【en】当代中国决策体制的形成与变革

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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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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中国的决策体制是中国政治体制的中枢系统，也是决定中国发展的关键因素。以中国共产党为领导核心的决策体制是在中国共产党领导革命、创建新中国的长期历史中形成的，具有其历史合理性。决策体制从建立到改革开放前呈现集中化的趋势。决策权力日趋集中的体制，存在着决策结构专业化分工程度不高、制度化程度低、偏重经验决策、决策过程封闭和缺乏自我修正与调节机制等弊端。改革开放后，决策体制改革的重点，是在决策结构、决策方式和决策机制三个主要方面推进决策的民主化、科学化和法治化建设。决策体制改革的实践证明，以决策民主化、科学化和法治化为导向的决策体制改革，成功应对了中国由经济和社会迅速变迁所带来的各种挑战。从政治发展的角度看，决策体制改革呈现出的基本趋势是：从个人决策向民主决策、从经验决策向科学决策、从决策组织高度集中向决策组织结构分化、从封闭式决策向开放式决策、从被动参与决策向自主参与决策、从决策非制度化向决策制度化转变。一个中国共产党主导、多方参与、科学论证、过程开放、依法运行的决策模式在决策体制改革的实践中初步形成。关键词：决策体制集中决策民主决策科学决策依法决策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

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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.

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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.

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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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