【作者】 施新州；

【导师】 刘春；

【作者基本信息】 中共中央党校 ， 政治学理论， 2008， 博士

【摘要】 我国的县级建制,有着悠久的历史传承和演变过程;而县级政治系统的管辖范围,覆盖了全国,尤其是农村的广大区域和人口,因此在整个政治系统中占据着非常特殊且重要的位置。目前,以党委为领导核心的县级政治系统存在的诸多问题以及学界对之研究的匮乏,促使本文以县级党委为研究对象展开对县域政治发展问题的研究。全文共五章:第一章:“导论”。明确了论文要解决的问题、写作意义和基本思路;对研究现状进行了概括,对论文所运用的研究方法进行了说明。在分析历史背景和现实背景的基础上,提出“以县级党委主导的县级政治系统存在体制性问题”而且其危害颇深,其原因就在于县级党委权力的扩张问题。这种现状是由于人们忽略了县级党委和县级政治系统在属性、结构、功能和运行方式上的不同而造成的。其结果就是,县级政治系统因受党组织系统组织原则的根本影响因而并不具备作为一级政治系统的自主性。也就是说,虽然它在总体上具有很高的效率,但其自身缺乏规范权力、防止权力变异的应有程序、规则及相应的机制和制度。这不利于县级政治系统在结构与功能上持续性的稳定发展,其直接后果会影响到县域社会的稳定、有序与和谐的发展。第二章:“县级党委的产生与发展”。从县级党委的建立入手描述县级党委结构与功能的产生与发展过程。首先,以X县为个案,以其县委的结构与功能为切入点,系统描述了县级党委从建立、挫折、重建、再挫折、再重建(发展)的过程。其次,描述了县级党委结构与功能在解放后稳定的发展过程中逐步制度化、规范化的过程,而且其权力也经历了一个产生和扩张的过程,最终形成了一种县级党委集权体制。最后,分析了县级党委集权体制的结构。这种集权体制的具体表现就是县级党委对县级政治各子系统(包括县级人大和“一府两院”)的领导和控制,结果就是县级政治系统缺乏自主性:县级政治系统及其各子系统就在县级党委的主导下按照党组织的原则和规律运行,这一方面让县级政治系统丧失了调节各种权力关系的能力,另一方面也使得县级党组织进一步集权化了。第三章:“县级党委的集权化及其改革”。分析了县级党委高度集权化的根源、表现、危害及其进行的相关改革。首先,分析了高度集权的表现、危害及其根源。高度集权化倾向主要表现为两个方面:一是县级党组织的领导机构——党委的进一步集权;二是县级党委领导下的基层组织的涣散无力。县级党委的高度集权化的表现及其危害是值得关注的,面对自身存在的种种弊端,党委自身也在作着种种努力试图改变这种倾向及其带来的弊端。其次,以两个个案为研究对象对县级党组织的自我调适进行了分析。对S县(区)和D县(区)两个对比鲜明的个案进行的分析结果表明,在党组织系统内的改革似乎难以根本解决党的集权和县级政治系统自主性缺失的问题。第四章:“县级党委与县级人大的关系分析”。首先,以县级人大为研究对象,描述了其建立和发展的过程,探讨了其基本的属性和功能,即代议属性和工具性特征,试图寻找县级党组织与人大在功能上的契合点。其次,分析了县级党委与县级人大的现实关系,在九十年代以前的阶段,县级人大处于恢复阶段,其结构与功能都不健全,因此根据上级要求,县级党委主要是领导县级人大的恢复、建立和发展完善。之后,随着县级人大结构与功能的逐步完善,县级党委对它的领导在更大程度上表现为制约了县级人大功能的发挥。在现实政治生活中二者之间存在的张力关系表现出了它们在功能上的契合之处。第五章:“县级党委领导功能的转换模式”。首先,对党组织的属性和功能进行政治社会学的分析。党组织具有的一般功能:自我管理功能、政治领导功能和社会动员功能,而且描述了党组织功能的层次性分布。这种划分和描述的目的是试图厘清党组织系统的属性及其组织原则和政治系统的属性及其组织原则之间存在的差异。对于县级党组织而言,政治领导功能主要体现为执政功能,而自我管理功能和社会动员功能是其发展执政功能的基础。其次,在前面分析的基础上,构建了县级党组织的功能转换模式。其领导机构——县委领导成员通过县级人民代表的直接选举进入人大系统,通过主导人大系统的运行来履行执政功能。而在人大系统之外县级党组织由一名专职副书记领导若干部门履行自我管理功能和社会动员功能。“执政功能”与“自我管理、社会沟通和政治动员功能”在结构上的分离,客观上会促进县级党组织自身能力的发展,并与县级政治系统浑然一体;既发挥了党组织固有的优势和执政功能,又保证了县级政治系统整体功能的实现。文章还分析了实现县级党组织功能转移的依据和可行性,认为县级党组织这种新的执政模式是在县域政治发展中实现科学执政、民主执政和依法执政的有效途径。在结束语部分,笔者在分析了县级政治改革的艰巨性和迫切性的基础上,重申了我国县域政治发展的重要性。更多还原

【Abstract】 China’s county-level institution has seen a long history and has undergone a long evolutionary process. As the county-level political system covers the whole country, especially the vast rural regions, it occupies a very special and important position in the entire political system. At present, the county-level political system with the Party committee leadership at the core has many problems. However, academic research on this issue is scarce. Therefore, this paper is intended to study the county political problems with the focus on county-level Party committee.This paper falls into five chapters:Chapter 1:“Introduction.”This chapter states the problems to be solved in this thesis, its significance and basic thoughts; it summarizes the present research, and describes the studying method employed in this thesis. Based on the analysis of historical background and reality, this paper maintains that“the county-level political system with county-level Party committee as the core has its institutional problems”and does great harm and the main reason is that the expansion of power of county-level Party committees. This situation is due to the fact that people overlooked the difference in the county-level attributes, structure, function and operation between county-level Party committees and political system. As a result, influenced by the fundamental principles of county-level party organizations, county-level political system does not have the autonomy as a political system. That is, in general, although it has high efficiency, but it lacks of standard procedures, rules, appropriate mechanisms and checking systems to restrict power and prevent power abuse. This handicaps the sustainable and steady development of county-level political system in the structure and function. In turn, it will damage the stable, orderly and harmonious development of the county.Chapter 2:“Origin and Development of County-level Party committees“.It describes the origin and development of structure and functions of county-level party committees starting from the establishment of county-level party committee. Firstly, it takes County X as an example and describes the process, engaged by county party committee, of establishment, regression, reconstruction, a second-time regression, and a second-time reconstruction. Second, it describes the gradually- institutionalized and standardized process of the structure and function on the part of county-level party committees during the steady developing period after Liberation. Its powers have also gone through expansion and eventually developed into a centralized system of county-level Party committee. Finally, it analyzes the centralized system of county-level party committee structure. This centralized system intensified the leadership and control of county-level party committees to the various county-level sub-systems (including county-level people’s congresses and the“government, the Court, the Procuratorate”) Thus, there exists no autonomy on the part of the county-level political system: the county level political system and its subsystems are operating under the guidance of principles and rules designed by the party, which leads to two negative results: county-level political system has lost the ability to regulate various kinds of power; what’s more, the county-level party organizations has become more and more centralized.Chapter 3:“Power Centralization of County Party Committee and its Reform.”It analyzes the roots, features, hazards and related reforms of highly power-centralized county-level Party committee. To begin with, it analyzes the features, harms and roots of highly centralized power. Highly centralized power is manifested in two aspects: increasing power centralization of the leading institutions in counties-- county-level Party committees, and the incompetence of grass-roots organizations under the leadership of county-level Party committees. The harm of highly centralized County-level Party committees needs great concern. Confronted with their own defects, the Party committee is making efforts to change this tendency and overcome its disadvantages. Secondly, this chapter analyzes the self-adjustment of county-level party organizations in two cases. Through the contrastive study of S county (district) and D county (district), the author finds that it is difficult to solve the problem of centralized power of Party organizations and lack of autonomy on the part of county-level political system only through the reform in the Party organizations.Chapter 4:“Analysis on the Relationship between County-level Party committee and County-level People’s Congress.”First, it describes the establishment and development of county-level people’s congresses, its basic attributes and functions, that is, representative attributes and essential characteristics, trying to find a crossing point between the functions of county-level Party organizations and the National People’s Congress. Second, it analyzes the relationship between county Party committee and people’s congresses on county’s level. Before 1990s, the county-level people’s congresses were at the recovery stage, its structure and functions were unsound. Thus, according to the higher level command, the main task of the county party committee is to help county-level people’s congresses to recover, reestablish and develop. Afterwards, with the gradual improvement of structure and function in county-level people’s congresses, the county Party committee restricted the function of county-level people’s congress to a greater extent. In real political life, the tension between their relations demonstrates that there exist crossing points in specific functions.Chapter 5:“Functional Transforming Mode of County-level Party Committee Leadership”. First, it analyzes the properties and functions of party organizations from the perspective of political sociology. Party organizations have the general features of self-management, political leadership and social mobilization. What’s more, it describes the multi-level distribution of Party organizations. The purpose of division and description is to try to clarify the difference in the attributes and organizational principle between party organizations and political system. As to the county-level party organizations, the main functions of political leadership are governance functions. Self-management and social mobilization are the bases of governance. Secondly, on the basis of the above analysis, functional transforming mode of county-level Party committee is put forward. The leaders, representatives directly elected by people, become the members of People’s Congress system. They perform governance roles through the governing of People’s Congress. Beyond county-level people’s congress system, a full-time deputy secretary from the county-level Party organizations governs some sub-institutions of Party, which perform self-management and social mobilization function. The separation among“The ruling function”and“self-management, social communication and political mobilization function”in the structure will promote the development of county-level Party organizations and the combination with the county-level political system. It not only promotes the inherent advantages and functions of Party organizations, but also ensures the overall function of the county-level political system. The thesis also analyzes the basis and feasibility of functional transforming mode of county-level Party organizations. It maintains that this new mode is an effective way to achieve scientific governance, democratic governance and governance according to law in the county-level party organizations.In closing remarks, based on the analysis of difficulty and urgency in the county-level political reform, the author restates the significance of China’s political development on the county-level.更多还原