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The author:(作者)归海一刀
published in(发表于) 2013/11/14 3:00:52
Central leading group for comprehensive reform eight questions

18 proposed communiqué of the meeting of the third plenary session, "the Central comprehensive reform leading group will be set up, responsible for the overall design, integrated and coordinated, holistic reform to promote, supervise the implementation. ”

"The Central leading group on comprehensive reform," is a kind of body? Who will take leadership team leader? The new body with other central-level leading group, Division of Labor will there be coincidence? Driven by the new institutions, reform will be "comprehensive" and "drill down" to what degree?

In this regard, Chang xiuze, a researcher at the national development and Reform Commission, the Economic Institute of China (Hainan) reform and Development Research Institute Mr. Chi Fulin, China people's University, school of public administration, public policy and security studies Professor Mao Shoulong, Professor, national school of Administration zhuli experts and scholars, accepted an exclusive interview with the Beijing News, made an interpretation.

Central set up comprehensive reform leading group, is responsible for the overall design, integrated and coordinated, holistic reform to promote, supervise the implementation. Leadership of the party committees at all levels to ensure the implementation of the reform.

-18 plenary session bulletin

　　1 led Panel classified

　　"Not the real sector, is to reform the Supreme leadership body"

Experts interviewed said, "the Central leading group for comprehensive reform" is not a substantive departments, but reform of the Supreme State governing bodies. "Such agencies have never had, before the State Commission for restructuring still have differences. "Chang xiuze said.

Founded in 1982, the State Commission for restructuring economic system, in the late 80 's to the 90 's, has had an "reform centers" task of top design firms are considered China's reform.

Chang xiuze said that although there are "top design" functions, but the level of the State Commission for restructuring the Government, is the composition of the State sector, "the Central leading group on comprehensive reform" was established by the CPC Central Committee, higher level, coordination is much wider, more authoritative. "All reform-related sector, coordinated by the central co-ordinating, ranging from government departments, such as areas of economic reform, such as finance, the SASAC, Central Bank of more than 20 departments, central agencies, such as the Central Development Office, the Central politics and Law Committee. ”

"The equivalent of a reform of the General command, ensure systematic, holistic and synergetic. "He said.

　　2 why the establishment of leading group

　　"The top is designed to break through the range of interests"

State Commission for restructuring after withdrawal, functions in the reform of the main responsibility of the national development and Reform Commission. But the NDRC has repeatedly questioned, he and other academics have publicly questioned, "focus solely on development over the past decade, much of reform".

Mao Shoulong proposed, the Commission itself, reforms, such as the power to approve reforms, touched the self-interest of the national development and Reform Commission, national development and Reform Commission is not suitable for a comprehensive reform of the lead department. "After 35 years, the reforms are not only in the economic sphere, as well as political reform and social reform, it is difficult to assume that the burden of any of its functions, reality requires the establishment of governing bodies at the national level. ”

Mr. Chi Fulin believes that now has entered a period of reform in Sham Shui Po, a reform measure if you touch the interest pattern, it can lead to contradictions and resistance, "the reality requires the Central grab top design, coordination of sectoral interests, local interests, business interests and other interests".

Zhuli says, and the next reforms were biting, "a man of iron", only set up a detached body of interests, which would advance the reform trend. "For example, drafting legislation, if the ministries led by one country will inevitably lead to legitimize sectoral interests, reforms will meet resistance. ”

　　3 How to see "comprehensive" reform

　　"Involving the ' five-in-one ', military, party, and many other"

Experts interviewed said the plenary session Communique on "political, economic, social, cultural and ecological civilization ' five-in-one ' reform" that means that the leadership team on the economy, political structure, social system, cultural system, five major aspects, such as building the system of ecological civilization, make decisions and deployment.

Chang xiuze said the "five in one" reform, the reform of political system the most difficult.

Mao Shoulong, in addition to the "five-in-one" reform, plenary statement also referred to the rule of law, corruption, military and party reforms, "shows that these reforms, will also be included to top design in the context of".

Mao Shoulong believes that comprehensive reform covers more than one subject, "not only at central level, as well as local level; not only has the Government, as well as enterprise, as well as organizations, groups and sectors of society. Comprehensive reform of how to reconcile the relationships? This will be comprehensive reform leading group in the face of problems. "

　　4 "drill down" to what extent

　　Objective is the modernization of systems of governance and governance capacity

Plenary session Communique clear reform timetable, "by 2020, the decisive results on reform in important fields and crucial links".

Chang xiuze believes that next step, "five in one" reform will develop a phased standard system, "which is an important area? What is the key? By what standard to measure whether there had been a decisive outcome? This will require a clear ".

Mao Shoulong said the plenary session Communique suggested that the overall goal of comprehensive reform is "promote the modernization of national governance systems and capacity to govern." Therefore, the depth of reform will be "national governance capacity and modernization of governance systems".

"This is the first proposed modernization of governance systems, and is a deep reform of the governance system. "Mao Shoulong," says past reform focus strategy, which is targeting emerging issues, what coping strategies, but then the reforms will touch on a number of fundamental institutional problems. Such as corruption, then not only have to ' tiger ', from exerting force with institutional anti-corruption ".

　　5 who will serve as team leader

　　"Involve comprehensive reform, General Secretary or to act as team leader"

Experts interviewed were of the view that the central financial and economic leading group, in accordance with a previous organizations of the Central leading group of the Central leading group on rural institutions "established practice", head of the Central leading group on comprehensive reform might be filled by top leadership of the CPC Central Committee, Deputy Head of group members should also include other members of the Standing Committee of the political Bureau and, as well as Ministers from related ministries.

Mao Shoulong believe that the plenary session Communique put forward the "five-in-one" reform and reform of the army, the party and other aspects, "if only relates to government reform, or are confined to economic reform, then, is chaired by the Prime Minister. Before the State Commission for restructuring the organisation model. But involve comprehensive reform of the army, the party, the head may be chaired by the General Secretary. "

In addition, in accordance with established practice, the Central comprehensive reform should be set up under the Office of the leading group. Mao Shoulong believes that Chief of staff should be a member or ministerial-level officials from the above, to press for the full implementation, "top design" the real implementation of the policy.

　　6 How to read "lead responsibility"

　　Local party committees should be integrated and coordinated institutions, reform

Plenary session Communique mentioned that the Central leading group on establishment of the comprehensive reform, "the leadership of the party committees at all levels to ensure the implementation of the reform."

In this regard, the experts surveyed believed that communiqué stressed "the need to strengthen and improve the party's leadership, give full play to commanding the whole situation and the coordination of the core role of the party". On the basis of the Central leading group for comprehensive reform, reform of provincial party committees should also establish an integrated and coordinated body, pledged to reform the "top design" can be implemented from the top down, while crack pattern of entrenched local interests.

Mr. Chi Fulin said that requires party committees to fulfil the leadership responsibilities of reform, which means "integration and coordination, overall process, urged the implementation of" will become the responsibility of the party, "especially ' push ' and ' implemented ' the decision-making and deployment will be the main task of party committees at all levels".

Mr. Chi Fulin says, "five in one" reform, political reform is a daunting task, "in the political system, party committees at all levels to play an important role."

　　7 Commission responsibilities will change

　　"The national development and Reform Commission's macroeconomic control and other responsibilities will be more clear"

After the establishment of the Central leading group on comprehensive reform, responsible for reform of the functions of the national development and Reform Commission, job responsibilities will have what kind of change?

Mao Shoulong believes that Central leading group was set up by the Party Central Committee on comprehensive reform reform Supreme leadership body, is composed of Department under the State development and Reform Commission, which is the relationship between the central authorities and Central Government departments. Development and Reform Commission as one of the members of the leadership team, responsible for the completion of tasks assigned by the leadership group on the one hand, on the other hand continue to perform "monitor macroeconomic and social development situation, macro-economic control policy advice, solve major problems in economic operation" functions.

He said that since the present Government assumed office, reform of the administrative examination and approval system reform and promote function change. Administrative examination and approval system reform in the sector involving more, national development and Reform Commission. With the advancement of the reform, development and Reform Commission's macroeconomic control and other responsibilities will be more clear.

　　8 cell functions coincide

　　New leadership team all reform-related matters

Preliminary statistics show that currently consists of the central financial and economic leading group, leading group for party building, the Central leading group on rural work leading group, national security, the Central leading group for Taiwan and other leading groups. Deepen reform leading group with other Central leading group, will coincide on the function?

Chang xiuze said, between the various central leading group, there is no difference between levels, was established by the CPC Central Committee leadership. But judging from the Division of work, the central financial and economic leading group, the Central leading group on rural work, also have responsibilities for reforms.

Central financial and economic leading group, for example, as the core of China's economic leadership and decision-making departments, whose duties include economy, economic development, economic restructuring. Among them, the economic restructuring, the economic development of these two functions, the Central leading group will also deepen reform involves. "But judging from the plenary session Communique, should be the Central leading group on comprehensive reform of integration and coordination of all reform-related matters. Specific division of labor and cooperation, you also need to grope in practice. No doubt is, after the establishment of the Central leading group on comprehensive reform, the central financial and economic leading group will play a more important role. ”

This version of writing/Beijing News reporter Wang Shu

　　"Crack a hard nut," reform leading group

　　CPC Central Committee and the State Council several times to an ad hoc body to complete major reform tasks; previously, is responsible for the overall design of leading group of rare, specific areas of

Reports of up to 5,000 words, 59 times in reform. Two days ago, 18 notice publishing the third plenary meeting. About the "Central set up comprehensive reform leading group" expressed concern.

Combs publicly available information can be found, the Party Central Committee or the State Council specialized bodies such as the establishment of the leading group for the reform of class levels, was not the first time. It a little when it comes to capturing key reform tasks appear to specifically address the reform process "tough hard bone".

In the past, "" head, "" the head of the leading group for reforming institutions such as the word, to address specific problems in the field. Such as the economy, justice, health, and so on. Deepen reform leading group set up by this time, the "responsible for the overall design, integrated and coordinated, holistic reform process, urged the implementation of", are very rare.

　　Historical review

　　Most extensive economic restructuring Office sector

By setting up a special reform institution to complete significant and important reform issues, has become a more common way.

Nankai University week Dr Zhou Enlai School of Government, and research to similar problems.

According to his incomplete statistics in 1949, especially since the reform and opening up, the CPC Central Committee and the State Council set up a variety of reform institutions, group. For example, the "" prefix of the Working Group on reform of the Central and State organs, the central political reform discussion group, the "State" prefix System Reform Office of the State Council, and professional titles reform work leading group of the State Council, and so on.

Among them, the restructuring Office of the State Council, the "most extensive history involves areas."

That was in May 1980, under the background of reform and opening up, the State Council established it, and Du Xingyuan by then-Secretary General serves as Director.

About two years later, five sessions of the national people's Congress decided that the Office for restructuring economic system upgraded to "State Commission for restructuring the economy" as departments under the State Council.

Main task is to prepare a national of the State Commission for restructuring the economic system's overall design, unified study, plan and guide the work of national economic restructuring.

In 1998, the first session of the ninth national people's Congress repealed the State Commission for restructuring the economy, and set the economic restructuring Office of the State Council ("modification"). When he was Secretary of the Treasury, the Director of the State administration of taxation Liu zhongli was Director.

In 2002, worked for two years by the economic restructuring Office Director Wang Qishan was transferred to the Hainan, officer posts had been vacant. A year later, economic restructuring Office merged with the State Development Planning Commission, the establishment of the national development and Reform Commission.

　　Background

　　After the major conferences set up

Zhou Wang believes that "continue", "economic restructuring Office", "NDRC" practical reform work undertaken by, and was generally limited to the economic field.

Political, legal, cultural and other aspects of the reform effort, has been through the establishment of specialized sexual reform leading group to implement. Central leading group for the reform of the judiciary, the Central leading group for the reform, deepening health system reform leading group of the State Council, and so on.

Establishment of the reform group, often after the CPC Central Committee Conference, or related to overcome key reform tasks. "By taking the team forms, strengthen the organizational guarantee overcome difficulties. "Zhou Wang said.

For example, 16 National Congress report "advancing the reform of the judiciary". For the implementation of this strategic plan, in April 2003, the Central politics and Law Committee has proposed to the central recommendation on further advancing the reform of the judiciary. In May, the Central formation of the Central leading group for the reform of the judiciary.

The Central cultural system reform work leading group formed in 2003, is also to follow up on implementation of the 16 reports to deepen cultural restructuring, accelerate the development of cultural undertakings and cultural industries of strategic deployment.

For healthcare, education and other areas of public calls for reform is an urgent, deepening health system reform is set up by the State Council leading group, the national leading group for the reform of education, the national leading group for the reform of countryside compulsory education funds guarantee mechanism.

　　Institutional characteristics

　　Standing Committee member leadership team leader are

General high level leading group for the reform of the institutions involved, mostly Ministerial, "Super ministries". Head are also the Prime Minister or Deputy Prime Minister, Member of the Standing Committee, the State Council, led by the related ministries.

For example, in December 2008, deepening health system reform leading group under the State Council is established, the team leader was then-Vice Premier Li keqiang.

Recent Central politics and Law Committee Secretary had served as head of the Central leading group on judicial reform.

Political science at Nanjing University, Dr Lai Jingping believes that reform of the Agency Group's main responsibility is to coordinate the work, in order to improve the execution and efficiency of work, its high levels of team leader and team members.

The 18 announced the creation of the third plenary session of the comprehensive reform lead the list of team leaders, team members have not yet been released.

Two days ago, three times and participated in the drafting of plenary resolution on the reform of the noble said in an interview with the Beijing News reporter, he suggested to the relevant Central Government departments and leaders, headed by its General Secretary chaired, Deputy Head of the Prime Minister of the State Council, comprising Central and State Department official.

　　Group tasks

　　Reform design essential

Reform leading group on reform design plays a vital role and influence.

"For example, in 1988, the State Council institutional restructuring plan, was submitted by the Working Group on reform of the Central and State organs of the CPC Central Committee and the State Council's institutional restructuring programme of the reform of institutions directly under the CPC Central Committee and member of the development in the implementation of programmes on the basis of the formation. "Zhou Wang said.

But their first task, it is specifically addressed in the reform process "tough hard bone".

This one involving systemic reforms, such as economic restructuring, and reforms in key areas, such as justice, health, education, housing and other fields. In these areas, the reform involved tend to be more sensitive.

Central leading group for the reform of Justice in 2004, issued at the end of the Central leading group for the reform of Justice preliminary views on the reform of the judicial system and working mechanism, involving reform of the re-education through labour system, reforming and perfecting the cadre management system of Justice, and so on.

Raise the level of major illness protection, control medical expenditure of a breakthrough, is deepening health system reform leading group of the State Council's claim.

Zhou Wang believes that previous reform leading group, is still a single reform programme. 18 communiqué of the third plenary session to establish a central leading group on comprehensive reform, is clearly based on the top-level design of holistic, socialist economic, political, cultural, social and ecological civilization construction these five aspects of the reform exercise co-ordination, deepen reforms on the new historical starting point.

　　Partial reform leading group

In 2003 to set up a central cultural restructuring and development leading group

In 2003 to set up a central leading group for judicial system reform

2008 established the State Council leading group for deepening health system reform

2010 leading group for the establishment of a national education system reform

　　The partial withdrawal of leading group

Established in 1986 date of revocation is unknown to the State Council leading group for the reform of foreign trade system

Established in 1986 1998 withdrawal of State housing system reform leading group

1987 establishment of the date of revocation is unknown to the State Council leading group for the reform of material

1994 1998 withdrawal of foreign currency system reform of the State Council leading group was formed

Established in 1994 1998 withdrawal of fiscal system reform of the State Council coordination leading group

2001, 2008-year revocation of administrative examination and approval system reform of the State Council leading group for the work

2003 establish task power telecommunications completed the automatic revocation of the State Council leading group for the reform of civil aviation

2006 2008-year revocation of the national leading group for rural compulsory education funds guarantee mechanism reform

National economic system reform Committee formed for the State sector, 1998 to high-level deliberative body under the State Council, 2003 revocation and incorporated into the national development and Reform Commission.

　　Prospect

　　Expert: the future or the deepening reform Steering Group

18 plenary session Communique suggested that the functions of Central leading group for comprehensive reform including the reform of integrated and coordinated, integral design, promote, supervise the implementation of these four aspects.

Supervise the implementation of this aspect, into focus. Chinese Academy of social sciences and academician Zhang Zhuoyuan, in an interview, said that even though reforms have top design, but without senior power-driven, I'm afraid still difficult to implement the policy, after all, a lot of reforms involving the Government reform.

"This time central decision, we went through the implementation, supervision and examination", said Zhang Zhuoyuan.

Zhang Zhuoyuan mentioned that the 1993 plenary session decided to introduce tax distribution system, the then Chinese Vice Premier Zhu Rongji, Member of the Standing Committee, went to talk to heads of 18 provinces, later carrying out policy works well.

Analysis of Zhou Enlai School of Government, Nankai University, Dr Zhou Wang, not excluding the Central leading group on comprehensive reform in the future will be similar to "the central inspection group" approach, the deployment of "Central Steering Group on comprehensive reform" to urge the implementation of reform policies.

The Beijing News reporter Wang Ruifeng Fan Chunxu

(Original title: Central comprehensive reform leading group eight questions)

　　十八届三中全会会议公报提出，“中央将成立全面深化改革领导小组，负责改革总体设计、统筹协调、整体推进、督促落实。”

　　“中央全面深化改革领导小组”是一个什么样的机构？谁担任领导小组组长？这个新机构跟其他中央层面的领导小组，分工会不会有重合？在新机构的推动下，改革将“全面”、“深化”到什么程度？

　　对此，国家发改委经济研究所研究员常修泽、中国(海南)改革发展研究院院长迟福林、中国人民大学公共管理学院公共政策与安全研究所教授毛寿龙、国家行政学院教授竹立家等专家学者，接受新京报专访，作出了解读。

　　中央成立全面深化改革领导小组，负责改革总体设计、统筹协调、整体推进、督促落实。各级党委要切实履行对改革的领导责任。

　　——十八届三中全会公报

　　1 领导小组如何界定

　　“不是实体部门，是改革最高领导机构”

　　受访专家学者们表示，“中央全面深化改革领导小组”不是一个实体性部门，而是改革的最高国家领导机构。“这样的机构从未有过，跟之前的国家体改委仍有区别。”常修泽说。

　　成立于1982年的国家体改委，在上世纪80年代至90年代，一直担负“改革中枢”的重任，被视为中国改革的顶层设计机构。

　　常修泽表示，虽然都有“顶层设计”的职能，但国家体改委是在政府层面，是国务院的组成部门，而“中央全面深化改革领导小组”是党中央设立的，层级更高、协调面更宽、更具权威性。“所有与改革有关的部门，都由中央统筹协调，既有政府部门，比如经济领域的改革涉及财政部、国资委、央行等20多个部门，也有中央机构，比如中央编制办、中央政法委等。”

　　“相当于一个改革的总指挥部，确保改革的系统性、整体性和协同性。”他说。

　　2 为何设立领导小组

　　“顶层设计旨在冲破各种利益关系”

　　国家体改委撤并后，改革的职能主要由国家发改委负责。但发改委近年来屡受质疑，张维迎等学者曾在公开场合质疑，“过去十年只关注发展，不太关注改革”。

　　毛寿龙提出，发改委自身也是改革对象，如审批权的改革，就触及到发改委的自身利益，因此发改委并不适合成为全面深化改革的牵头部门。“历经35年，改革已经不只局限于经济领域，也涉及政治体制改革和社会体制改革，任何一个职能部门都难以担负这样的重任，现实要求成立国家层面的领导机构。”

　　迟福林认为，当下已进入改革深水期，一项改革措施如果触及利益格局，就会引发矛盾和阻力，“现实情况要求中央抓顶层设计，来协调部门利益、地方利益、企业利益等利益关系”。

　　竹立家表示，接下来的改革都是啃“硬骨头”，只有成立一个利益超脱的机构，才能推动改革走向深入。“比如起草法规，如果由某一个国家部委牵头，难免导致部门利益合法化，改革就会遇到阻力。”

　　3 怎么看“全面”改革

　　“涉及‘五位一体’、军事、党建等多方面”

　　受访专家学者们表示，三中全会公报提出“政治、经济、社会、文化、生态文明‘五位一体’改革”，意味着领导小组将对经济体制、政治体制、社会体制、文化体制、生态文明制度建设等五大方面，作出决策和部署。

　　常修泽表示，在“五位一体”改革中，政治体制改革的难度最大。

　　毛寿龙说，除了“五位一体”改革，三中全会公报还提到了法治、反腐、军事、党建等方面的改革，“表明这些方面的改革，也将纳入到顶层设计的范畴中”。

　　毛寿龙认为，全面改革涉及多个主体，“不仅有中央层面的，还有地方层面的；不仅有政府主体，还有企业主体，以及社会组织、群体和阶层。全面改革如何协调这些关系？这将是全面深化改革领导小组面对的问题”。

　　4 “深化”到何种程度

　　目标是国家治理体系和治理能力现代化

　　全会公报明确改革时间表，“到2020年，在重要领域和关键环节改革上取得决定性成果”。

　　常修泽认为，下一步，“五位一体”改革将制定阶段性标准体系，“哪些是重要领域？哪些是关键环节？通过什么标准来衡量是否取得了决定性成果？这些都需要明确”。

　　毛寿龙说，三中全会公报提出，全面深化改革的总目标是“推进国家治理体系和治理能力现代化”。因此，改革的深度将向“国家治理体系和治理能力现代化”迈进。

　　“这是第一次提出治理体系现代化，而治理体系是深层改革。”毛寿龙说，“过去的改革比较关注对策，也就是针对出现的问题，采取什么样的应对策略，但接下来的改革将触及一些根本性制度问题。比如反腐，接下来不仅要‘打老虎’，更要从制度反腐方面发力”。

　　5 谁来担任小组组长

　　“涉及全面改革，总书记或出任组长”

　　受访专家学者们认为，按照此前的中央财经领导小组、中央农村领导小组等中央领导小组的组织机构设置“惯例”，中央全面深化改革领导小组的组长可能由党中央的最高领导出任，副组长等组员应包括其他政治局常委和委员，以及来自相关国家部委的部长。

　　毛寿龙认为，三中全会公报提出了“五位一体”改革，以及军队、党建等多方面改革，“如果只涉及政府改革，或者仍局限于经济体制改革，那么可以由总理担任组长。之前的国家体改委就采用了这样的组织架构模式。但是涉及军队、党建这样的全面改革，组长可能由总书记担任”。

　　此外，按照惯例，中央全面深化改革领导小组应下设办公室。毛寿龙认为，办公室主任应该由中央书记处书记或者正部级以上官员出任，推动全面实施，“顶层设计”的政策真正落实。

　　6 如何看“领导责任”

　　地方党委应设统筹协调机构，推进改革

　　三中全会公报提到，中央成立全面深化改革领导小组，“各级党委要切实履行对改革的领导责任”。

　　对此，受访专家们认为，公报强调，“必须加强和改善党的领导，充分发挥党总揽全局、协调各方的领导核心作用”。在中央全面深化改革领导小组的基础上，各省份党委也应设立改革统筹协调机构，保证改革的“顶层设计”能够自上而下贯彻实施，同时破解盘根错节的地方利益格局。

　　迟福林说，要求党委履行对改革的领导责任，这意味着“统筹协调、整体推进、督促落实”将成为党委的职责，“特别是‘推进’和‘落实’各项改革决策和部署，将成为各级党委的主要任务”。

　　迟福林认为，“五位一体”改革中，政治体制改革的任务尤为艰巨，“在政治体制改革中，各级党委将发挥重要作用”。

　　7 发改委职责会变吗

　　“发改委宏观经济调控等职责将更明晰”

　　中央全面深化改革领导小组成立后，原来担负改革职能的发改委，工作职责会有什么样的变化？

　　毛寿龙认为，中央全面深化改革领导小组是党中央设立的改革最高领导机构，发改委是国务院的组成部门，二者是中央和中央部门之间的关系。发改委应该作为领导小组的成员单位之一，一方面负责完成领导小组布置的任务，另一方面继续履行“监测宏观经济和社会发展态势、提出宏观调控政策建议、解决经济运行中的重大问题”等职责。

　　他表示，本届政府履新以来，以行政审批制度改革和机构改革，促进职能转变。行政审批制度改革涉及较多的部门中，就有发改委。随着改革的推进，发改委宏观经济调控等职责将更明晰。

　　8 小组职能是否重合

　　新设领导小组统筹所有与改革相关事宜

　　初步统计，目前设有中央财经领导小组、党的建设工作领导小组、中央农村工作领导小组、国家安全工作领导小组、中央对台工作领导小组等多个领导小组等。全面深化改革领导小组跟其他中央领导小组，在职能划分上会不会有重合？

　　常修泽表示，各个中央领导小组之间，没有层级之分，都是党中央设立的领导机构。但从工作分工来看，中央财经领导小组、中央农村工作领导小组等，也有改革方面的职责。

　　以中央财经领导小组为例，作为中国经济的核心领导和决策部门，其工作职责包括经济运行、经济发展、经济体制改革。其中，经济体制改革、经济发展这两大职责，中央全面深化改革领导小组也会涉及。“但从全会公报来看，应是中央全面深化改革领导小组统筹协调所有与改革相关的事宜。具体的分工和合作，还需要在实践中摸索。无需置疑的是，中央全面深化改革领导小组成立后，中央财经领导小组将发挥更为重要的作用。”

　　本版采写/新京报记者 王姝

　　“啃硬骨头”的改革领导小组

　　党中央、国务院多次专设机构完成重大改革任务；此前，负责总体设计领导小组罕见，多针对具体领域

　　近5000字的报告，59次提到改革。前日，十八届三中全会发布会议公告。其中，有关“中央成立全面深化改革领导小组”的表述备受关注。

　　梳理公开资料可发现，党中央或者国务院层面专门成立改革类的领导小组等机构，已不是第一次。它们多在涉及攻克关键性的改革任务时出现，专门解决改革过程中“难啃的硬骨头”。

　　只是，以往“中”字头、“国”字头的领导小组等改革机构，多解决具体领域的问题。如经济、司法、医卫等。这次成立的全面深化改革领导小组，则“负责改革总体设计、统筹协调、整体推进、督促落实”，在此前非常罕见。

　　历史回顾

　　体改办涉部门最广

　　通过设置专门的改革机构来完成重大、重要的改革事项，目前已成为比较常见的一种方式。

　　南开大学周恩来政府管理学院博士周望，对类似的问题颇有研究。

　　据他不完全统计，1949年特别是改革开放以来，党中央、国务院设立过多种改革机构、小组。比如，“中”字头的有中央和国家机关机构改革工作小组、中央政治体制改革研讨小组等，“国”字头的有国务院体制改革办公室、国务院职称改革工作领导小组等。

　　其中，国务院体制改革办公室，“历史上牵涉领域最为广泛”。

　　那是在1980年5月，改革开放的大背景下，国务院组建了它，由时任国务院秘书长杜星垣兼任主任职务。

　　约两年后，五届全国人大决定，体改办升级为“国家经济体制改革委员会”，作为国务院组成部门。

　　国家体改委的主要任务是负责拟定全国经济体制改革的总体设计，统一研究、筹划和指导全国经济体制改革的工作。

　　1998年，九届全国人大第一次会议撤销了国家经济体制改革委员会，设置国务院经济体制改革办公室(简称“体改办”)。时任财政部长、国家税务总局局长的刘仲藜是主任。

　　2002年，任职体改办主任两年的王岐山调任海南，主任职位一直空缺。一年后，体改办与国家发展计划委员会合并，成立国家发展和改革委员会。

　　成立背景

　　多在重大会议后成立

　　周望认为，从“体改委”、“体改办”，到“发改委”所承担的实际改革工作来看，基本上限于经济领域。

　　政治、司法、文化等其他方面的改革工作，一直是通过建立专门性的改革领导小组来实施。如中央司法体制改革领导小组、中央文化体制改革领导小组、国务院深化医药卫生体制改革领导小组等等。

　　改革小组的成立，往往在党中央重要会议之后，或涉及到要攻克关键性的改革任务。“通过搭班子形式，加强攻克难关的组织保障。”周望说。

　　比如，中共十六大报告提出“推进司法体制改革”。为落实这一战略部署，2003年4月，中央政法委员会向中央提出了《关于进一步推进司法体制改革的建议的请示》。同年5月，中央组建中央司法体制改革领导小组。

　　而2003年组建的中央文化体制改革工作领导小组，也是为了贯彻实施十六大报告对深化文化体制改革，加快发展文化事业和文化产业作出的战略部署。

　　对于医疗、教育等民众改革呼声迫切的领域，国务院则分别成立了深化医药卫生体制改革领导小组、国家教育体制改革领导小组、全国农村义务教育经费保障机制改革领导小组。

　　机构特点

　　领导组长等不乏常委

　　涉及改革的领导小组等机构级别一般较高，多是部级、“超部级”。组长不乏由中央政治局常委、国务院总理或副总理兼任，具体工作由相关部委牵头实施。

　　比如，2008年12月，国务院深化医药卫生体制改革领导小组成立时的组长，是时任国务院副总理的李克强。

　　几任中央政法委书记前后担任过中央司法体制改革领导小组组长。

　　南京大学政治学博士赖静萍认为，改革机构小组主要职责是协调各部门工作，为了提高工作执行力和效率，因此其组长、组员的层级很高。

　　此次十八届三中全会宣布成立的全面深化改革领导小组组长、组员名单尚未公布。

　　前日，曾三次参与起草三中全会关于改革决议的高尚全在接受新京报记者采访时表示，他向中央有关部门和领导建议，由总书记任组长，国务院总理任副组长，中央和国务院相关负责人组成。

　　小组任务

　　改革设计必不可少

　　各个改革领导小组，在改革的设计上发挥着极为关键的作用和影响。

　　“比如，1988年的国务院机构改革方案，就是在中央和国家机关机构改革工作小组所提交的《关于党中央、国务院机构改革方案的报告》和中央书记处制定的《党中央直属机构改革实施方案》的基础上形成的。”周望说。

　　但他们的首要任务，则是专门解决改革过程中“难啃的硬骨头”。

　　这其中有涉及全局性的改革任务，如经济体制改革；有关键领域的改革，如司法、医疗、教育、住房等领域。在这些领域，涉及的改革议题又往往比较敏感。

　　中央司法体制改革领导小组于2004年底出台了《中央司法体制改革领导小组关于司法体制和工作机制改革的初步意见》，涉及改革劳动教养制度、改革和完善司法干部管理体制等等。

　　提高重特大疾病保障水平、控制医药费用等方面获得突破，是国务院深化医药卫生体制改革领导小组的诉求。

　　周望认为，以往的改革领导小组，仍然是比较单一的改革方案。十八届三中全会公报提出设立中央全面深化改革领导小组，显然是基于顶层设计的通盘考虑，把社会主义经济、政治、文化、社会、生态文明建设这五大方面的改革工作全面统筹起来，在新的历史起点上全面深化改革。

　　部分改革领导小组

　　2003年成立 中央文化体制改革和发展工作领导小组

　　2003年成立 中央司法体制改革领导小组

　　2008年成立 国务院深化医药卫生体制改革领导小组

　　2010年成立 国家教育体制改革领导小组

　　部分撤销的领导小组

　　1986年成立 撤销年月不详 国务院外贸体制改革领导小组

　　1986年成立 1998年撤销 国务院住房制度改革领导小组

　　1987年成立 撤销年月不详 国务院物资体制改革领导小组

　　1994年成立 1998年撤销 国务院外汇体制改革协调领导小组

　　1994年成立 1998年撤销 国务院财税体制改革协调领导小组

　　2001年成立 2008年撤销 国务院行政审批制度改革工作领导小组

　　2003年成立 任务完成自动撤销 国务院电力电信民航体制改革领导小组

　　2006年成立 2008年撤销 全国农村义务教育经费保障机制改革领导小组

　　国家经济体制改革委员会 原为国务院组成部门，1998年改为国务院高层次议事机构，2003年撤销，并入国家发展改革委员会。

　　■ 展望

　　专家：未来或设深化改革督导组

　　十八界三中全会公报提出，中央全面深化改革领导小组的职责包括改革总体设计、统筹协调、整体推进、督促落实这四个方面。

　　督促落实这一方面，成为关注焦点。中国社科院学部委员张卓元在接受媒体采访时称，即便改革有顶层设计，但如果没有高层强力推动，恐怕政策依旧很难落实，毕竟很多改革涉及了政府自身改革。

　　“这一次中央下了决心，都要一一落实，监督检查”，张卓元称。

　　张卓元提到，1993年十四届三中全会决定实行分税制，时任中央政治局常委、国务院副总理朱镕基专门去找18个省份负责人一个个谈，后来政策落实效果不错。

　　南开大学周恩来政府管理学院博士周望则分析，未来不排除中央全面深化改革领导小组会采用类似于“中央巡视组”的做法，派出“中央全面深化改革督导组”到地方督促改革政策的执行工作。

　　新京报记者 王瑞锋 范春旭

(原标题：中央全面深化改革领导小组八问)

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