【作者】 刘旭；

【导师】 周伟；

【作者基本信息】 四川大学 ， 宪法学与行政法学， 2022， 博士

【摘要】 自2013年党的十八届三中全会开启中国全面深化改革新阶段始,中央领导小组以新形态和高密度的运作态势走进国家治理行动的前台,党中央也加快了对这一组织的党内法规制度建设进程。2018年党的十九届三中全会将部分涉及党和国家重大工作的领导小组升格为委员会作为党中央机构改革的重大内容,首次正式使用“党中央决策议事协调机构”的名称,将其定位为党对重大工作的领导体制机制。2020年中共中央颁行《中国共产党中央委员会工作条例》(后文简称《中央委员会工作条例》),明确规定党中央决策议事协调机构履行针对党和国家工作中的重大问题的“决策部署”职能;而从2017年起,全国人大常委会在制定有关领域法律中直接规定党中央决策议事协调机构为相关领域国家领导机构,决策部署相关工作。截至目前,共有10部党内法规、7部法律、1部行政规章直接规定党中央决策议事协调机构。党的十九届六中全会通过的《中共中央关于党的百年奋斗重大成就和历史经验的决议》将党中央决策议事协调机构作为在中国特色社会主义新时代坚持党的全面领导方面取得的重大历史成就加以说明;2022年党的二十大报告继续强调:“完善党中央决策议事协调机构,加强党中央对重大工作的集中统一领导。”它发展了《中国共产党章程》(后文简称《党章》)规定的中央委员会—中央政治局—政治局常委会的党中央三级决策体系,成为落实“四个全面”战略布局的支撑性制度。《中央委员会工作条例》第七条规定:各级人大、政府、政协、监察机关、审判机关、检察机关,武装力量,各民主党派和无党派人士,人民团体,企事业单位,基层群众性自治组织,社会组织等,都必须自觉接受党中央领导。党中央决策议事协调机构通过对国家各重大事务的全面覆盖,进一步强化了党中央对各类各级国家机关的集中统一领导,推进了党总揽全局、协调各方之下的国家治理体系和治理能力建设。党的十九届二中、三中全会分别就修改宪法和党和国家机构改革作出部署,两次连续部署分别将“中国共产党领导是中国特色社会主义最本质的特征”写入宪法总纲、开启了塑造优化协同高效的党和国家机构职能体系的进程,构建了宪法“中国共产党领导”条款所引申的党的领导制度体系,和国家机构章节规定的国家机构之间的规范关系。新时代党中央决策议事协调机构决策部署机制的立法规定和组织实践,反映了宪法上“中国共产党领导”规范的内涵,阐释了部分法律中“中央领导机构”“决策和议事协调”的含义,展现了党的领导制度体系和国家机构的规范关系、规范性原理以及具体规范结构。本研究以党中央决策议事协调机构的党内法规和法律的立法规定为基础,通过全面整理归纳中央全面深化改革委员会、中央全面依法治国委员会、中央财经委员会为等新时代主要党中央决策议事协调机构的决策部署实践素材,阐述了这一重大党中央集中统一领导制度的基本规定、规范结构、规范效力等,论证了现行宪法中党和国家机构职能体系的规范属性、基本原理原则和具体分工。本研究表明:党中央决策议事协调机构在性质上属于党中央决策部署层级的延伸,其决策部署职能源于宪法上中国共产党领导的社会主义政治制度、以及党内法规和国家法律的直接规定,在结构上源于党和国家机构职能体系的“决策权—执行权-监督权”分工,具有拘束国家机构贯彻落实的法效果。通过研究党中央决策议事协调机构决策部署的规范性问题,探讨了在我国国家治理体系下,国家公权力实际结构中党中央领导机制和国家机构的职能关系;分析了党中央通过决策部署全面领导国家重大工作,实现党中央集中统一领导和支持各国家机关依法依章程独立履职相统一的法治逻辑。第一章是整理分析法律、党内法规规范,总结党中央决策议事协调机构的制度概况。通过全面梳理分析党中央决策议事协调机构的相关党内法规、法律规定,本章研究辨析了原有的“议事协调机构”与“决策议事协调机构”的组织概念,提出在党内法规正面规定了“决策议事协调机构”后,应当以这一概念为长久以来党中央议事协调类组织的法定概念,其名称中包含的“决策、议事、协调”都是其决策部署职能的不同环节步骤和功能的侧重而不是独立的职能类型,厘清了党中央决策议事协调机构的决策部署职能、督促落实功能与不同机构工作侧重的区别。通过分析党中央决策议事协调机构与党的中央组织的关系,论证了它是党中央为推进国家治理体系和治理能力现代化而调整了党中央工作机关和中央国家机关党组决策领导国家机构的框架、直接部署党和国家中、微观重大工作的领导制度。它的决策部署的效力范围进一步表明它发展了中央委员会-中央政治局-政治局常委会的三级决策体系,成为新时代党中央全面领导国家机构履职的保障机制。第二章是制度的历史演进回溯。本章以新中国成立前后和改革开放为时间节点,以具有重要组织机制建构意义的中央领导小组(党中央决策议事协调机构前身)为梳理线索,分别研究了“三人军事指挥小组”、延安时期的中央总学委和中央学习组、1958年五个中央领导小组、特殊历史时期中央领导小组的特殊职权,以及全面建设社会主义现代化时期以中央财经领导小组为代表的小组制度的调整。历史梳理研究说明该制度一直是党中央在各项事业中实施集中统一领导的有力措施;在国家政权建立后,进一步成为执政党统一领导国家机构履行职能的重大机制,并在与国家机构建立稳定的组织关系和工作程序过程中,逐步完成了制度的规范化建设。这说明党中央决策议事协调机构决策部署的法治逻辑植根于它与国家机构的实践关系中。第三章是对党中央决策议事协调机构决策部署实践的分析。基于2013年以来中央全面深化改革委员会、中央全面依法治国委员会、中央财经委员会等党中央决策议事协调机构超过500件的决策部署事项,通过整理、分类、比对党中央决策议事协调机构决策部署和国家机构履职的实践关系,呈现了二者间非常明确的职权衔接、分工关系,论证了国家机构决策行为的规范原理,揭示了我国宪法制度中国家公权力的深层次结构。本章研究展示了我国国家公权力从组织启动到执行落实的全过程,它说明我国重大工作中国家公权力的真实配置结构超出了宪法国家机构章节的覆盖范围,其实质是党中央在宪法法律范围内集中统一领导国家机构的法治机制。第四章在前文展示了党中央决策议事协调机构决策部署国家机构履职的基础上,论述了这种机制的基本原理。一是坚持和加强党的全面领导的体制和宪法结构,奠定了党中央决策议事协调机构在组织和规范上的必要性。说明了无产阶级先锋队政党领导人民武装建立国家政权的历史进路,必然在社会主义政权中产生党的全面领导的政治体制,党的全面领导必然相应的要求在宪法上建立党集中领导部署国家机构履职的统一领导体系,进而使决策议事协调机构等党的全面领导制度的党内法规职能统一于国家公权力,而不只是“溢出”的影响力、支配力。二是党中央集中统一领导所塑造的国家公权力结构,使党中央决策议事协调机构相应配置了决策权。党中央决策议事协调机构的决策部署揭示的国家公权力深层次结构,直接反映了党中央从十六大到十九大报告连续提出的“决策(权)-执行(权)-监督(权)”社会主义民主政治的权力运行机制,而党的十九届三中全会关于深化党和国家机构改革的战略部署,则具体阐明了这种权力运行机制是高效协同的党和国家机构职能体系的“决策权—执行权—监督权”分工体系。其中,党中央行使完整的党和国家工作的决策部署职权,在支持国家机构依法履职的前提下实现对国家公权力的组织发起、部署推进。党的二十大强调要坚持和加强党中央集中统一领导,健全总揽全局、协调各方的党的领导制度体系,完善党中央重大决策部署落实机制,完善党中央决策议事协调机构,进一步确证了由党中央集中统一领导国家机构的这种分工体系。党中央集中统一行使国家重大事项决策权使得其决策部署与国家机构职能履行之间,产生了与科层制组织上下级之间同构的职权效力。第五章是对党中央决策议事协调机构决策部署机制的展望。本章分析了党中央决策议事协调机构进一步制度化的方向,提出基于提升党的领导能力的理念,可以在机构设置的标准、条件,管辖、分工上进一步优化。在具有系统集成特点的运行机制下,完善党中央决策议事协调机构与中央国家机关、设立在中央国家机关的党组的领导与被领导关系。随后提出可以根据十九届三中全会关于建设党中央决策议事协调机构的要求,尝试构建统一的党中央决策议事协调机构体系,或可将党中央工作机关中的议事协调类机构、国务院的议事协调机构、地方省委的议事协调类机构,围绕党中央决策议事协调机构衔接、归并、统筹设置。最后,参考《中央委员会工作条例》《中国共产党党务公开条例》《中华人民共和国全国人民代表大会组织法》《中华人民共和国全国人民代表大会常务委员会议事规则》等的立法思路,结合党中央领导机构的领导能力建设,尝试完善党中央决策议事协调机构工作规则及其办事机构工作规则的思路,优化党中央决策议事协调机构的会期制度、审议机制、听取工作汇报机制、专项工作小组的工作规则等。更多还原

【Abstract】 Since the Third Plenary Session of the 18th Communist Party of China Central Committee in 2013 opened a new stage of China’s comprehensive deepening of reform,the Party Central Leading Group has entered the forefront of national governance actions with a new form and high-density operation posture,and the Party Central Committee has also accelerated the process of building internal party laws and regulations for this organization.In 2018,the Third Plenary Session of the19th Communist Party of China Central Committee upgraded some leading groups involving major work of the Communist Party of China and the state to committees as a major part of the institutional reform of the Central Committee of the Communist Party of China,and officially used the title of"decision-making and deliberative coordination body of the Communist Party of China Central Committee"for the first time,positioning it as the leadership system and mechanism of the Communist Party of China for major work.In 2020,members of the Central Committee of the Communist Party of China promulgated the Regulations on the Work of the Central Committee,which clearly stipulates that the decision-making and deliberative coordination body of the Party Central Committee shall perform the function of"decision-making and deployment"on major issues in the work of the Communist Party of China and the state;Since 2017,the national legislature has begun to try to directly stipulate in the national law that the decision-making and deliberative coordination body of the Party Central Committee is the highest national leading body in related fields,and decision-making and deployment of related work.Up to now,there are 10 internal party regulations,7 laws,and 1 departmental rule directly stipulating the decision-making and deliberative coordination body of the Communist Party of China Central Committee.The Resolution of the Communist Party of China Central Committee on the Major Achievements and Historical Experiences of the Party’s Centennial Struggle,adopted by the Sixth Plenary Session of the 19th Communist Party of China Central Committee,continued to explicitly"strengthen the functions and roles of the decision-making and deliberative coordination organs of the Communist Party of China Central Committee";The report of the 20th National Congress of the Communist Party of China in 2022 shows that comprehensively strengthening the leadership of the Communist Party of China,ensuring the authority and centralized and unified leadership of the Central Committee of the Communist Party of China,and ensuring that the Communist Party of China plays the role of the core of leadership in controlling the overall situation and coordinating all parties are the major historical achievements of the Communist Party of China in the past decade,and the decision-making and deliberative coordination body of the Central Committee of the Communist Party of China is undoubtedly one of the most outstanding achievements.The decision-making and deliberative coordination body of the Party Central Committee has developed the three-level decision-making system of the Central Committee of the Communist Party of China stipulated in the Constitution of the Communist Party of China,the Political Bureau of the Central Committee,and the Standing Committee of the Political Bureau,and has become a supporting system for the implementation of the"four comprehensive"strategic layout.Article 7 of the"Regulations on the Work of the Central Committee"stipulates:People’s congresses at all levels,governments,Chinese People’s Political Consultative Conference,supervisory organs,judicial organs,procuratorial organs,armed forces,democratic parties and personages without party affiliation,mass organizations,enterprises and institutions,grassroots mass autonomous organizations,and social organizations must consciously accept the leadership of the party Central Committee.By deepening its overall leadership over all aspects of state affairs,the decision-making and deliberative coordination organs of the Party Central Committee have further strengthened the centralized and unified leadership of the Party Central Committee over various levels of state organs,and promoted the national governance system and governance capacity building under the Communist Party of China’s overall control and coordination of all parties.The Second and Third Plenary Sessions of the Nineteenth Central Committee of the Communist Party of China respectively made arrangements for amending the Constitution and the reform of the Communist Party of China and state institutions,and wrote"the leadership of the Communist Party of China as the most essential feature of socialism with Chinese characteristics"into the text of the Constitution twice,starting the process of shaping an optimized,coordinated and efficient functional system of the Communist Party of China and state institutions,and profoundly building the Constitution"Leadership of the Communist Party of China"The normative relationship between the leadership system of the Communist Party of China and the state institutions stipulated in the chapter on state institutions as extended in the article.The textual provisions and institutional practices of the decision-making and deployment mechanism of the decision-making and deliberative coordination organs of the Party Central Committee in the new era reflect the connotation of the norms of"leadership of the Communist Party of China"in the Constitution,explain the true meaning of"central leading organs"and"decision-making and deliberative coordination"in some laws,and show the normative relationship,normative principles and principles and specific normative structures of the leadership system of the Communist Party of China and state institutions.Based on the internal party regulations and legislative provisions of laws of the Party Central Committee’s decision-making and deliberative coordination body,this study comprehensively summarizes the decision-making and deployment practical materials of the major Party Central Committee decision-making and deliberative coordination bodies in the new era,such as the Central Committee for Comprehensively Deepening Reform,the Central Committee for Comprehensively Governing the Country According to Law,and the Central Financial and Economic Commission,expounds the basic provisions,normative structure,normative effectiveness and characteristics of this major Party Central Committee’s centralized and unified leadership system,and demonstrates the normative attributes of the functional system of the Communist Party of China and state institutions in the current Constitution.Basic principles and specific division of labor.This study shows that the decision-making and deliberative coordination body of the Party Central Committee belongs to the extension of the decision-making and deployment level of the leading organ of the Party Central Committee in nature,and its decision-making and deployment originates from the socialist political system led by the Communist Party of China in the Constitution,as well as the direct provisions of internal party regulations and national laws,and from the division of labor system of"decision-making power-execution power-supervision power"of the party and state institutions in terms of structure,which has the legal effect of restricting the implementation of state institutions.By studying the normative issues of decision-making and deployment of the decision-making and deliberative coordination organs of the Party Central Committee,this paper discusses the functional relationship between the decision-making and deliberative coordination organs of the Party Central Committee and the state institutions in the actual structure of state public power under the modern national governance structure.This paper analyzes the rule of law logic of the Party to comprehensively lead the country through decision-making and deployment,realize the centralized and unified leadership of the Party Central Committee and support the independent performance of duties by various state organs in accordance with the law and the charter.The first chapter is a collation and analysis of laws and internal party regulations.By comprehensively sorting out and analyzing the internal party regulations and legislative examples in laws and regulations and laws that are decided and deployed by the decision-making and deliberative coordination organs of the Party Central Committee,this chapter studies and analyzes the original organizational concepts of"deliberative coordination body"and"decision-making and deliberative coordination body",and proposes that after the internal party regulations positively stipulate the"decision-making and deliberative coordination body",this concept should be used as the legal concept of the deliberative and coordinating organization of the Party Central Committee for a long time,and the"decision-making,deliberation,coordination"contained in its name It is the focus of different links and functions of its decision-making and deployment functions rather than independent function types,clarifying the difference between the decision-making and deployment functions and the supervision and implementation functions of the decision-making and deliberative coordination organs of the Party Central Committee and the work focus of different institutions.By analyzing the relationship between the decision-making and deliberative coordination organs of the Party Central Committee and the central organization of the Party,it is proved that it is the framework of the Party Central Committee’s working organs and the Party Group of the Party Group of the Central Committee to directly deploy the middle and micro state governance of the Party and the major work of the Party and the state in order to promote the modernization of the national governance system and governance capacity.The scope of its decision-making and deployment further shows that it has developed a three-level decision-making system of the Central Committee-Politburo-Politburo Standing Committee,and has become a guarantee mechanism for the Party to comprehensively lead the process of state institutions in fulfilling their constitutional functions and powers in the new era.The second chapter is a retrospective of the historical evolution of institutions.Taking the time nodes before and after the founding of New China and the reform and opening up,and the Central Leading Group(the predecessor of the Party Central Committee’s decision-making and deliberative coordination body)as clues,this chapter takes the Central Leading Group(the predecessor of the Party Central Committee’s decision-making,deliberative and coordinating body)as clues,and examines the"three-member military command group,"the Central General Study Commission and the Central Study Group during the Yan’an period,the five central leading groups in 1958,the special functions and powers of the Central Leading Group during the Cultural Revolution,and the adjustment of the group system represented by the Central Financial and Economic Leading Group during the period of comprehensive socialist modernization.Historical combing and research show that this system has always been a powerful measure for the Party Central Committee to exercise centralized and unified leadership in various undertakings;After the establishment of state power,it has further become a major mechanism for the ruling party to uniformly lead state organs to perform their functions,and in the process of establishing stable organizational relations and work procedures with state institutions,the standardized construction of the system has been gradually completed.This shows that the rule of law logic of the decision-making and deployment mechanism of the decision-making and deliberative coordination body of the Party Central Committee is rooted in its practical relationship with state institutions.The third chapter is an analysis of the operation practice of the decision-making and deployment mechanism of the decision-making and deliberative coordination organ of the Party Central Committee.Based on more than 500 decision-making and deployment matters of the Party Central Committee’s decision-making and deliberative coordination organs such as the Central Committee for Comprehensively Deepening Reform,the Central Committee for Comprehensively Governing the Country According to Law,and the Central Financial and Economic Commission since 2013,by sorting,classifying,and comparing the decision-making and deployment of the decision-making and deliberative coordination organs of the Party Central Committee and the practical relationship between the performance of duties by state institutions,a very clear linkage between the two is presented,the normative connotation and institutional logic of the decision-making behavior of state institutions are demonstrated,and the"leadership of the Communist Party of China"in the Constitution is explained.The standardized meaning of state public power reveals the deep hierarchy of state public power in China’s constitutional system.This chapter studies and shows the operation process of China’s state public power from organizational initiation to implementation and implementation,which shows that the real allocation structure of state public power in the governance of major work in China exceeds the coverage of the chapter on state institutions of the Constitution,and is the rule of law mechanism for the Party Central Committee to centralize and unify the leadership of state institutions within the scope of the Constitution and laws.The forth chapter discusses the logic of internal party laws and regulations for the decision-making and deliberative coordination organs of the Party Central Committee to make decisions and deploy state institutions to perform their duties.First,adhere to and strengthen the logic of the Communist Party of China’s overall leadership.It explains the historical approach of the new democratic revolution in which the proletarian vanguard party leads the people to establish state power by armed force,and that a political system of comprehensive leadership of the Communist Party of China will inevitably emerge in the socialist regime,and that the comprehensive leadership of the Communist Party of China will inevitably correspondingly require the establishment of a unified leadership system in which the Communist Party of China exercises centralized leadership and deploys state organs to perform their duties in the constitution.Second,the logic of centralized and unified leadership of the Party Central Committee.The deep hierarchy of national public power revealed by the decision-making and deliberative coordination mechanism of the Party Central Committee directly reflects the power operation mechanism of socialist democratic politics of"decision-making(power)-implementation(power)-supervision(power)"successively proposed by the Party Central Committee from the report of the 16th to the 19th National Congress,and the strategic deployment of the Third Plenary Session of the Nineteenth Central Committee of the Communist Party of China on deepening the reform of the Communist Party of China and state institutions,and the strategic deployment of the Fourth Plenary Session of the Nineteenth Central Committee on promoting the modernization of the national governance system and governance capacity.It specifically clarifies that this power operation mechanism is an efficient and coordinated division of labor system of"decision-making power-execution power-supervision power"of the functional system of the Communist Party of China and state institutions,in which the Party Central Committee exercises the decision-making and deployment power of the complete party and state work,and realizes the organization and deployment of state public power under the premise of supporting state institutions to perform their duties in accordance with the law.The fifth chapter is a prospect for the establishment of the decision-making and deployment system of the decision-making and deliberative coordination organs of the Party Central Committee.This chapter analyzes the direction of promoting the further institutional construction of the decision-making and deliberative coordination organs of the Party Central Committee,and puts forward the standards,conditions,jurisdiction and division of labor that can be set in the institutions based on improving the party’s national governance capacity and implementing the strategy of ruling according to the constitution and ruling according to law.Under the governance mechanism with the characteristics of system integration,improve the leadership and leadership relationship between the decision-making and deliberative coordination organs of the Party Central Committee and the central state organs,and the Party groups established in the central state organs.Subsequently,it was proposed that according to the requirements of the Third Plenary Session of the 19th Communist Party of China Central Committee on building a decision-making and deliberative coordination organ of the Party Central Committee,a unified system of decision-making and deliberative coordination organs of the Communist Party of China Central Committee could be tried to be established,or the deliberative and coordinating organs in the working organs of the Party Central Committee,the deliberative and coordinating organs of the State Council,and the deliberative and coordinating organs of the local provincial party committees could be connected,merged and coordinated around the decision-making and deliberative coordination organs of the Communist Party of China Central Committee.Finally,with reference to the"Regulations on the Work of the Central Committee","Regulations on the Openness of Party Affairs of the Communist Party of China","Organic Law of the National People’s Congress of the People’s Republic of China","Rules of Procedure of the Standing Committee of the National People’s Congress of the People’s Republic of China"and other legislative ideas,combined with the leadership capacity building of the leading organs of the Party Central Committee,try to improve the rules of the deliberative work of the decision-making and deliberative coordination organs of the Party Central Committee and the working rules of their offices,and summarize the practical experience of the work of the decision-making and deliberative coordination organs of the Party Central Committee and their offices.Optimize the meeting period system,the mechanism for reviewing documents,the mechanism for hearing work reports,and the working rules of special working groups in the decision-making and deployment mechanism of the decision-making and deliberative coordination organs of the Party Central Committee.更多还原