中共地方領導幹部選任機制變革—「票決制」與「公推直選」之研究

中共「十七大」以來，確立縣級以上的全委會票決制與縣級以下的「公推直選」等地方領導幹部選任改革方向，其成效在擴大選任過程中的不確定性，以解決「任命制」下的權力集中與「選舉制」下的權力流失。本文從威權國家改革幹部選任制度的策略選擇為基礎，比較中共推展「票決制」與「公推直選」的原因與動力。透過文獻檢閱、各省試點資料及田野訪談，發現遴選團體（selectorate）的組成是受行政級別所決定，且「票決制」在試點範圍與制度化程度明顯領先「公推直選」。其原因必須從地方政績需求、體制相容性，特別是高層領導支持為考量。但改革衝擊書記與組織部的人事權，還衍生包括兩種合法性、任命制下的升遷管道、遴選者的理性選擇與利益分贓等問題，加上習近平接班後的集權措施，以致在「十八大」後再次修正，重新強化書記與組織部門在幹部選任的權重。這樣的制度回潮，看到黨國體制下制度化與反制度化的矛盾，不但限制了未來的發展路徑，也讓黨國「支配性」屬性不變，如何超越「選舉主義」這個表面的層次是中共應該深入思考的議題。

關鍵字

票決制；公推直選；黨管幹部；黨內民主；威權主義

並列摘要

The 17th CPC National Congress has set up various mechanisms, such as local party committee's voting system and direct election via public recommendation in township, to enlarge the uncertainty of electors and avoid the dilemma between the centralization of power under the appointment system and the forfeiture of power under the election system. This article discusses the strategies of reform for selecting and appointing cadres in Authoritarianism Regimes, and compare with CCP's local party committee's voting system and direct election via public recommendation. This article collected the data covering 31 provinces between 2007 and 2012, and through the in depth interviews to examine the rule of nomination and appointment. The experimental experience, who compose the selectorates are according to the administrative rankings, and due to the reasons including local political achievement and principle of party-controlled cadres, shows local party committee's voting system is more welcome than that of direction election one. The support from higher rank of leadership is the key in this reform. The result of these two systems not only crash the personnel power within party and organizational department, it also shatter the legality of promotion channel. This shifts the reform made by Xi Jinping in his term during the 18th CPC National Congress in enhancing the power and importance of party committee secretary and organizational department for election. The article also analyzes the difficulties that the Party has faced in the process of transition.

並列關鍵字

local party committee's voting system ； direct election via public recommendation ； principle of party-controlled cadres ； intra-party democracy ； authoritarianism

參考文獻

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中共地方領導幹部選任機制變革—「票決制」與「公推直選」之研究

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