问题议决案》(1926年7月),见中共中央组织部、中共中央党史研究室、中央档案馆编《中国共产党组织史资料》第八卷,(北京)中共党史出版社2000年版,第83页。
(2)参见《关于组织问题草案之决议》(1928年7月),见中共中央组织部、中共中央党史研究室、中央档案馆编《中国共产党组织史资料》第八卷,(北京)中共党史出版社2000年版,第194页。
(1)参见佚名《烈士丹心——记为了祖国和人民而牺牲的共产党员》,2011年7月7日,http://cpc.people.com.cn/GB/64093/64387/15097652.html,2018年8月29日。
(2)习近平在党的第十九次全国代表大会开幕式的报告中,将“抓住‘关键少数’”作为坚持全面从严治党的一个内容,重申“党的干部是党和国家事业的中坚力量”。
(3)习近平在2013年全国组织工作会议上说:“组织部门作为管党治党的重要职能部门,必须带头改进作风,继承发扬组织部门优良传统和作风,树立和维护组织部门良好形象。只有带头把自身作风搞好了,管理才有底气,严格才能让人服气。组织部门改进作风,最核心的是坚持公道正派。”参见佚名《习近平强调:建设一支宏大高素质干部队伍》,2013年6月29日,http://www.xinhuanet.com//politics/2013-06/29/c_116339948.htm,2018年8月29日。本文关于组织工作的专项调研表明,公众对组织部门的最大期待是“公平地选人用人”,其所占比例高达34.4%,远高于位居第二位的“为群众做实事”(14.6%)。
(1)2014—2017年,全国共查核领导干部个人有关事项报告120多万人次,因不如实报告等问题受到处理的达12.5万余人,被暂缓任用或取消提拔资格、后备干部人选资格的1.1万余人。详见韩向辉《党的十八大以来领导干部个人有关事项报告工作综述》,2017年8月11日,http://dangjian.people.com.cn/n1/2017/0811/c117092-29465441.html,2018年8月29日。
(2)参见《齐玉介绍十八大以来组织工作重大成就:专项整治突出问题》,2017年10月19日,http://cpc.people.com.cn/19th/n1/2017/1019/c414536-29596390.html,2018年8月29日。
(1)参见佚名《为夺取新时代中国特色社会主义伟大胜利提供坚强组织保证——习近平总书记在全国组织工作会议上的重要讲话引起热烈反响》,2018年7月5日,http://cpc.people.com.cn/n1/2018/0705/c64094-30129644.html,2018年8月29日。
(1)参见李秋葆《在服务党员中激励党员》,2010年12月13日,http://cpc.people.com.cn/GB/64093/64099/13467054.html,2018年8月29日。
[2][法]莫里斯·迪韦尔热:《政治社会学---政治学要素》,杨祖功、王大东译,北京:东方出版社,2007年。[Duverger M.,Political Sociology:Political Elements,trans.by Yang Zugong&Wang Dadong,Beijing:Dongfang Press,2007.]
[3]李维汉:《回忆与研究》(上),北京:中共党史资料出版社,1986年。[Li Weihan,Reminiscence and Research(Ⅰ),Beijing:CPC History Information Publishing House,1986.]
[4]中共中央组织部全国组织干部学院编:《中国共产党组织工作历程》,北京:党建读物出版社,2015年。[China Executive Leadership Academy of the Organization Department of the CPC(ed.),History of the CPC Organization Work,Beijing:Party Building Books Publishing House,2015.]
[5]Bell D.A.,The China Model:Political Meritocracy and the Limits of Democracy,Princeton:Princeton University Press,2015.
[6][美]塞缪尔·P.亨廷顿:《变化社会中的政治秩序》,王冠华、刘为等译,上海:上海人民出版社,2015年。[Huntington S.P.,Political Order in Changing Societies,trans.by Wang Guanhua&Liu Wei et al.,Shanghai:Shanghai People's Publishing House,2015.]
[7][法]米歇尔·克罗齐耶、埃哈尔·费埃德伯格:《行动者与系统:集体行动的政治学》,张月等译,上海:格致出版社、上海人民出版社,2017年。[Crozier M.&Friedberg E.,Actors and Systems:The Politics of Collective Action,trans.by Zhang Yue et al.,Shanghai:Truth&Wisdom Press,Shanghai People's Publishing House,2017.]
[8][美]詹姆斯·R·汤森、布莱特利·沃马克:《中国政治》,顾速、董方译,南京:凤凰出版传媒集团、江苏人民出版社,2010年。[Townsend J.R.&Womack B.,Politics in China,trans.by Gu Su&Dong Fang,Nanjing:Phoenix Publishing&Media Group,Jiangsu People's Publishing Ltd.,2010.]
[9]高世琦:《党建研究和组织工作文稿》,北京:党建读物出版社,2016年。[Gao Shiqi,Manuscript of Party Building Research and Organization Work,Beijing:Party Building Books Publishing House,2016.]
[10]中共中央组织部编:《中国共产党组织工作教程》,北京:党建读物出版社,2015年。[Organization Department of the CPC Central Committee(ed.),Organization Work Course of CPC,Beijing:Party Building Books Publishing House,2015.]
[11]中共中央组织部研究室(政策法规局)编著:《全面从严治党》,北京:党建读物出版社,2016年。[Research Office of Organization Department of the CPC Central Committee(Department of Policies and Regulations)(ed.),Seeing Party Self-governance Exercised Fully and with Rigor,Beijing:Party Building Books Publishing House,2016.]
[12]中共中央组织部党建研究所编:《全面从严治党这五年---十八大以来党的建设和组织工作成就与经验》,北京:党建读物出版社,2018年。[Party Construction Research Institute of Organization Department of the CPCCentral Committee(ed.),The Five Year of Party Self-governance Exercised Fully and with Rigor:The Achievements of Party Construction and Organization Work after the 18th Congress,Beijing:Party Building Books Publishing House,2018.]
(1)《党章》的第一、二、五、六章全部是组织工作内容,第三、四、九、十、十一章中也有重要体现。
(2)以中共中央办公厅法规局、中共中央纪委法规室、中共中央组织部办公厅编的《中国共产党党内法规选编(2007—2012)》(法律出版社2014年版)为例,该书收录了五年来中共中央和中央纪委、中央办公厅、中央组织部发布的部分现行有效的党内法规和规范性文件,共计117件,其中属于组织工作范畴的是56件,占47.9%。
(3)2014年,中共中央组织部为庆祝建部90周年,拍摄了一部电视专题片《使命》。在第二集《铸就辉煌》中,把中国共产党实现了“把一穷二白的旧中国建设成为当今第二大经济体”这一奇迹的奥秘归纳为这两个方面。
(1)本文的专项调查证明了这一点:有64.9%的人认为组织部是一个重要部门,31.16%的人认为组织部是一个权力部门,27 .57%的人认为组织部是一个要害部门。
(2)参见佚名《习近平强调:建设一支宏大高素质干部队伍》,2013年6月29日,http://www.xinhuanet.com//politics/2013-06/29/c_116339948.htm,2018年8月29日。
(3)本文的专项调查表明,“严谨”一词在被访者描述对组工干部的印象中居于首位,组织工作的严谨、认真、踏实成为普遍印象。在584份有效问卷中,对组工干部印象的开放性问题的调查结果进行词频分析,其权重分别为:严谨1,公正0.925 4,踏实0.879 3,神秘0.860 7,公平0.831 7,亲民0.828 1,热情0.818 3,尽职尽责0.813 7,助人0.808 7;内容分析的权重为:严谨认真1,亲民奉献0.45,公平公正0.18,有权威0.18,能强0.12,忙碌辛苦0.11,神秘0.09,有前途0.05。
(1)参见《组织问题议决案》(1926年7月),见中共中央组织部、中共中央党史研究室、中央档案馆编《中国共产党组织史资料》第八卷,(北京)中共党史出版社2000年版,第83页。
(2)参见《关于组织问题草案之决议》(1928年7月),见中共中央组织部、中共中央党史研究室、中央档案馆编《中国共产党组织史资料》第八卷,(北京)中共党史出版社2000年版,第194页。
(1)参见佚名《烈士丹心——记为了祖国和人民而牺牲的共产党员》,2011年7月7日,http://cpc.people.com.cn/GB/64093/64387/15097652.html,2018年8月29日。
(2)习近平在党的第十九次全国代表大会开幕式的报告中,将“抓住‘关键少数’”作为坚持全面从严治党的一个内容,重申“党的干部是党和国家事业的中坚力量”。
(3)习近平在2013年全国组织工作会议上说:“组织部门作为管党治党的重要职能部门,必须带头改进作风,继承发扬组织部门优良传统和作风,树立和维护组织部门良好形象。只有带头把自身作风搞好了,管理才有底气,严格才能让人服气。组织部门改进作风,最核心的是坚持公道正派。”参见佚名《习近平强调:建设一支宏大高素质干部队伍》,2013年6月29日,http://www.xinhuanet.com//politics/2013-06/29/c_116339948.htm,2018年8月29日。本文关于组织工作的专项调研表明,公众对组织部门的最大期待是“公平地选人用人”,其所占比例高达34.4%,远高于位居第二位的“为群众做实事”(14.6%)。
(1)2014—2017年,全国共查核领导干部个人有关事项报告120多万人次,因不如实报告等问题受到处理的达12.5万余人,被暂缓任用或取消提拔资格、后备干部人选资格的1.1万余人。详见韩向辉《党的十八大以来领导干部个人有关事项报告工作综述》,2017年8月11日,http://dangjian.people.com.cn/n1/2017/0811/c117092-29465441.html,2018年8月29日。
(2)参见《齐玉介绍十八大以来组织工作重大成就:专项整治突出问题》,2017年10月19日,http://cpc.people.com.cn/19th/n1/2017/1019/c414536-29596390.html,2018年8月29日。
(1)参见佚名《为夺取新时代中国特色社会主义伟大胜利提供坚强组织保证——习近平总书记在全国组织工作会议上的重要讲话引起热烈反响》,2018年7月5日,http://cpc.people.com.cn/n1/2018/0705/c64094-30129644.html,2018年8月29日。
(1)参见李秋葆《在服务党员中激励党员》,2010年12月13日,http://cpc.people.com.cn/GB/64093/64099/13467054.html,2018年8月29日。