I. Reasons for the reform (background):
1. External cause: After the 17th National Congress of the Communist Party of China, the reform of government institutions was put on the agenda. It is true that the current administrative system has not adapted to social and economic development.
Second, the direct cause: Shunde has created a huge economic aggregate in a small area of 806 square kilometers. Last year, the industrial output value was more than 390 billion, and so far this year, the industrial output value has exceeded 400 billion. Our administrative system is difficult to adapt to the rapidly growing economic aggregate. Non-governmental organizations and government organizations are not divided, which leads to high operating costs and low operating efficiency of the government, and intensified competition for departmental power, departmental interests and departmental interests.
Third, the root cause: in the past, there were three major problems in the overall government structure. First, the functions of various departments within the government overlap, and the problem of multi-head management is serious; Second, in the party and government system, functions overlap, such as the Central Organization Department and the Ministry of Personnel, Publicity Department of the Communist Party of China and the Ministry of Culture, and the State Administration of Radio, Film and Television. Third, in the relationship between government and society, there is no division between government and social organizations.
Second, the main content and characteristics of Shunde's large-scale system model ("Party-government linkage" model)
main content
The existing 4 1 party and government organizations will be integrated into 16 departments, of which the number of government departments will be adjusted from 29 to 10, and the organization will be streamlined by nearly two-thirds. After the adjustment, six party committees were established, all of which are co-located with government agencies; Set up 10 government agencies.
There are 16 party and government organizations in the whole region, including discipline inspection organs, five departments of party committees, nine government departments and public security bureaus in all districts. The main person in charge of the party and government institutions is a district leader or a deputy department-level cadre. District Party committee secretary, district head, deputy secretary and 1 executive deputy district head may not concurrently be the head of major departments. Establish the responsibility system of department heads and realize the flattening of party and government decision-making and management.
For example, the four district offices will be co-located with the district committees; The responsibilities of the New Bureau of District Culture and Sports (District Copyright Bureau and District Tourism Bureau) except for cultural licensing, tourism market supervision and comprehensive cultural law enforcement, and the responsibilities of the District Sports Bureau except for sports licensing are assigned to the Propaganda Department of the District Party Committee (District Culture and Sports Tourism Bureau).
The head of Shunde 16 department is held by the Standing Committee and the deputy, aiming at improving the execution. However, there are still overlapping contents in daily government management, and it is still necessary to set up special coordination leaders.
The main task of the reform of the Ministry system is to transform government functions, straighten out the relationship of responsibilities, and proceed in line with the principle of accelerating the separation of government and enterprise, government capital, government and market intermediary organizations, clarify the key points of Foshan municipal government's performance of duties, and straighten out the division of responsibilities among departments. Under this principle, the original 37 government departments under the jurisdiction of Foshan Municipal Government were finally simplified to 3 1 department.
Its biggest feature is the joint office and the cancellation of the newly established administrative institutions after the merger. Among them, four departments merged into two offices, and the newly formed five departments merged the function of 18. The former Municipal Personnel Bureau, the Municipal Labor and Social Security Bureau, the Municipal Construction Bureau (the Municipal Real Estate Administration), the Municipal Transportation Bureau, the Municipal Water Conservancy Bureau and the Municipal Bureau of Urban Administration and Law Enforcement are no longer retained.
The biggest feature of Shunde's reform plan is the reform idea of large-scale system, which is also the reform path of party and government linkage.
The idea of merging similar projects to reduce government departments. Enterprises and citizens are concerned about whether the efficiency of the government has improved and the content of public services has increased when it works for citizens and enterprises after the reform. With reference to the national standards of developed market economy, the government departments will be merged according to the standards of resource planning, urban and rural construction, social management, economic development, market supervision and government supervision.
The biggest highlight is the establishment of the organizational structure of party and government integration, which fundamentally changed the mechanism of party and government walking on two legs in the past. Because the functions are merged rather than abolished, they are just renamed, so they are not contradictory to the current system. So far, Shunde is the only county in China that has carried out the reform of party and government integration, and no other place has taken such a big step.
Thirdly, the tracking and evaluation of the operation effect of Shunde large-scale system model
One is that the most unique part of Shunde's reform plan is the linkage between the party and government. Shunde's reform is the reform of party and government organizations, not the reform of non-governmental organizations. Anyone familiar with China's administrative system knows that although there is a word difference between them, their meanings are totally different. Shunde is undoubtedly the first person to eat crabs. The level of Shunde has a special advantage in this exploration. This tentative reform first broke through the original understanding of "separation of party and government". In the 30-year reform path of reform and opening-up, the separation of party and government is a reform compared with the disadvantages before the reform and opening-up, but its actual effect is that a set of party institutions and a set of government institutions often overlap each other, leading to repeated administration, complicated personnel and unclear responsibilities. For the ruling party how to change "ruling" into "administration", the China * * * production party is also constantly exploring. Therefore, as a result of the linkage between the party and the government in Shunde's reform plan, some original government agencies have been merged into party committees, such as audit bureau, personnel bureau, press and publication bureau of culture, sports, radio, film and television, tourism bureau, judicial bureau, civil affairs bureau, and social organizations such as workers, youth and women. In other words, the party Committee is in charge of it more solidly. As long as the party and government overlap, they are generally placed under the party Committee. Secondly, in many local governments, the party and government used to work in a compound, but later they all worked separately. Formal separation does not clearly separate functions. Now the functions are clearly separated, but it may lead to the misleading of "two governments" This is worthy of attention in Shunde's joint reform of party and government.
Secondly, another commendable aspect of Shunde's reform plan is the principle of merging similar projects. The guiding principle of party-government linkage is to merge all party-government institutions with similar functions according to social needs to avoid duplication of institutions and overlapping of functions. It should be said that this is one of the keys to the greater reform in Shunde than in Shenzhen. The linkage between the party and the government and the merger of similar projects are the main factors that greatly reduce the number of institutions by nearly two-thirds. This kind of streamlining may be unprecedented, with great determination and exploration, which is a great shock to the institutional reform in various places and truly embodies the true meaning of the "large-scale system" reform. Few administrative reforms have been so streamlined since the founding of New China. In contrast, Shenzhen decreased from 46 to 3 1 name, and Shunde decreased from 4 1 name to 16. Of course, the fewer institutions, the better, but certainly not the bigger the better. The "big department system" is not worthy of "few institutions", and its "big" has no reason.
Third, after the innovation and reform of the operation mechanism, the heads of six major departments in Shunde/KLOC-0 are all the current deputy heads of the Standing Committee of the District Committee and district councillors, which has changed the previous two links of coordination between the Standing Committee of the District Committee, the deputy heads in charge and the deputy secretary-general, and the deputy secretary-general of flat management has been reduced from 8 to 3.
Fourth, the rapid reform plan was highly confidential before it was promoted. On the morning of September 16, a cadre mobilization meeting was held to announce the plan. In the afternoon, the National People's Congress held a meeting of its Standing Committee to appoint and remove relevant leaders. On the morning of June 17, a meeting of the district committee and government was held to announce the list of members of the major departments of 16. At the same time, these departments will be unveiled in a centralized manner, and all the work should be basically completed by the end of June 10.
In addition to the above two breakthroughs, Shunde's reform is also very conservative, that is, "not reducing one person." Streamlining institutions and diverting personnel has always been the basic measure of administrative reform. Shunde reform does not carry out personnel diversion, which enables institutional reform to reduce friction and proceed smoothly. However, there are not many deputy posts in Shunde, but it has created a new position, namely, government members and presidium members. It is said that the idea came from a State Councilor in the State Council. This kind of creation ensures that "there will be no reduction in personnel and no reduction in treatment", which is a great pioneering work. However, in the long run, we should consider "only reducing without increasing" and naturally eliminate relevant posts. Although Shunde's G D P is 1.5 trillion, only 900 civil servants are not too many, but if it corresponds to civil servants in western cities and GDP, there is nothing to be proud of. Of course, it is another matter to regard urban development strategy as an important employment arrangement path. A large population and a large amount of G D P are not the reasons for the expansion of the civil service. At present, the civil service is huge, mainly because the government has too much control. As long as the transformation of government functions is not in place, civil servants will be busy and the ranks will swell.
Fifth, the improvement of Shunde large-scale system model.
First of all, we must make it clear that there are three major problems in the reform: how to connect with the public. The public doesn't care about the process of reform. They only care about the result of the reform. They don't want to know how the departments will merge, but they are very concerned about whether the merger will have any effect. Large departments do not necessarily mean high efficiency. If the small department lacks organic integration, then the large department is just a piece of skin, and under the skin, the small department is still a mess.
Then there is how the departments run in. It is easy for a civil servant to adapt to one department, but it is much more difficult for one department to adapt to another department or even several departments to adapt to each other. Each department has its own office processes and habits. These processes and habits have been developed over the years. The sudden revolution will inevitably affect office efficiency. Therefore, how to make all departments run in as soon as possible is an urgent problem.
The second is how to contact the superior. Many departments were merged in this reform. Taking Shunde Quality Supervision Bureau as an example, it was merged into Shunde District Market Safety Supervision Bureau, and there was no quality supervision bureau in Shunde since then. In the future, Guangdong Quality Supervision Bureau and Foshan Quality Supervision Bureau will have tasks. Which department should they contact? In the long run, these problems will be solved, but at present, it will really make people feel at a loss.
Therefore, we come to the conclusion that public participation can be enhanced by collecting public opinions in the lobby of the administrative service center in advance. In Shunde's reform of the Ministry system, although civil servants have not been abolished, the leadership team has changed. Therefore, it is necessary to reform the personnel system and create a level playing field. When I was working in Shunde Administrative Service Center, many departments were merged into new departments due to the adjustment of the reform of the Ministry system. At work, I feel that the guide plate is not enough and the introduction is not detailed enough. The relevant government departments should intensify the reform and make it easier for the masses to handle affairs by guiding and diverting.
Read supplementary materials and reference materials.
On the reform of the Ministry system;
Importance: backward management systems such as institutional overlap manage advanced productive forces. The ultimate goal of the reform is to release the productive forces to the maximum extent, so that the socialist market economy can further develop on the soil of Shunde, and we must get out of the strange circle of "simplification, expansion, simplification and re-expansion".
Objective: To enrich the connotation of government services. Build a public service-oriented government and make public power fair and just.
The reform of "Ministry system" is an integrated system design of the state power operation mechanism as a whole. In addition to the Ministry of Foreign Affairs, the Ministry of Public Security, the Ministry of Security and other political institutions, other departments should be integrated according to the ideas of most departments. Although this is a step-by-step process, it is impossible to achieve it in one step.
At the same time of the integration of internal government departments, it is also necessary to solve the problem of overlapping functions of the party and government systems, and the functions of the government and social organizations should also be distinguished. Only by observing the reform of the Ministry system in the operation of the whole state power structure can we further realize its significance and importance.
The remarkable feature of the reform of the "Ministry system" government organization is that it pays more attention to the legalization, emphasizing the legalization of the power operation process and the artistry of the power in the operation process.
Obstacles to implementation:
Scientific operation of power subdivision and interest division
The bondage of thinking inertia (China sets up party and government institutions based on the Soviet Union. Despite several institutional reforms in the past 60 years, the basic structure has not changed. Policymakers need insight and courage to break through their own thinking orientation. )
The significance of reform:
On the surface, this institutional reform is institutional merger, but in essence, it is a profound change in the organizational structure of the party and the government and a major change in government functions. Through reform, Shunde has established an administrative management system in which decision-making, execution and supervision are mutually restricted and coordinated, which has explored the way for the reform of county-level administrative units throughout the country. Shunde 1992 reform is a comprehensive system reform with property rights as the core and administrative system reform as the supporting goal, and it is a reform to liberate productive forces. Although property rights are the core, the administrative system reform has released the productive forces to the maximum extent, laying the foundation for Shunde's great development since then. Compared with 1992, this reform aims at establishing an efficient, clean and service-oriented government, and explores how the government can adapt to the new management model and further promote it. To build a service-oriented government is to build an open, fair and just government system.
Shunde Ministry system (administrative effect of joint office)
(1) Effectively promote the transformation of government functions and realize the Ministry system.
The core of the reform of the Ministry system is the transformation of government functions. It is necessary to effectively integrate existing government agencies and change the phenomenon of numerous government agencies and overlapping functions. By reducing the number of institutions and reducing the difficulty of inter-departmental coordination, the government operation is more in line with the macro-management of the market economy and the role orientation of public services. Therefore, whether it can effectively sort out the responsibilities and functions of government departments and solve the phenomenon of excessive departments and overlapping functions in government institutions has become a symbol of the success of the reform of the Ministry system. (Necessity of Reform) Shunde District integrates the existing 4 1 party and government organizations to form 16 large departments with clear responsibilities, which is far lower than the institutional limit of "no more than 24 districts set up in county-level cities" proposed in the Opinions on Institutional Reform of People's Governments of Cities and Counties in Guangdong Province. Shunde District has thus become a truly large-scale system government among local governments in China.
(2) Optimize the structure of human resources and solve the problem of personnel diversion.
The diversion of redundant personnel in the reform of local government's large-scale system has always been a major problem faced by the reform of local large-scale system, and it is also one of the reasons why previous government institutional reforms have fallen into the "simplification-expansion" cycle. Shunde District has solved the problem of unbalanced staffing in the past and formed a more reasonable human resource structure by making overall arrangements for human resources among major departments. To solve the problem of the placement of surplus personnel, we should follow the principle of putting people first.
In the process of reform, it is necessary to properly arrange all cadres and personnel involved in the adjustment, ensure that their interests are not harmed, and fully mobilize their enthusiasm. At the same time, after the reform, a series of supporting personnel system schemes, such as the reform of public institutions and the reform of government employees, were established to ensure a smooth transition of personnel.
(3) Improve the power and responsibility distribution system and clarify the power and responsibility relationship of all departments.
In the process of reform, Shunde District has optimized the combination of departments, avoided the practice of simply splitting institutions, ensured the "chemical reaction" of the merged institutions, and realized "1+ 1 >: 2". In strict accordance with the requirements of the consistency of powers and responsibilities, the right must be responsible, and the corresponding responsibilities should be clarified. The whole region has formed a work pattern of big planning, big construction, big supervision, big culture and big guarantee, effectively preventing the phenomenon of shirking responsibility and repeated management. The content of reform, but as a local government, its reform is the key to the reform of administrative system. The successful experience of Shunde district administration can be replicated if it is placed in the context of the reform of county-level local governments in China.
Enlightenment to the reform and innovation of local governments in China
(A) according to local conditions, explore innovative models
On the one hand, the innate advantages of Shunde District cannot be separated from the smooth progress of Shunde District Liaison Office. Shunde District, as the vanguard of China's reform and opening-up, has rich experience in reform pilots and gratifying achievements accumulated in previous reform pilots. On the other hand, in 1999, Guangdong Province gave Shunde the right to exercise the management of prefecture-level cities and was directly responsible to the province. Compared with Shunde District, most local governments in China are more or less restricted by their own conditions or reform and adjustment authority. Therefore, we must carry out reform and innovation practice according to local conditions.
(2) Grasp the key points to ensure the effectiveness of the reform.
The administrative reform in Shunde district has firmly grasped the core content of the reform of the central government's large-scale system-transforming government functions. Joint office administration effectively integrates the functions of party and government organs and forms a 16 departmental system with reasonable division of labor, clear responsibilities and coordination. Co-office also strives for the actual effect of reform, pays attention to the implementation of specific policies and the solution of practical social problems, and forms a pattern of great supervision, great design and great justice, which has achieved good social effects in actual operation. This also inspires other regions to grasp the key points of reform in the practice of reform in order to achieve practical results.
(C) overall planning to reduce resistance to reform
The success of any reform, on the one hand, needs a strong driving force, on the other hand, it needs to reduce the resistance of reform. In order to reduce the resistance of personnel reform, Shunde District has adopted the strategy of "people follow things" and transferred the whole department according to the division of functions, keeping the establishment and the number of civil servants basically unchanged. In order to gain the support of leading cadres, Shunde District adopted the strategy of "personnel will not be demoted". Because it did not destroy the overall interest pattern, the joint governance was smoothly promoted. In the process of reform, all regions should pay attention to the influence caused by the resistance to reform, make overall plans, properly arrange the diversion personnel, and rationally allocate the power and responsibility relations of various departments.
(4) Step by step and promote a long-term mechanism.
The joint administrative reform in Shunde seems to be a flurry, but in fact it is a gradual, steady and sustained long-term reform practice process. At present, the liaison office of the Commission for Discipline Inspection and Supervision, which has been popularized in China, was established by learning from the practice of the liaison office. Therefore, a large-scale reform such as the reform of local government's large-scale department system cannot be achieved overnight. Local governments should persevere, formulate reform plans scientifically, implement them step by step, and constantly reform and improve government functions to meet the development requirements of society and the times.