二、准确把握这场深刻变革的鲜明特征
II. Accurately grasping the distinctive features of this profound transformation文章源自英文巴士-https://www.en84.com/5925.html
文章源自英文巴士-https://www.en84.com/5925.html
习近平总书记在十九大报告中明确要求，坚决破除一切不合时宜的思想观念和体制机制弊端，突破利益固化的藩篱，吸收人类文明有益成果，构建系统完备、科学规范、运行有效的制度体系，充分发挥我国社会主义制度优越性。这次深化党和国家机构改革的举措充分体现了习近平总书记的重要要求，具有以下鲜明特征。文章源自英文巴士-https://www.en84.com/5925.html
文章源自英文巴士-https://www.en84.com/5925.html
In the report to the 19th National Congress of the CPC, General Secretary Xi Jinping made clear the requirements that we get rid of all outdated thinking and ideas and all institutional barriers, break through the blockades of vested interests, and draw on the achievements of other civilizations so as to develop a set of institutions that are well conceived, fully built, procedure based, and efficiently functioning, and do full justice to the strengths of China’s socialist system. Fully embodying the major requirements that General Secretary Xi has set forth, the measures to further the reform of Party and government institutions have the following distinctive features.文章源自英文巴士-https://www.en84.com/5925.html
文章源自英文巴士-https://www.en84.com/5925.html
（一）加强党的全面领导是核心问题。党政军民学，东西南北中，党是领导一切的。《决定》明确提出，加强党对各领域各方面工作领导，是深化党和国家机构改革的首要任务。为完善坚持党的全面领导的制度，《决定》要求，一是建立健全党对重大工作的领导体制机制。首先要加强党对涉及党和国家事业全局的重大工作的集中统一领导。优化党中央决策议事协调机构。加强和优化党对深化改革、依法治国、经济、农业农村、纪检监察、组织、宣传思想文化、国家安全、政法、统战、民族宗教、教育、科技、网信、外交、审计等工作的领导。其他方面的议事协调机构，要同党中央决策议事协调机构的设立调整相衔接。二是强化党的组织在同级组织中的领导地位，更好发挥党总揽全局、协调各方作用。三是更好发挥党的职能部门作用，加强归口协调职能，统筹本系统本领域工作。四是统筹设置党政机构，党的有关机构可以同职能相近、联系紧密的其他部门统筹设置，实行合并设立或合署办公。五是推进党的纪律检查体制和国家监察体制改革，组建国家、省、市、县监察委员会，实现对所有行使公权力的公职人员监察全覆盖。文章源自英文巴士-https://www.en84.com/5925.html
文章源自英文巴士-https://www.en84.com/5925.html
1. The core issue of this reform is to strengthen overall Party leadership.文章源自英文巴士-https://www.en84.com/5925.html
文章源自英文巴士-https://www.en84.com/5925.html
The Party exercises overall leadership over all areas of endeavor in the country. The Decision clarifies that strengthening Party leadership in all areas and aspects of work is the primary task for continuing the reform of Party and government institutions. In order to improve and uphold the system of overall Party leadership, the Decision sets forth the following requirements. First, it requires that we establish and improve the systems and mechanisms for Party leadership over major initiatives. To do so, we should start by strengthening centralized and unified leadership of the Party over major initiatives that have an overall bearing on the undertakings of the Party and the country. The Decision also stipulates that we optimize the CPC Central Committee’s bodies for decision-making, deliberation, and coordination. Further, it requires that we strengthen and optimize the Party’s leadership over tasks regarding the reform, the rule of law, the economy, agriculture and rural areas, disciplinary inspection, organization, communication and culture, national security, the judiciary, the united front, ethnic groups and religion, education, science and technology, the Internet and IT, diplomacy, and auditing. Bodies for deliberation and coordination in other areas should be established or adjusted in conformity with the CPC Central Committee’s structure for decision-making, deliberation, and coordination. Second, it stipulates that we strengthen the leadership role of Party organizations over other organizations at the same level, and better exert the role of the Party in exercising overall leadership and coordinating overall initiatives. Third, it requires that we give better play to the role of the Party’s functional departments in coordinating the work of other institutions in the same sector or area. Fourth, it requires that we coordinate the establishment of Party and government institutions. Party institutions can be established in coordination with other closely related institutions that have similar functions, so that they merge with one another or work together as one office while keeping separate identities. Fifth, it stipulates that we advance reform of the Party’s disciplinary inspection system and the national supervision system, and establish supervisory commissions at the national, provincial, municipal, and county levels, so as to ensure that supervision covers everyone working in the public sector who exercises public power.
（二）改革范围的全面性是突出特点。与以往机构改革主要涉及政府机构和行政体制不同，这次机构改革是全面的改革，包括党、政府、人大、政协、司法、群团、社会组织、事业单位、跨军地，中央和地方各层级机构。除完善坚持党的全面领导的制度外，一是优化政府机构设置和职能配置。要求合理配置宏观管理部门职能，深入推进简政放权，完善市场监管和执法体制，改革自然资源和生态环境管理体制，完善公共服务管理体制，强化事中事后监管。二是统筹党政军群机构改革。要求完善党政机构布局，深化人大、政协和司法机构改革，深化群团组织改革，推进社会组织改革，加快推进事业单位改革，深化跨军地改革。三是合理设置地方机构。要求确保集中统一领导，赋予省级及以下机构更多自主权，构建简约高效的基层管理体制，规范垂直管理体制和地方分级管理体制等。
2. A prominent feature of this reform is its full coverage.
Different from previous institutional reforms that mainly dealt with government institutions and administrative systems, the current institutional reform is comprehensive, covering Party institutions, government institutions, the people’s congresses, the Chinese People’s Political Consultative Conference (CPPCC), judicial institutions, people’s organizations, social organizations, government-affiliated institutions, military and civilian institutions, and institutions at all levels from central to local. In addition to improving and upholding the system for overall Party leadership, the Decision calls us to focus our efforts on the following three aspects. First, it requires that we optimize the setup and functions of government institutions. To do so, we need to rationally define the functions of departments for macroeconomic management, further streamline government administration and delegate power, improve market oversight and relevant law enforcement systems, reform the systems for managing natural resources and the environment, improve the systems for managing public services, and enhance ongoing and ex-post supervision. Second, it stipulates that we coordinate the reforms of Party, government, military, and public institutions. To do so, we need to improve the setup of Party and government institutions, further reform of the people’s congresses, the CPPCC, judicial institutions, and people’s organizations, advance the reform of social organizations, step up the reform of government-affiliated institutions, and further the reform of military and civilian institutions. Third, it requires the rational setup of local institutions. To do so, we need to ensure centralized and unified leadership, endow institutions at the provincial level and below with greater autonomy, establish community-level management systems that are simple and highly efficient, and standardize the vertical management system and tiered management system at the local level.
（三）改革的深度具有革命性。这次改革之所以具有革命性，就在于不回避权力和利益调整，而是要对现有的传统既得利益进行整合，重塑新的利益格局。《决定》提出，要坚决破除制约使市场在资源配置中起决定性作用、更好发挥政府作用的体制机制弊端，围绕推动高质量发展，建设现代化经济体系，加强和完善政府经济调节、市场监管、社会管理、公共服务、生态环境保护职能，调整优化政府机构职能。如明确要求减少微观管理事务和具体审批事项，最大限度减少政府对市场资源的直接配置，最大限度减少政府对市场活动的直接干预。放宽服务业准入限制，全面实施市场准入负面清单制度。设立国有自然资源资产管理和自然生态监管机构，完善生态环境管理制度，统一行使全民所有自然资源资产所有者职责，统一行使所有国土空间用途管制和生态保护修复职责，统一行使监管城乡各类污染排放和行政执法职责。加快实施政社分开，克服社会组织行政化倾向。实现政事分开，不再设立承担行政职能的事业单位。面向社会提供公益服务的事业单位，逐步推进管办分离，强化公益属性，破除逐利机制。
3. The reform is revolutionary.
As it does not avoid making adjustments regarding power and interests, and instead rebalances existing vested interests to create a new framework of interests, this reform is revolutionary in nature. The Decision points out that we need to resolutely remove institutional barriers that restrain the market from playing the decisive role in resource allocation and the government from better exercising its designated functions. Furthermore, with a view to promoting high-quality development to establish a modern economic system, it pointed out the need to strengthen and improve the role of the government in economic regulation, market oversight, social management, public services, and environmental protection, and adjust and optimize government functions. The following are specific requirements laid out in the Decision document. It explicitly requires reducing micromanagement and the number of items subject to government approval, as well as minimizing the government’s direct allocation of market resources and direct intervention in economic activities. The Decision also requires that we relax restrictions on entry into service industries, and fully implement a market access system based on negative lists. It requires that we establish regulatory agencies to manage state-owned natural resource assets and monitor natural ecosystems, and improve environmental management systems. These agencies will, in a unified way, perform the duties of the owner of public-owned natural resource assets, the duties of regulating the use of all territorial space and protecting and restoring ecosystems, and the duties of monitoring the discharge of all pollutants in urban and rural areas and conducting administrative law enforcement. The Decision requires that we step up the separation of government functions from social organizations, and address the tendency of social organizations becoming quasi-government institutions. It requires that we relieve public institutions of government functions, and no longer establish public institutions that perform administrative functions. As for public institutions that provide services to society, we will let them run their own day-to-day operations while maintaining supervision over them, and see that they focus on serving public interests instead of merely seeking profits.
（四）改革的设计体现了科学性。科学性是关系到整个改革方案是否符合实际需要、是否符合客观规律，从而决定改革成败的关键。针对我国机构编制科学化相对滞后，一些领域权力运行制约和监督机制不够完善等问题，《决定》坚持优化协同高效原则，强调必须优化党和国家机构设置和职能配置。一是坚持一类事项原则上由一个部门统筹、一件事情原则上由一个部门负责，加强相关机构配合联动，避免政出多门、责任不明、推诿扯皮。二是要求精干设置各级政府部门及其内设机构，科学配置权力，减少机构数量，简化中间层次，推行扁平化管理，形成自上而下的高效率组织体系。三是明确要求正确理解和落实党政职责分工，理顺党政机构职责关系，保证党实施集中统一领导，保证其他机构协同联动、高效运行。要求减少多头管理，减少职责分散交叉。四是组建退役军人管理保障机构，协调各方面力量，更好为退役军人服务。五是省、市、县各级涉及党中央集中统一领导和国家法制统一、政令统一、市场统一的机构职能要基本对应；把直接面向基层、量大面广、由地方实施更为便捷有效的经济社会管理事项下放给地方。允许地方因地制宜设置机构和配置职能，既允许“一对多”，也允许“多对一”。
4. The reform boasts rational design.
The rationality of a reform plan determines whether or not it conforms to actual needs and objective laws, and is thus crucial to determining the success of reform. In response to issues such as irrational institutional configurations and ineffective mechanisms for restricting and monitoring the exercise of power in some areas, the Decision maintains the principles of optimization, coordination, and high efficiency, and emphasizes the necessity of optimizing the setup and functions of Party and government institutions. On this matter, it first stipulates that we ensure that, in principle, one matter or one type of matter is dealt with by one department, and that we enhance collaboration between relevant institutions in an effort to prevent one policy from being formulated by multiple institutions, ensure responsibilities of these institutions are clearly defined, and prevent institutions from shirking their duties. Second, it requires that we streamline the establishment of government departments at all levels and their internal institutions, rationally allocate powers, and cut the number of institutions by reducing intermediary levels and promoting horizontal modes of management, thereby creating a top-down, highly efficient organizational system. Third, it requires that we correctly understand and implement the division between Party and government duties, straighten out the relationship between the duties of Party and government institutions, and ensure that the Party exercises centralized and unified leadership with other institutions running efficiently in coordination. It also stipulates that we reduce overlapping in administration and fragmented and overlapping duties. Fourth, it requires that we establish an administration for veterans, and mobilize various sectors to better serve veterans. Fifth, for institutions at provincial, municipal, and county levels, it requires that their functions basically correspond with one another in the following regards: the centralized and unified leadership of the CPC Central Committee, and the unity of the legal system, government directives, and the market. At the same time, it allows for the delegation to local governments of economic and social management of direct concern to local communities in an extensive range of areas which local authorities are better positioned to administer. Local governments are allowed to set up institutions and define their functions in light of local conditions – a given institution may take on tasks assigned by multiple institutions at the upper level, and multiple institutions may report to one institution at the upper level.
（五）改革的成果要法定化。通过法定化把改革成果固化、制度化，是这些年推进改革的成功做法。《决定》指出，机构编制法定化是深化党和国家机构改革的重要保障。针对我国机构编制规范化、法定化相对滞后，机构编制管理方式有待改进等问题，《决定》明确要求推进机构编制法定化。要依法管理各类组织机构，加快推进机构、职能、权限、程序、责任法定化。一是完善党和国家机构法规制度。加强党内法规制度建设，研究制定机构编制法，增强“三定”规定严肃性和权威性。全面推行政府部门权责清单制度，实现权责清单同“三定”规定有机衔接，规范和约束履职行为。二是强化机构编制管理刚性约束。强化党对机构编制工作的集中统一领导，统筹使用各类编制资源，加大部门间、地区间编制统筹调配力度。严格执行机构限额、领导职数、编制种类和总量等规定。严格控制编外聘用人员。三是加大机构编制违纪违法行为查处力度，严肃追责问责。
5. The outcomes of this reform will be codified into law.
Consolidating and institutionalizing reform achievements via codification has been a successful practice in recent years of reform. The Decision points out that the codification of institutional configurations into law is an important guarantee for bolstering the reform of Party and government institutions. Given that our institutional configurations have yet to be standardized and codified into law and that their management has yet to be improved, the Decision explicitly requires that we promote the codification of institutional configurations into law. It stipulates that we manage all types of organizations and institutions in accordance with the law, and work to codify their structure, functions, powers, procedures, and responsibilities into law. On this matter, it first requires that we improve rules and regulations regarding Party and government institutions. This necessitates further developing Party regulations, working on the formulation of a law governing institutional configurations, and enhancing the authority of regulations that designate duties, institutions, and personnel. It also requires that we promote the system for listing the powers and obligations of government departments across the board, and link the list of powers and obligations with the regulations that designate duties, institutions, and personnel in an effort to standardize and restrict the performance of duties. Second, it requires that we intensify constraints on the management of institutional configurations. It raises the need to strengthen the Party’s centralized and unified leadership over tasks concerning institutional configurations, coordinate the use of various resources in this regard, and enhance the coordination and allocation of resources for institutional configurations between different departments and regions. It requires that we strictly implement regulations regarding the specified quotas on institutions, the number of posts for leading official, and the type and total number of staff. It also stipulates that we strictly control the number of auxiliary staff. Third, it requires stronger punishment for unlawful activities and disciplinary violations in institutional configurations, and that we hold those responsible strictly to account.
