本文關鍵詞：當代中國決策體制的形成與變革，由筆耕文化傳播整理發(fā)布。

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Social Sciences in China

The Reform and Development of the Decision-making System in Contemporary China

Zhou Guanghui

To cite this article: Zhou Guanghui (2012) The Reform and Development of the Decision-making System in Contemporary China, Social Sciences in China, 33:2, 25-45, DOI:To link to this article:

Published online: 14 May 2012.

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10 December 2015, At: 08:30

Social Sciences in ChinaVol. XXXIII, No. 2, May 2012, 25-45

The Reform and Development of the Decision-making System in Contemporary China*

Downloaded by [Kings College London] at 08:30 10 December 2015 Zhou GuanghuiCollege of Administration, Jilin University中國的決策體制是中國政治體制的中樞系統(tǒng)，也是決定中國發(fā)展的關鍵因素。以中國共產(chǎn)黨為領導核心的決策體制是在中國共產(chǎn)黨領導革命、創(chuàng)建新中國的長期歷史中形成的，具有其歷史合理性。決策體制從建立到改革開放前呈現(xiàn)集中化的趨勢。決策權力日趨集中的體制，存在著決策結(jié)構專業(yè)化分工程度不高、制度化程度低、偏重經(jīng)驗決策、決策過程封閉和缺乏自我修正與調(diào)節(jié)機制等弊端。改革開放后，決策體制改革的重點，是在決策結(jié)構、決策方式和決策機制三個主要方面推進決策的民主化、科學化和法治化建設。決策體制改革的實踐證明，以決策民主化、科學化和法治化為導向的決策體制改革，成功應對了中國由經(jīng)濟和社會迅速變遷所帶來的各種挑戰(zhàn)。從政治發(fā)展的角度看，決策體制改革呈現(xiàn)出的基本趨勢是：從個人決策向民主決策、從經(jīng)驗決策向科學決策、從決策組織高度集中向決策組織結(jié)構分化、從封閉式?jīng)Q策向開放式?jīng)Q策、從被動參與決策向自主參與決策、從決策非制度化向決策制度化轉(zhuǎn)變。一個中國共產(chǎn)黨主導、多方參與、科學論證、過程開放、依法運行的決策模式在決策體制改革的實踐中初步形成。關鍵詞：決策體制集中決策民主決策科學決策依法決策The decision-making system is the backbone of China’s political system and a crucial factor determining its development. The decision-making system with the CPC lying at the

core results from the CPC’s long history of leading China’s revolution and establishing the People’s Republic of China; therefore it has historical rationality. Decision-making was centralized over the period from the foundation of the PRC to reform and opening up. This centralized decision-making system had faults such as a low level of specialized division of *　This is one of the projects of China-U.S. Political Science Scholars Forum funded by the China-U.S. Exchange Foundation. The persons in charge of this project are: from the Chinese side, Professor Yu Keping, and from the U.S. side, Professor Kenneth Lieberthal. This is also a listed National Social Science Foundation Major Project entitled “A Study of the Promotion of Social Justice and Government Management,” with project no.10zd&040.

ISSN 0252-9203? 2012 Social Sciences in China PressDOI: ://www.tandfonline.com

26Social Sciences in China

labor, low institutionalization, an undue emphasis on experience, a closed decision-making process and the absence of any self-correcting and adjustment mechanisms. The reform of China’s decision-making system in the post-reform period has attached much importance to promoting democratic, scientific and law-based decision-making with regard to decision-

making structures, modes and mechanisms. Practice proves that this reform has successfully met the challenges arising from rapid social and economic transition. Viewed from the perspective of political development, it involves an evolution from personal to democratic, from experience-based to scientific, from centralized to decentralized, from closed to open, from passive to active participation and from non-institutionalized to institutionalized decision-making. A decision-making model has gradually taken shape that is characterized by CPC domination, participation by multiple entities, scientific proof, open process, and law-based operation.

Keywords: decision-making system, centralized decision-making, democratic decision-

making, scientific decision-making, law-based decision-making

Downloaded by [Kings College London] at 08:30 10 December 2015 Since reform and opening up, China has changed from a backward agricultural country into an industrial manufacturing power. As to China’s development, there is not much controversy either at home or abroad, but as to factors leading to this development, opinions vary. In his new book on Chinese politics, American scholar Kenneth Lieberthal points out: “The challenge of understanding China is heightened by the fact that its experience does not fit neatly into many of the conceptual models of Western social science…This country of unprecedented vastness and variety is inevitably developing its own unique blend of attitudes and conditions.”1 For a long time, influenced by economic determinism, academic circles in China often simplistically and stereotypically believed that the economy determines politics and political development is the result of economic factors, and so politics is often viewed as the dependent variable. This way of thinking cannot explain the fact that since the founding

of the People’s Republic of China, under the same leadership of the Communist Party of China (CPC), the country’s economic and social state was significantly different before and after reform and opening up. Although reform and opening up has brought extensive and profound changes to Chinese society, the basic pattern of the state-led social development has not changed. The state’s leadership is basically realized by public policy formulation and implementation. To better understand development and change in China, one cannot simply discuss the phenomena they reflect, but must look at the decision-making system that determines and influences contemporary China, because this, in a sense, is central to China’s political system and is the key factor in China’s development. “Reform of the Chinese system in the 1980sproceeded in cycles or waves, rather than a straight linear fashion. Each cycle 1　Ken Lieberthal, Governing China: From Revolution through Reform, p. 6.

Zhou Guanghui27

began with a new policy initiated by reform leaders.”2The main purpose of this paper is not to explore how China’s decision-making system has influenced the country’s development, but to discuss the formation and historical rationality of this decision-making system, its basic characteristics, problems and crises, and changes and trends by using the historical institutional analytical method and political development theory, combined with the practice of the changes in contemporary China’s decision-making system.

Downloaded by [Kings College London] at 08:30 10 December 2015 I.Reform of Contemporary China’s Decision-making SystemThe reform of contemporary China’s decision-making system initiated at the end of 1978 is an important part of China’s reform and opening up policy and the main content of its political reform. According to the political theory of new institutionalism, institutional change can be divided into spontaneously induced institutional change and government-initiated coerced institutional change. The reform of China’s decision-making system belongs to the latter type and was led by the CPC. The Third Plenary Session of the Eleventh Central Committee of the CPC held in 1978 not only realized a strategic shift in the Party’s central task from taking class struggle as the key link to economic development, but also started the process of reform of China’s decision-making system. On August 18, 1980, in the enlarged meeting of the Political Bureau of the Central Committee of the Party, Deng Xiaoping delivered a speech entitled “On the Reform of the System of Party and State Leadership,” proposing the task of reforming the Party and state’s political decision-making system. On July31, 1986, in his speech entitled “Democratic and Scientific Decision-making Is an Important Topic of Political Reform,” the then Vice Premier Wan Li clearly pointed out that the basic objective of reform of the decision-making system was to realize democratic and scientific decision-making. This speech represented the collective will of the CPC Central Committee.3 In 1987, in its political report to the Thirteenth Party Congress, the Party clearly raised “the Party’s democratic and scientific decision-

making.” This was the first time in the CPC’s history that this proposal had been raised in such a document, and meant promoting democratic and scientific decision-making had become the will of the whole party. In November 2002, in his political report to the Sixteenth Party Congress, Jiang Zemin stressed that “Correct decision-making is an important prerequisite for success in all work,” and proposed general requirements for reform and improvement of 2　Carol Lee Hamrin, China and the Challenge of the Future: Changing Political Patterns, p. 3.3　See Selected Works of Wan Li, pp. 514-532. After reading Wan Li’s speech, Deng Xiaoping commented: “Very good! Publish it in full!” At the same time, Chen Yun also read the speech and gave his comments: “This speech resolved a long-term major problem unresolved by our party.” See Fang Linlin, “For Scientific and Democratic Decision-making: The 20th Anniversary of the Birth of Soft Sciences in China, Documentary no. 1.” This means that democratic and scientific decision-making is the goal of decision-making set by the Central Committee of the CPC.

28Social Sciences in China

the decision-making mechanism.4 In October 2007, in the political report to the Seventeenth National Congress of the CPC, Hu Jintao stressed the need to “expand the citizens’ orderly participation in political affairs at each level and in every field,” and he pointed out that the focus of scientific and democratic decision-making was “to increase transparency and expand public participation.”5 We will discuss four aspects of the reform of China’s decision-making system, i.e., its objectives, structure, methods and mechanisms.

Firstly, the objectives of the reform of the decision-making system. Placing decision-making on a more scientific, democratic and rule-of-law basis is a manifestation of the inner logic of the process of the CPC’s transition from a revolutionary to a ruling party, and also an objective requirement for implementing a modern decision-making system. If we say that democratic decision-making reflects value rationality, then scientific decision-making governed by the rule of law reflects instrumental rationality. Taking more democratic, scientific and law-based decision-making as the objective of reform of the decision-making system is on the one hand a profound summary of the painful lessons of the “Cultural Revolution,” and on the other it expresses a renewed understanding of the laws of building socialism and the correct comprehension of the CPC’s style of governance. Still more, it shows a deep understanding of the laws of decision-making. The primary task of reform of China’s decision-making system is to clarify the objectives of the reform. A correctly defined objective not only indicates the direction for reform of decision-making structures, mechanisms and modes, but also provides a path for the reform of the specific contents of the decision-making system. There is a principle in the theory of management by objectives: to promote future-oriented development, the first thing is to define development objectives; without objectives, measures and choice of path will be meaningless. Democratic decision-making is an intrinsic requirement for realizing people’s democracy and is an institutional arrangement that integrates interest claims, encourages the free airing of views and reflects the people’s will. Scientific decision-making involves introducing science into the decision-making process, using modern scientific technologies and methods, following scientific procedures and using scientific arguments to provide technical support for correct decision-making. Decision-making based on the rule of law brings the subject, process and contents of decision-making into the scope of legal regulation so that they are in strict accordance with the law. In a modern decision-making system, democratic decision-making, scientific decision-making and law-based decision-making are inseparable. Without democracy, opinions and view cannot be freely expressed, the wisdom of experts and the masses cannot be pooled and people’s fundamental interests and demands cannot be reflected, so that decision-making 4　Jiang Zemin, “Build a Moderately Prosperous Society in All Respects and Create a New Situation in Building Socialism with Chinese Characteristics: Report to the Sixteenth National Congress of the Communist Party.”5　Hu Jintao, “Hold High the Great Banner of Socialism with Chinese Characteristics and Strive for New Victories in Building a Moderately Prosperous Society in All Respects: Report to the Seventeenth National Congress of the Communist Party.”Downloaded by [Kings College London] at 08:30 10 December 2015

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  本文關鍵詞：當代中國決策體制的形成與變革，，由筆耕文化傳播整理發(fā)布。