村级组织负责人党政“一肩挑”的制度优势、执行困难与机制创新  

Research on the Implementation Difficulties and Innovation Mechanism of the "Taking Two Committees' Responsibilities on One Shoulder" Policy in Rural China

作　　者：许亚敏 Xu Ya-min

机构地区：[1]吉林大学行政学院 [2]民政部政策研究中心,北京100721

出　　处：《社会建设》2020年第6期75-85,共11页Social Construction

基　　金：社会治理动态监测平台及深度观察点网络建设项目(118010000000180002);泰山学者工程专项经费资助项目“中国特色社会主义乡村振兴战略中的乡村治理新体系研究”(tsqn201909105)。

摘　　要：村级组织负责人党政"一肩挑"的实施弥补了如何处理"两委"关系的制度不足,具有强化党组织领导权威、促进村民自治有效实现、确保农村发展战略落实的制度优势。然而,在制度执行过程中也存在着候选人匮乏、操作规程缺失、权力监督模糊等现实困境。充分发挥"一肩挑"制度优势需要形成党建引领社会治理的统合机制,创新"一肩挑"人员的选人用人机制,健全依法合规的程序机制,构建"自上而下"与"自下而上"相结合的监督机制,形成两委"一肩挑"的法治保障机制,以充分释放"一肩挑"在提升农村基层社会治理体系和治理能力现代化中的功能效应。The "Taking Two Committees’ Responsibilities on One Shoulder" Policy in rural China is designed as a supplement to handle with the relationship between the Two Committees. The practice has shown obvious institutional advantages including strengthening the leadership authority of the CCP, promoting the realization of rural residents’ autonomy, and ensuring the implementation of rural development strategies. However, difficulties are on the other side of the coin, such as lack of candidates, missing of operation protocols, and failure on power supervision. Both the institutional advantages and the practical dilemma have their inherent generation mechanism. Multiple mechanisms should be established to maximize the institutional advantages of the "Taking Two Committees’ Responsibilities on One Shoulder" Policy, including an integration mechanism for Party building to lead social governance, a scientific mechanism for selection and appointment of candidates, a procedural mechanism in conformity with legal provisions, a supervision mechanism combined by "bottom-up" and "top-down" strategies, a legal guarantee mechanism for the policy implementation, which together advances the modernization of rural China’s system and capacity for governance.

关 键 词：“一肩挑”制度 “两委”关系 村级组织 

分 类 号：D422.6[政治法律—政治学] D267.2[政治法律—国际共产主义运动]