Reform on Electoral System of Township Head Under the Principles of the Party-controlled Cadres in China: Dilemmas and Modifications Chin-Tsa

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1 Yu Da Academic Journal Vol.32, September 2012, pp 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通柳金財摘要中國鄉鎮長選舉制度的改革模式已普遍引起關注, 儘管推動鄉鎮長直選尚未成為國家政策, 但這意謂一種漸進主義式的草根民主政治發展, 已能建立改革的激勵機制及為基層民主制度創新提供空間改革鄉鎮長選舉方式其目標在於改變官員貪腐行為提升地方治理品質及強化地方黨國權力合法性基礎由於黨國體制的改革態度游離與立場猶疑, 高層對鄉鎮長選舉改革尤其是直選缺乏一致性共識, 阻礙鄉鎮長直選的全面性發展本文試從黨管幹部此一組織原則, 探討黨國體制介入鄉鎮長選舉制度變革及所面臨的發展困境 ; 同時, 黨國體制採取鄉鎮黨委公推直選的替代性改革方式, 以變通或回應鄉鎮長直選要求鄉鎮長選舉制度改革最大阻力來自於黨國體制, 地方黨國恐損及黨領導地位的鞏固政策支持, 及衝擊鄉村治理深化體制矛盾本文研究結果指出黨管幹部原則此一慣性深深束縛鄉鎮長選舉變革發展, 大多數試點選舉並未能跳脫黨的控制, 公推直選鄉鎮黨委已逐漸替代鄉鎮長直選模式這顯示中共已以黨內民主改革, 作為替代鄉鎮基層民主變通改革方案在可預見未來, 中國鄉鎮長選舉制度變革與直選發展, 仍是步履蹣跚與前途未卜關鍵字 : 鄉鎮長選舉黨管幹部公推直選黨內民主 *

黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通柳金財摘要中國鄉鎮長選舉制度的改革模式已普遍引起關注, 儘管推動鄉鎮長直選尚未成為國家政策, 但這意謂一種漸進主義式的草根民主政治發展, 已能建立改革的激

2 Reform on Electoral System of Township Head Under the Principles of the Party-controlled Cadres in China: Dilemmas and Modifications Chin-Tsai Liu * Abstract Mode of the electoral system reform of township head has generally been a cause for concern in China, despite promote direct election of the township has not yet become national policy, but this means that a gradualist style grass-roots democracy political development, has been able to create the incentives for reform and supply innovation for the space of grassroots democratic system. Reform township head election goal is to change the corrupt behavior of local officials, to improve the quality of local governance and strengthen the legitimacy of the power of the local party-state. Attitude free with the stance and hesitation of the party-state system on township mayoral electoral reform, and the lack of consistency consensus hinder the comprehensive development of the direct election of township head. This paper tries to explore the party-state system from an organizing principle of the party-controlled cadres, analyzing the influence from the interventional principle of township electoral system change and encounter dilemmas of development. Meanwhile, the mode of public nomination, direct election toward the secretary of townships party committee has been taken by the party-state system as alternative approach to reform, modify or respond to the township direct election requirements. The maximum resistance of the township electoral system reform was from the party-state system, local party-state fear of loss and the consolidation of the party leadership, policy support, and the impact of the deepening of rural governance system contradiction. The results of this study pointed out that the party-controlled cadres principle, this inertia deeply bound the township head election reform, most experimental elections failed to escape the control of the party. The mode of direct election of township party secretary has gradually replaced the direct election mode of township head. This shows that the CCP has chosen the reform of inner-party democracy as an alternative program to change grass-roots democracy. China's township electoral system reform and directly elected development are still faltering and uncertain in the near future. Keywords: Election of Township Head, Principle of Party-controlled Cadres, Public Nomination, Direct Election, Inner-party Democracy * Assistant Professor, General Education Center, Yu Da University

grass-roots democracy political development, has been able to create the incentives for reform and supply innovation for the space of grassroots democratic system.

3 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通壹前言 ( ) 1 ( ) 74~76 ( ) 61~65 4 ( ) 555~557 2 ( ) 12~15 5 ( ) 64 77~78 Gunter Schubert, Democracy under One-Party Rule, China Perspectives, No.46(2003), pp.15~25; Hairong Liu, Semi-Competitive Elections at Township Level in Sichuan Province, China Perspectives, No.51(2004), pp.13~27. Academic Search Premier, Seeds of Change, The Economist, Vol.363, No.8277(6/15/2002)

4 ( ) 130~131 2 ( ) 100~ ( ) Lianjiang Li, The Politics of Introducing Township Elections in Rural China, The China Quarterly, No.171(2002), pp.711~730. Lianjiang Li, The Politics of Introducing Direct Township Elections in China, The China Quarterly, No.173(2003), pp ( ) 199~

5 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通 14 貳中國鄉鎮長選舉制度改革一中國鄉鎮長選舉制度改革之發展 % ~

6 / ~ ( ) 536~

7 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通二中國鄉鎮長選舉制度改革類型 ( ) ( ) 298~301 ( ) 71~72 199~

4. 19 20 1998-2004 21 1998 11 1999 2 3 (2006 6 ) 59

8 % 24 3 ( ) 14~16 58 Fan Li, Is Buyun Township the Xiaogang Village of the Reform of China s Political System, Chinese Education and Society, Vol.35, No.4(July/August 2002), pp.57~63. ( ) 218~

9 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通 25 三中國鄉鎮長選舉制度改革示範效應與問題 ~197 65~

2001-2002 2000 2003 6 11 2004 2-4 7 2000 16 3 2003 12 2003

10 參黨管幹部原則與民主選舉一黨管幹部原則之意義與內涵 4 ( ) ( ) 29~33 2 ( ) 45~47 1 ( ) 49~ ( 2000 ) ( ) 14~

8 (2011 8 ) 29~33 2 (2010 4 ) 45~47 1 (2012 2 )

11 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通 ( ) 16~18 4 ( ) 38~ ( ) 47~ ( ) ( ) 64~

4 (2012 2 ) 38~40 10 3 (2010 6 ) 47~50 17 43 3

12 二黨管幹部原則與民主選舉 ( ) ( ) 63 ~112 5 ( ) 62~67 6 ( ) 26~29 47~

13 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通 ~38 34~

14 ( ) 43~ ( ) 5~9 6 ( ) 11 1 ( ) 106~112 5 ( ) 64~66 Maria Edin, State Capacity and Local Agent Control in China: CCP Cadre Management from a Township Perspective, The China Quarterly, No. 173(2003), PP.35~52. ( ) 56~

15 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通肆黨國體制控制下的鄉鎮長選舉制度改革一黨國體制改革立場 : 反覆不定 ( ) 18~ ( ) 26~

16 ( 2001 ) ( )

17 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通 % 70% 二中共黨政領導地位 : 權威下滑 70% 62 98% 63 10% ~119 ( 2002 ) % 98% 97.1% 100% ~

導地位 : 權威下滑 70% 62 98% 63 10% 81 ---- 118~119 (

18 三鄉村治理結構問題 : 黨政衝突 ~ ( ) 29~30 186~ ( ) 228~

19 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通 ( ) 152 Lianjiang Li, The Two-Ballot System in Shanxi Province: Subjecting Village Party Secretaries to A Popular Vote, The China Journal, No.42(July 1999), pp.103~

20 伍中國鄉鎮長選舉改革替代方案 : 公推直選鄉鎮黨委一公推直選模式的起源

21 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通二公推直選模式的發展 / ( ) 65~

22 % % % ( ) 39~42 65~71 3 ( ) 21~26 65~ % 57.97% 48.04% 65~

23 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通三政治民主改革 : 黨內民主替代基層民主 ( ) ~65 3 ( ) 21~

24 / ~ ~ ( 2007 ) 52 ( 2007 ) 50~ ~83 63~

25 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通 ( ) 222~223 2 ( ) 100~104 Lianjiang Li, The Two-Ballot System in Shanxi Province: Subjecting Village Party Secretaries to A Popular Vote, The China Journal, No.42(July 1999), pp.103~118. Zhenglin Guo and Thomas P. Bernstein, The Impact of Election on the Village Structure of Power: The Relation Between the Village Committees and the Village Party Branches, Journal of Contemporary China, Vol.13, No.39(2003), pp.257~ ( ) 62~

26 ~66 1 ( ) 45~48 3 ( ) 60~ ( ) 1~5 2 ( ) 45~

27 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通陸結論 ~ ( ) 16~18 14~19 9 ( ) 199~217 14~

29 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通參考文獻一中文專書 ( 2001 ) ( 2001 ) --- ( ) ( ) ---- ( ) ( ) ---- ( 2000 ) 2005 ( ) ( ) 1990 ( ) ( ) ( ) ( ) ---- ( ) ( ) ( ) ( ) ( 2003 ) ( ) ( ) ( ) ( ) ( 2002 ) ( ) ( ) 7 ( ) ---- ( ) ( )

30 ( 2002 ) ( ) ---- ( ) ( ) ---- ( ) 二期刊 5 ( ) 34~35 6 ( ) 11 5 ( ) 62~67 3 ( ) 43~47 1 ( ) 49~55 64 ( ) 8 ( ) ( ) 58~62 12 ( ) 29~30 6 ( ) 26~29 6 ( ) 94 3 ( ) 21~26 2 ( ) 34~ ( ) 28~29 9 ( ) 199~ ( ) 29~33 2 ( ) 1 ( ) 106~ ( )

31 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通 1~40 5 ( ) 64~66 2 ( ) 45~ ( ) ( ) 63~112 4 ( ) 38~40 28 ( ) ( ) 48 3 ( ) 32 2 ( ) 65 2 ( ) 100~104 2 ( ) 62~ ( ) 14~19 4 ( ) 121~ ( ) 7 ( ) 3 ( ) 77~ ( ) 93~102 4 ( ) 33~ ( ) 63 5 ( ) 64 2 ( ) 34~46 9 ( ) 14~ ( ) 86~87 10 ( )

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33 黨管幹部原則運作下的中國鄉鎮長選舉制度改革 : 困境與變通 China Quarterly, No. 162 (June 2000), pp.513~539. O Brien, Kevin J. and Lianjiang Li, Accomodating Democracy in a One-Party-State: Introducing Village Elections in China, The China Quarterly, No.162(2000), pp.465~489. Pei, Minxin, Creeping Democratization in China, Journal of Democracy, No.6(1995), pp.73~76. Peng, Yu-shemg, Kinship Networks and Entrepreneurs in China s Transitional Economy, American Journal of Sociology, Vol.109, No.5(2004). Rowen, Henry S., When Will the Chinese People Be Free?, Journal of Democracy, Vol.18, No. 3(2007), pp.38~52. Saich Tony and Xuedong Yang, Innovation in China s Local Governance: Open Recommendation and Selection, Pacific Affairs, No.76(2003), pp.185~208. Shi, Tianjian, Economic Development and Village Election in Rural China, Journal of Contemporary China, Vol. 8, No. 22 (1999), pp.425~442. Tsai, Lily, Cadres, Temple and Lineage Institutions, and Governance in Rural China, The China Journal, No.48(July 2002)

育達科大學報. 第 27 期. 民國 100 年 6 月 The Reform Change on the Electoral System of Township Leaderships in China: Development, Models and Its Impacts Chi

育達科大學報. 第 27 期. 民國 100 年 6 月 The Reform Change on the Electoral System of Township Leaderships in China: Development, Models and Its Impacts Chi 27 100 6 85-124 Yu Da Academic Journal Vol.27, June 2011, pp. 85-124. 中國鄉鎮領導選舉制度變革 : 發展模式與影響柳金財摘要本文探討重點與目的, 主要是分析中國鄉鎮領導選舉制度改革現狀選舉類型創新與所造成衝擊