【作者】 龚跃；

【导师】 杨春福；

【作者基本信息】 南京大学 ， 经济法， 2014， 博士

【摘要】 干部工作是国家治理和社会管理的重要内容和手段。干部工作已成为社会公众普遍关注的热点和焦点,推进干部工作制度体系建设具有重要意义。本文围绕法治化进程中的干部工作制度体系建设这一主题,从干部概念着手对干部工作制度体系建设的基本内涵作了厘定,对法治化与干部工作制度体系建设的相关性进行了分析,并结合我国干部工作制度体系建设实践,对我国干部工作制度体系建设进行了理论思考,同时在借鉴西方公务制度的基础上,对加强我国干部工作制度体系建设尝试性提出对策建议。本文所研究的“干部”特指“党政领导干部”。干部工作是指“为了促进事业发展和干部成长,中央和各级党委及其职能部门按照管理权限和特定程序,通过选拔任用、考核评价、教育培训、管理监督、激励保障等方式对干部进行管理的活动。”干部工作制度体系是有关干部工作的党的制度和国家法律的有机整体。干部工作制度体系建设的目标是干部工作法制化,即干部工作法律化、制度化。干部工作制度体系建设的要求是内容要完整科学、结构要合理协调、运行要高效畅达。法治化和干部工作制度体系建设紧密相关且相互促进。法治化是干部工作制度体系建设的前提和基础,干部工作制度体系建设有利于推动法治化进程。法治化进程中的干部制度体系建设的中心环节是正确处理好党的制度与国家法律之间的关系。这就要求在法治化进程中,要坚持党的制度与国家法律并存并重,坚持党的制度不得与国家法律相抵触,适时推动党的制度向国家法律转化。建国后我国干部工作制度体系建设进程大体可分为起步创立时期、动荡混乱时期、恢复探索时期、持续推进时期、全面发展时期等五个时期。通过多年来的探索和实践,我国干部工作制度体系建设发生了一定的变化,取得了初步的成效,也获得了有益的经验。同时也存在干部工作制度还不够完备、干部工作民主化程度不高、干部工作公信力有待加强、干部监督不够、干部工作缺乏必要责任追究等问题,究其原因主要是受历史文化沉积、经济社会发展、政治体制改革等方面的影响。针对我国干部工作制度体系建设的主要问题,本文试图以相关理论的视角进行思考。例如,以整体性治理理论的视角思考干部工作制度不完备的问题,以权利理论的视角思考干部工作民主化问题,以信任理论的视角思考干部工作公信力问题。这些理论视野上的思考,给法治化进程中的干部工作制度体系建设带来了诸多启示。西方公务员制度体现了科学化与法制化相结合、竞争性和稳定性相结合、通才型和专业化相结合、民主化和人文性相结合的价值取向。西方公务员制度与我国公务员制度在制度目的、政治原则、管理机构、人员分类、用人标准、管理手段、适用范围、利益代表等方面有着本质区别,因此要从国情出发,用“扬弃”的方法加以学习和借鉴。通过中西方公务制度的比较,对完善我国公务员制度具有如下启示:(1)进一步完善公务员的制度建设;(2)进一步细化公务员的分类管理;(3)进一步提高公务员的基本素质;(4)进一步重视公务员的利益诉求。加强我国干部工作制度体系建设的基本原则应该包括法治原则、党管干部原则、民主原则、程序原则和以人为本原则。从干部工作客体和干部工作内容这两个维度来看,我国干部工作制度体系建设的框架内容应包括分类制度和专项制度这两方面。在干部分类管理制度建设中,重点做好继续推进制度创新、着力加强制度配套两方面工作。在专项制度建设中,要以改革创新的精神逐步健全干部选拔任用、考核评价、教育培训、管理监督和激励保障制度,整体推进干部工作制度体系建设。本文提出加强我国干部工作制度体系建设的具体路径主要有加大干部工作的制度供给、增强干部工作制度的执行力、提高干部工作制度的社会化程度三个方面。具体来说,为加大干部工作的制度供给,必须加强干部工作制度规划、提高干部工作制度层次和质量;为增强干部工作制度的执行力,必须严格按制度做好干部工作、加大干部工作制度执行情况的监督、提高组织人事干部的业务素质;为提高干部工作制度的社会化程度,必须加强干部工作制度的普及宣传教育,做好干部工作制度体系建设的理论研究。更多还原

【Abstract】 As an important part and method of state government and social management,cadre work has become a hot issue attracting public attention,which makes it important to build a well-designed rule system of cadre work.Oriented with the theme of cadre work rule system building in the process of rule by law,this article articulates the connotation of cadre work rule system building with the definition of cadre work,analyzes the correlation of cadre work rule system building and rule by law,reflects the theories of cadre work rule system building with its practice in our country,and raises proposals by drawing experience of the western civil servant systems.Cadres in this article designate leading cadres of CPC and institutions ruled by the government.Cadre work refers to the administrative work carried out by different levels of party committees and its functional departments on cadre selection,evaluation,education,supervision and inspiration in order to promote the cause of the party and the development of the cadres.Cadre work rule system is the integration of party rules and laws on cadre work.The purpose of cadre work rule system building is the legislation of cadre work in the form of laws and regulations.The requirements of cadre work rule system building is completeness,consistency and effectiveness.The process of rule by law is closely correlated with cadre work rule system building.Rule by law is the premise and basis of cadre work rule system building,while the latter facilitates the former.The central point of cadre work rule system building in the process of rule by law is to coordinate the party regulations and laws,which entails respecting both party rules and laws,insisting that party rules should not violate laws,and transforming party rules into laws on proper occasions.Since the founding of the People’s Republic,the process of cadre work rule system building can be roughly divided into five periods-forming period,turbulent period,recovering period,improving period and all-round developing period.Through years of exploration and practice,cadre work rule system building have made changes,achieved initial results and gained valuable experiences in our country.Meanwhile,problems still exist-incomplete rule system,low level of democratic participation,credibility yet to be strengthened,and lacks of supervision and punishment,which can be attributed to the influences of cultural and historical background,economic and social development and political reformation.With respect to these problems,the article endeavors to view cadre work rule system building in theoretical perspectives,e.g.viewing the incomplete cadre work rule system from the perspective of holistic governance theory,viewing the low level of democratic participation with the theories on right,viewing malfunction of credibility from the perspective of the trust theory.Western civil servant systems manifest the combination of the principles of science and law,the competitiveness and stability,the requirements of general and specific skills,as well as the value of democracy and humanity.Western civil servant systems are different to ours in purposes,political principles,organization,staff division,recruitment standards,administrative methods,scope of application,and representation of rights,so that we should learn their experiences with accept-and-renounce method according to our domestic situations.By comparing the western civil servant systems and China’s,four proposals are raised to improve the civil servant system of our country:1.continue to improve the civil servant rule system building;2.continue to enhance the classified administration of civil servants;3.continue to improve the personal competence of civil servants;4.continue to concern seriously the appeals and requests of civil servants.To strengthen the cadre work rule system,we must obey the principles of rule by law,party supervising cadres,democracy,proper procedure,and people-orientation.From the dimension of object and content of cadre work,the rule system of our country should include classified system and ad hoc system.In the classified system building,we should lay emphasis on innovation and supporting systems.In the ad hoc system building,we should improve the mechanisms of cadre selection,evaluation,education,supervision and inspiration with a reformative and creative attitude.This thesis indicates three paths of cadre work rule system building:enhancing rule supply of cadre work,strengthening the enforcement of cadre work rules,and improving the level of socialization of cadre work rule system.Specifically speaking,enhancing rule supply of cadre work requires improving the planning,quality and level of cadre work rules;strengthening the enforcement of cadre work rules requires respecting the rules,supervising rule enforcement,and improving the professional competence of cadres in the organization and personnel departments;improving the level of socialization of cadre work rule system requires popularizing cadre work rules and promoting relative theoretical researches.更多还原