【作者】 李小中；

【导师】 王明生；

【作者基本信息】 南京大学 ， 政治学理论， 2018， 博士

【摘要】 在全面从严治党向纵深发展和巡视工作实践深入推进的背景下,巡视方面的研究逐渐成为热点。党的十六大提出建立和完善巡视制度以来,巡视领域的理论研究蓬勃兴起。但从实践发展需要来看,巡视的研究仍然相对滞后。目前的部分研究成果在路径模式、方法手段方面比较单一、缺少多元化,研究的结果存在趋同化,理论阐释和实证分析都比较欠缺,特别是结合案例的分析研究更是不足。本文坚持以习近平新时代中国特色社会主义思想为指导,特别是深入贯彻习近平关于巡视工作重要思想,在系统梳理巡视制度的发展脉络和演进路径的基础上,运用政治学研究的基本方法,主要从全面从严治党的视角,以及党风廉政建设和反腐败斗争的视角,对巡视理论尝试作一些诠释。同时,尝试运用实证研究,利用搜集到的公开资料和案例,对巡视的实践价值,以及巡视制度设计和实践层面的创新路径进行研究分析,旨在更好地推动巡视制度完善和巡视工作创新,为推进全面从严治党,促进反腐败工作标本兼治,作一些探索研究。从历史发展演进看,巡视制度具有悠久的历史,是中国古代监察制度的重要形式,是具有中国特色的官制文化的重要组成部分。党内巡视与古代巡视虽然呈现一定的历史传承性,但却有着本质的区别。党内巡视在新民主主义革命时期经历了萌芽发生,确立与推行,以及期间遭受挫折,为巡视制度的发展积累了历史经验。新中国成立后,巡视工作在曲折中不断探索完善。党的十一届三中全会以来,出于在新的历史条件下强化党内监督和开展反腐败斗争的需要,恢复建立和完善党内巡视制度变得极为迫切。1990年,党的十三届六中全会提出,中央和省区市党委可以根据需要派出巡视工作小组。1996年中央纪委第一次派出巡视组。1996年到2002年为党内巡视初步展开时期。通过这段时间的巡视试点掌握了大量真实情况,取得明显效果,积累了一些宝贵经验。党的十六大提出建立和完善巡视制度之后,巡视工作制度框架逐渐形成。《中国共产党党内监督条例(试行)》首次以党内法规的形式明确规定了巡视工作的主要任务、巡视的方式方法、监督的重点对象等。党的十七大将巡视制度写入党章。党的十八大以来,巡视工作制度化进程加速。《中国共产党巡视工作条例》正式颁布施行,标志着巡视工作进入规范发展阶段。十八届党中央在一届任期内首次实现巡视“全覆盖”。党的十九大和新修改的党章对巡视巡察制度作了强调和规定,巡视巡察具有了党内最高合法性。2018年,十九届中央巡视工作全面展开,巡视工作开启新的航程。巡视工作思想是习近平新时代中国特色社会主义思想的重要方面。基本观点有:巡视是党内监督的战略性制度安排,是反腐败的组织化安排,是发现问题形成震慑的有力手段,是遏制腐败问题的重要治本之策。习近平关于巡视工作重要思想具有鲜明的理论特色和深远的实践意义。本文还尝试从学理层面阐释党内巡视,一是制度惯性论:对历史制度文化的传承与批判;二是政党适应论:对外部环境的积极回应;三是政治净化论:党内自我净化的有效机制;四是政治整合论:中央与地方关系的有效疏通机制;五是政治调节论:地方党政权力与公民权利的平衡机制。从功能分析角度看,当代巡视制度具有“政治体检”功能、民主参与和民主监督功能、政治保障功能。党内巡视工作从发端到演进,从中央到地方,巡视制度不断完善,实现了历史性发展和飞跃,在助推和保障经济社会发展,特别是在推进全面从严治党、加强党风廉政建设和反腐败工作、净化党内政治生态中发挥着日益重要的作用。从工作实践来看,巡视工作在探索中逐步形成了一套实践范式,巡视工作领导体制和制度机制日益完善,常规巡视工作流程逐渐清晰,工作方法不断创新,巡视触角向下延伸,巡视巡察“双剑合璧”效应不断显现。如同其他制度一样,巡视制度的发展必然是一个不断变迁的过程,巡视制度在实践中也暴露出一些需要解决的现实问题,必须完善制度设计,强化工作闭环管理,真正推动巡视发现问题的有效解决。实践中,要探索党内巡视与其他监督形式相衔接相结合的路径模式。一是基于关联度分析的结合路径,包括基于权力关联度的路径选择,基于责任关联度的路径选择,基于利益关联度的路径选择,基于信息关联度的路径选择。二是基于实践层面的结合路径,包括巡视监督与其他党内监督制度相结合,巡视监督与自下而上的监督以及横向之间的监督相结合,巡视监督与执纪执法相结合,巡视监督与审计监督相结合。建立和完善巡视制度,是中国共产党在新时期加强长期执政能力建设、先进性和纯洁性建设,健全党内监督机制的一项重大举措,对全面加强党的各项建设都具有重要意义。中国特色社会主义进入新时代,巡视工作只能加强,不能削弱。必须坚持改革创新的思维、制度化规范化的路径、信息化公开化的手段,不断拓展巡视功能,探索与其他监督制度深度整合的有效路径,真正做到精准发现问题、深入研判问题、联动解决问题、跟踪落实整改,形成巡视工作的完整闭环,最大化地释放巡视制度的红利,充分发挥其在新时代党的建设中的独特作用。更多还原

【Abstract】 Under the background of the development in depth on comprehensively strengthening Party discipline and disciplinary inspection work going in depth,the study of disciplinary inspection has gradually become a hot topic Since the 16th CPC National Congress proposed to establish and improve the disciplinary inspection system,theoretical research in this field is booming.Generally speaking,however,the theoretical achievement on disciplinary inspection lags behind and fails to meet the practical need.Part of the current researches lack diversification in terms of paths and patterns,approaches and means with similar outcomes.Theoretical explanations and empirical analyses are quite inadequate,especially the analyses combined with case study.Having systematically figured out the developing stages and gradual progress of the disciplinary inspection system with adherence to Xi Jinping Thought on Socialism with Chinese Characteristics especially on disciplinary inspection work,this article,applying the basic research methods of political science,attempts to make some explanations concerning the theories of disciplinary inspection mainly from the perspective of comprehensively strengthening Party discipline,and the perspective of promoting the construction of a clean and honest Party and strengthening anti-corruption work.Meanwhile,more empirical researches have been done.Taking advantage of data and cases collected through various channels,the writer does some researches and makes analyses on the practical value of disciplinary inspection,and on the institutional design and innovative paths in practice,in order to better improve the system and work of disciplinary inspection,to promote full and strict governance over the Party in depth,and to push anti-corruption work forward from finding temporary solutions to addressing both the symptoms and root causes.From the view of historical development,there is a long historical origin in the development of the disciplinary inspection system.The disciplinary inspection system is the major form of Chinese ancient supervision system and an important part of the bureaucratic system with Chinese characteristics as well.Although there is historical continuity between intro-Party disciplinary inspection and ancient disciplinary inspection,there are essential differences between them.The New-democratic Revolution Period witnessed the gradual standardizing process of the intro-Party inspection system,going through its phases of embryo,establishment and implementation,along with setbacks in between,which accumulated historical experience for the evolution of the disciplinary inspection system.After the founding of new China,work of disciplinary inspection explored perfection in the twists and turns.Since the third Plenary Session of the 11th CPC Central Committee,it became even more urgent to restore and perfect disciplinary inspection system owing to the need to strengthen intro-Party supervision and anti-corruption work under the new historical conditions.In 1990,the 6th Plenary Session of the 13th CPC Central Committee proposed that the CPC Central Committee and provincial committees can send disciplinary inspection work groups as needed.In 1996,the Central Commission for Discipline Inspection sent inspection work teams for the first time.From 1996 to 2002,the intro-Party disciplinary inspection system was preliminarily developed.Through the pilot patrols in this period,a lot of true information was mastered,obvious effect was achieved,and some valuable experience was gained.The 16th CPC National Congress proposed to establish and improve the disciplinary inspection system.After that,the systematic framework of disciplinary inspection has gradually formed.It was for the first time that Regulations on CPC Intro-Party Supervision(Trial)explicitly stipulated the main tasks,ways and methods of disciplinary inspection,and the key objects of supervision.The 17th CPC National Congress made the content on disciplinary inspection system part of the Party Constitution.Later,the 18th CPC National Congress saw the accelerating institutionalized process of disciplinary inspection.Regulations on CPC Disciplinary inspection was officially enacted,which was the symbol that the work of disciplinary inspection entered into a standardized stage of development.The 18th CPC Central Committee achieved full coverage of disciplinary inspection for the first time during its term of office.The 19th CPC National Congress and the newly revised Party Constitution both laid emphasis on the disciplinary inspection system at prefectural and county levels as well as that above the provincial level,and formulated provisions accordingly.As a result,the system at present enjoys the highest legitimacy and the work of disciplinary inspection opens a new voyage.Thought on disciplinary inspection work is an important part of Xi Jinping Thought on Socialism with Chinese Characteristics.Basically,the Thought stresses disciplinary inspection work as follows.It is the strategic institutional arrangement of intro-Party supervision.It is an organized anti-corruption arrangement.It is also a powerful tool to find out the problems and form a deterrent.It is a significant and fundamental solution to the suppression of corruption as well.Xi Jinping Thought on disciplinary inspection work has distinct theoretical characteristics and far-reaching practical significance.From the view of academical explanations on disciplinary inspection are listed below.Institutional Inertia Theory:inheritance and criticism in regards to historical institutional culture.Party Adaptation Theory:a positive response to the external environment.Political Purification Theory:the effective mechanism of intro-Party self-purification under the influence of "embedded" Party-government relation or"cooperative" Party-government relation.Political Integration Theory:the effective communicating mechanism concerning the relationship between the central and local governments under the unitary structural form of state.Political Regulation Theory:the balance mechanism between the authority exercised by the local party and government and civil rights.From the view of functional analyses,contemporary disciplinary inspection system has those functions including the "political examination" function,democratic participation and supervision function,and political guarantee function.The work of intro-Party disciplinary inspection has achieved historic development and leap from the beginning to the present,from the central leading body to the local organs with its system continuously improved,which has been playing an increasingly important role in boosting and guaranteeing the economic and social development,especially in strengthening the Party building,promoting full and strict governance over the Party,and deepening the work to combat corruption,build a clean government and purify the political ecology in the party.From the work practice,disciplinary inspection has gradually formed a set of practical normal forms in the process of exploration.The systems and mechanisms as well as its leading institution are becoming increasingly perfect with each passing day.The routine inspection procedure is gradually made clear and work methods are constantly innovated.With the constant extension of disciplinary inspection to the grass-root level,the advantages of disciplinary inspection at all levels are becoming more evident.As other system,the development of the system has been undergoing continuous changes.In fact,some practical problems need to be solved are exposed in the context of implementation,which need perfect system design and closed-loop management of the work,promoting the effective solution of problems discovered by disciplinary inspection.It is a must to choose path modes combining intro-Party inspection with other forms of supervision to optimize the closed-loop work,of which one is based on correlation degree analysis,including the combined path selection based on power correlation,accountability correlation,interest correlation and information correlation.The other specific path mode in practice includes the combination of disciplinary inspection with other intro-Party supervision systems,with supervision from bottom to top or at the same level,with discipline execution and law enforcement,and with audit supervision.It is a vital measure in the new period for the CPC to establish and improve the disciplinary inspection system,which can not only strengthen long ruling ability,maintain advancement,enhance purity,and improve the intro-Party supervision mechanism,but also play an important role in promoting the Party’s construction in an all-round way.Under the background of Socialism with Chinese characteristics entering new era,the disciplinary inspection work should be further strengthened,and never be weakened.We should stick to the thinking of reform and innovation,institutionally standardized paths,informatized and publicized means in order to unceasingly expand the functions of disciplinary inspection,explore the effective paths of deep integration with other supervision systems.Through accurately finding problems,in-depth analyzing problems,jointly solving problems,tracking rectification implementation,a closed loop of disciplinary inspection is formed,which maximize the institutional advantages,and give full play to its unique role in the construction of the Party in the new era.更多还原