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发表于 2011-10-26 09:46:20
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English Abstract | 中文摘要
本研究在对改革开放30年来进行总结和反思的大背景下，运用政治精英生涯分析等研究方法，对中县干部1978年以来的变迁和晋升进行多层次、多角度的考察和研究，并提供了中县干部的整体图像和干部完整的政治生涯历程。
从中县干部的构成来看，中县干部体系是包括副科级、正科级、副处级和正处级的四层金字塔。从干部的家庭出身来看，60%来自于农家，20%来自于干部家庭。从性别结构来看，90%是男性，10%为女性。从年龄结构来看，主要分布于35—55岁的年龄区间。从教育程度来看，全日制教育是空前绝后的中专一代，在职学历教育则以本科和研究生为主。从专业来看，全日制教育文科和理科都占一定比重，文理不分的比重最大。在职学历教育则以人文社科为主。从籍贯分布来看，基本都是地方精英，正科级以下基本都是中县人，副处级以上基本都是非中县的白水市人。在籍贯分布中，不均衡现象明显，某个地域集中产出干部的精英集群现象突出。
从中县干部的来源来看，主要是三个渠道：大中专毕业生分配、军队转业干部和吸收录用。从他们的初职获得来看，主要是贯彻学用一致，专业对口的原则，同时关系等社会资源也发挥了重要作用。干部获得初职后，大多经历了一个专业化的成长阶段，这其中，再筛选机制在他们的单位流动中发挥重要作用，而教师从政则是比较鲜明的干部流动现象。同时在干部流动中，干部子弟的“不落空”现象突出。而单位流动的结果证明，干部资源的多少和单位的好坏往往成正比。
从中县干部的发展轨迹来看，主要有混合型和单一型两种轨迹，并以混合型为主，说明干部的流动和他们的晋升成正比。从干部轨迹可以看出，中县干部的仕途已经制度化和例行化，一个干部现在的职位和年龄大致决定了其仕途的发展前景。从干部仕途各个级别的时间间隔来看，晋升为副科一般约8年，副科到正科约3年，正科到副处约7年，副处到正处约7年。干部的仕途轨迹中，政—党螺旋晋升模式明显，就是先在政府系统历练，然后晋升入党委系统，并不断螺旋上升，这个模式主要根源于党政分立的制度设计。
在中县干部的仕途中，不同的机构和岗位对干部仕途影响很大，特别是关键机构和关键岗位，形成了“高进高出”的干部流，从而成为干部的摇篮。在中县，关键机构主要有：党群系统的县委办、组织部、纪委和团县委等；政府系统的政府办、林业局、教育局和农业局等；公检法机构和重点镇等。关键岗位主要有：县委书记、县长、县委副书记、常务副县长、纪委书记、组织部长、县委办主任、乡镇党委书记、乡镇长、团县委书记、办公室主任和秘书等。特别是办公室主任和秘书，是干部晋升的重要岗位来源，从而形成了干部仕途中富有特色的“办公室主任现象”和“秘书现象”。
从政绩与干部的仕途来看，1978年以来，中县实行了一种以激励为主的干部政绩型体制。通过中心任务和目标考核，这种体制把干部引入为晋升而发展的竞赛中，从而形成了中县30年巨变的制度性因素。但凭政绩用干部必然导致政绩真伪问题，并导致假政绩的不断出现。政绩型体制在中县演化的结果是形成了一个精英乡镇集团，产生了乡镇党委书记晋升的双强模型，这种双强模型以经济发展和绝对绩效为基础，使得绝对绩效而不是相对绩效，综合指标而不仅仅是经济指标更能解释干部的晋升，但经济建设为中心使得经济发展和经济指标成为政绩型体制的基础。
从关系与干部的仕途来看，关系在干部的仕途中起重要的作用，有时甚至是根本性的作用。从中县的实际来看，关系类型主要有：家族、干亲、同乡、同学、战友等，这其中，政治家族现象突出。干部选拔任用中民主推荐政策的实施加重了关系在干部仕途中的作用，并导致了拉票网和关系运作的双环模型的形成。同时，干部的晋升是能力、关系、经济、领导推荐、群众基础、机遇和资历综合发生作用的结果，是干部仕途中的关键环节，并导致隐性台阶的强化和干部仕途“过度竞争”的格局。在中国的政治生态中，一个运行良好的政治体系，一定是正式关系和非正式关系的有机结合，这其中非正式关系起到了润滑剂的作用，并成为正式制度的有益补充。
关键词：干部构成，干部来源，干部摇篮，政绩，关系
English Abstract | 中文摘要
Zhong County's Cadre
Under the background of summarizing and reflecting upon the Reform and Opening up in the past years, this research, with the method of analyzing the career of the political elites, to do a multi-level and -angle investigation of their changes and promotion since 1978,and mainly seeks to provide a panorama of Zhong County cadres and their complete political career.
The system of constituents of the cadres of Zhong County, consisting of the Deputy Section, the Section, the Deputy Division, and the Division, is like a pyramid. 60% of the cadres come from rural families, 20% from cadre families; and 90% are male, 10% female. Their ages range from 35 to 55 years old. Those of them who received full-time schooling were the unprecedented “generation of the secondary school”, of whom quite a large part studied both arts and sciences, the others studying only the former or the latter. On the contrary, those who got their degrees on-job mostly have Bachelor’s or Master’s degree, majoring mostly in arts. Generally speaking, the cadres are the local elite, with most of those below the Division hailing from Zhong County, and those above the Deputy Division basically from other parts of Baishui City than Zhong County. It is obvious, however, that their birthplaces are not evenly distributed, as can be seen from the prominent phenomenon of a specific colony of elite cadres originating from the same place.
In general, there are mainly three sources of the cadres in Zhong County: graduates from the junior college and the secondary school, military cadres who switched to jobs, and others who were admitted from the society. Basically, the principle for acceptation was their ability to put knowledge into use and whether the candidates’ majors matched the posts applied for. Meanwhile, such social resources as GuanXi also played an important role. After having got the first posts, most of them went through a period of growth into professionals. Besides, in the transference of cadres, it can be clearly seen that the offsprings of cadres never falied to get a post. The result of the transference among departments turned out to be that the amount of resources of cadres were more often than not proportional to the quality of the specific department.
The devolopment of the cadres in Zhong County can be classified into two sorts, namely, mixed and single pattern, the former being more common, which illustrates that their transference is in positive poportion to their promotion. Also, the course of careers shows its institutionalization and routiniztion, that is to say, their careers were roughly determined by the cadres’ posts and ages then. From the age intervals among those holding the posts, it can be inferred that it needs 8 years to get promoted to the Deputy Section, 3 years to go on to the Section, then 7 years to the Deputy Division, and lastly, 7 years to the Division. The pattern of promotion is apparently government-party spiral: the cadres worked first in the government system, then were promoted into the party system, and then into the former and the latter alternatively, which was the result of the institutionalized separation of the party and the government.
The institutions where they work and the posts that they hold wield a major influence on the cadres’ careers. In particular, the key institutions and posts, where only senior cadres work, have become the cradle of cadres. In Zhong County, the key institutions include the County Commission Office, the Organization Department, the Commission for Discipline Inspection, and the League County Commission, etc. which belong to the Party-System. the Government Office, the Bureau of Forestry, the Bureau of Education, the Bureau of Agriculture, and so on, which belong to the Government-System.the Public Security Institutions and the Key Towns. The key posts are the Secretary of the County Party Commission, the County Magistrate, the Deputy Secretary of the County Party Commission, the Executive Vice County Magistrate, the Secretary of the Commission for Discipline Inspection, the Secretary of the Organization Department, the Director of the County Commission Office, the Secretary of the Party Commission of Towns, the Town Mayor, the Secretary of the League County Commission, the Director of the Office, the Assistant, and so on. In particular, the last two are the major sources of cadres, hence the characteristic phenomena of the Secretary of the Office and that of the Assistant in the cadres’ careers.
Since 1978, Zhong County has implemented an evalution system of cadres according to their political achievements, which aims at their encouragement. With the assessment of core tasks and goals, it has initiated the cadres into a competition of promotion-oriented development, which has been one of the institutional factors of the huge changes of the county in the past 30 years. Assessing the cadres solely through their political achievements, however, has led inevitably to the problem of fake achievements. As it evolved, the political achievements evaluation system has resulted in a town elite group in the county, and a “double-strength” model of the promotion of the Secretary of the Town Party Commission. Based on economic development and absolute performance, the model makes absolute, not relative performance, and composite, instead of economic index the explanation of cadres’ promotion, but the centrality of economy bases the political achievements evaluation system upon economic development and index.
GuanXi play an important role in the cadres’careers, sometimes a determining one. In the case of Zhong county, they are in the major part relations within the family, with nominal kins, with fellows, classmates, and comrades in arms, etc. and the phenomenon of political family is especially prominent. In the selection and appointment of cadres, the democratic recommendation increases the importance of GuanXi in the cadres’ careers, and contributes to the formation of the loop model which involves both expanding the network of voters and manoeuvring GuanXi. At the same time, the cadres’ promotion is the result of the interation of their ability, social relations, economy, the leaders’ and the masses’ appreciation, opportunities and qualifications; it is a key leap in their careers, and results in the reinforcement of the hidden step and the pattern of “over-competition” in their careers. In the Chinese political ecology, a well-funtioning political system entails the organic combination of official and informal relations, in which the latter acts as lubricant and makes wholesome supplement to the official system.
Key words: the constituents of cadres; the sources of cadres; the cradle of cadres; political achievements; GuanXi |
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发表于 2011-10-26 08:23:31
发表于 2011-10-26 10:00:11
