摘 要中国政府常务会议制度是具在中国特色的一项政府决策科学制度。自1982年首次写进《中华人民共和国宪法》以来 ，经过30多年的发展，民主和科学已成为该项制度两大基石，形成了包括决策主体、决策范围、决策议程、决策规则等4大支撑主体和9个具体规定的完整制度体系，发展成为地方政府公共政策决策的法定集体平台。本文以邓小平理论为指导，把常务会议制度纳入国家治理体系范畴进行分析。从制度源头出发，追寻该项制度设立的历史目标、构成体系、实践运用和历史作用，着力构建认识和分析该项制度的框架，探索建立地方政府常务会议制度是平衡政府决策权力平台的模型。为了验证框架和模型的科学性，本文采用案例研究的方式进行实证。我国单一制国家的性质决定了县级以上地方各级政府的同质性。在其中选取一个样本进行研究，其结论具有代表性。因此，本文以L市政府常务会议制度运行情况为例，考察该市自1987年以来的常务会议制度发展和执行情况。选取该市政府2011年11月至2014年2月之间召开的45次常务会议、审议的526个决策议题作为典型样本，作者现场列席了这些会议，掌握了丰富的第一手资料和访谈资料。这些样本和资料为研究工作提供了有力的支撑，保证了论文论证过程的完整性和结论的真实性。在当前国家推进治理体系和治理能力第五个现代化的背景下，本文围绕实现地方政府常务会议制度现代化这个主题，全面审视常务会议制度在政府决策系统和决策过程中的历史地位和作用，把议程建立和方案选择作为研究的核心，通过回答“谁来建立议程？谁来制定政策备选方案？谁来选择方案？”三个方面的问题，完整再现地方政府常务会议制度运行过程，从而揭开地方政府公共政策决策过程的神秘面纱。本文研究认为，常务会议制度自建立以来，对规范地方政府决策行为，解决行政权力高度集中带来的“一言堂”“家长制”等问题起到了十分重要的作用，实现了政府决策从“个人”为中心向“集体”为中心的制度性转移。研究发现，地方政府常务会议制度在运行过程中也还存在问题，比如议题来源渠道单一、政策备选方案缺乏公开性和科学性、表决规则缺乏民主制约机制等。本文根据国家现行法律与党和政府新要求，结合实践，从依法规范决策议程、修改方案选择规则两个方面提出4条政策建议，以期能对促进这项制度的现代化有所裨益。
AbstractExecutive meeting of the the Chinese Government system is a government scientific system with Chinese characteristics. Since 1982, for the first time written into the People's Republic of China Constitution, after more than 30 years of development, democracy and science have become the two cornerstones of the system, formed, including decision-makers, policy areas, the policy agenda, decision-making rules specified by 4 pillars of subjects and 9 complete system, developed into a local public policy decisions of statutory collective platforms.Based on Deng Xiaoping theory as guidance, category system into the Executive meeting of the State governance system for analysis. Starting from the source system, trace object, structure of the system established by the history, practice, and history of the system, focused on building awareness and analysis of the institutional framework, setting up Executive meeting of the local government system is a model of balanced government decision-making power platform. To validate the scientific framework and model, this paper uses case studies demonstrate it. A unitary State is determined by the nature of local governments at or above the county level of homogeneity. Studies in which to select a sample, its conclusions are typical. Therefore, to l Executive meeting of the municipal government system run as an example, the Executive meeting of the investigation, since 1987, the development and implementation of the system. Select the City Government 45 meeting, held between November 2011 to February 2014, 526 policy issues considered as a typical sample, the author attended these meetings, have a wealth of first-hand information and interview data. These samples provides strong support for research and information, ensure the integrity and authenticity of the conclusions of the thesis. In current national advance governance system and governance capacity fifth a modernization of background Xia, paper around achieved local Government Executive Conference system modernization this theme, full review Executive Conference system in Government decision system and decision process in the of history status and role, put agenda established and programme select as research of core, through answered "who to established agenda? Who to developed policy alternative programme? Who to select programme?" Three problems and complete reproduction system of local Government Executive meeting is running, thus unlocking the mysteries of local public policy decision making process. This study suggests that Executive meeting system since it was established to standardize the decision-making behavior of local governments, solving the highly centralized power brought about by the "orthodoxy" and "patriarchal" played a very important role in issues such as, implements the Government policy from "personal" centered "collective"-centered institutional transfers. Studies have found that local Government Executive meeting there are problems in the system while it is running, for example issues single sources, lack of openness and scientific policy options, such as lack of democracy, voting rules and restriction mechanism. According to current national legislation and the party and the Government's new requirements, combined with practical, standardize the policy-making agenda, revised the selection rule 4 policy recommendations on two aspects, in order to help to promote the modernization of this system.
