Chapter 42 Chapter 40 Standardize the path of cadres' secondment

At present, there is an urgent need to solve the problems existing in the cadre temporary post system, so as to continuously achieve breakthroughs in system innovation and ensure that this system will play a greater role on the premise of continuous improvement. The news that famous talker Wang Zhi went to serve as the deputy mayor of Lijiang City in Yunnan spread like wildfire, and it was widely circulated in the society. On the morning of October 22, 2008, Wang Zhi arrived in Lijiang to take up his post.So far, the rumors about his appointment have been settled. The so-called secondment, some experts explain, is a kind of temporary employment behavior in which cadres go to another place (post) to entrust specific duties for training without changing the administrative relationship.This time, Wang Zhi's secondment has become the focus of public opinion, not so much because of his special status, but because the public has become confused and suspicious of the institutional arrangement of secondment.

It is understood that, as an important part of the personnel system for cadres, cadres' post-job training has been implemented in my country for many years, and has become an important routine political phenomenon from the central government to the local government in my country's political life, or a "quasi system" ". However, the reporter's investigation found that there are still some disadvantages in the current cadres' temporary assignments in my country, such as extensive management of the organization and personnel department, and unclear authority and responsibility of each main unit. To a certain extent, it has affected the social image of party and government organs and temporary cadres.

Relevant experts interviewed believed that secondment has undoubtedly had a profound impact on the training and training of cadres in our country and the operation of China's real politics.At present, there is an urgent need to solve the problems existing in the cadre temporary post system, so as to continuously achieve breakthroughs in system innovation and ensure that this system will play a greater role on the premise of continuous improvement. On October 15, 2008, Chongqing welcomed the ninth batch of doctoral service groups to Chongqing from the Organization Department of the CPC Central Committee and the Central Committee of the Communist Youth League.According to statistics, from July 1997 to the present, Chongqing has introduced 123 doctors to take temporary positions through the activities of the doctor service group, and 23 of them voluntarily stayed in Chongqing, and 19 of them took up leadership positions above the deputy department level.

In our country, people have long been familiar with the training of cadres on temporary assignment.During the Yan'an period, the government of the Shaanxi-Gansu-Ningxia Border Region sent a large number of cadres to the grassroots to assist in the collection of grain taxes.After the founding of the People's Republic of China, the party and the government sent cadres to the grassroots for temporary posts many times in order to achieve work goals at different stages.Since the reform and opening up, temporary posts of cadres have been endowed with new connotations of the times, and are used in the main battlefield of cadre training and economic construction.

With the emergence of the role of cadres' temporary posts in our country, the system of cadres' temporary posts has also been gradually fixed and legalized. Article 66 of the Civil Servant Law of the People's Republic of China stipulates: "According to the needs of training and training civil servants, civil servants may be selected and dispatched to lower-level or higher-level agencies, other regional agencies, and state-owned enterprises and institutions for training." On September 6, 1991, the Central Committee of the Communist Party of China promulgated the "Decision on Quickly Training and Educating Young Cadres". Corresponding regulations have been made on the whereabouts of temporary training, job arrangement, management and education.

In the "Notice on Relevant Issues Concerning Cadre Temporary Training Work" promulgated by the Organization Department of the Central Committee of the Communist Party of China on September 29, 1994, the objects and conditions for selecting and dispatching cadres for temporary post training, the whereabouts and job arrangements of cadres for temporary post training, and the handling of cadres for temporary posts The exercise program and other aspects have been further refined. In June 2000, the "Outline for Deepening the Reform of the Cadre and Personnel System" issued by the Organization Department of the Central Committee of the Communist Party of China gave cadres a clear status as a temporary post, which is called the "cadre temporary post training system."

On May 29, 2006, Yin Weimin, then Vice Minister of the Ministry of Personnel, said at the "Civil Servant Spirit Seminar" held in Shanghai that my country will explore the establishment of a grassroots training system for cadres. "In the future, the state will plan to send cadres to the front line of reform and opening up, to places with more difficult and difficult conditions, and to places where the grassroots and the masses need it most to undergo training and tests and increase their skills." So, how many cadres in the country have been suspended?The reporter was unable to find an authoritative statistic, but according to a large number of reports, if the cadres who have been suspended in various forms are counted, it must be a huge team!

The reporter's investigation found that although the temporary cadres mentioned in many documents of the central government, most of them specifically refer to cadres in party and government organs.However, in actual operation, in accordance with the central government’s requirement to promote the institutionalization of cadre exchanges and to unblock the normal flow of cadres among party and government agencies, state-owned enterprises, and public institutions, temporary cadres have already broken through the scope of cadres in power departments. Education, news, literature and art circles There are also many people who go to the government to take jobs.

A typical example is the famous cross talk actor Niu Qun, who went to Mengcheng, Anhui Province as a deputy county magistrate in 2000, and later successfully converted to a full-time job.Similarly, Xiong Ni, a famous diving star, went to Chaoyang Development Zone, Yiyang City, Hunan Province in March 2002 to serve as the deputy secretary of the working committee of the management committee and the deputy head of the district. In August 2003, He Huili, an associate professor of China Agricultural University, went to Lankao County, Henan Province to serve as the deputy county magistrate. It has always been a practice in the literary and art circles for writers to hang up their posts.For example, Haoran, the author of "The Golden Avenue", has been working in Sanhe City, Hebei Province since 1986.

It is understood that the job arrangements for temporary cadres in various places include both virtual and real jobs, such as assistants at all levels and rural work instructors.Real positions such as city, county, township (town) party and government deputy positions, etc., and a small number of village party branch secretaries. The reporter's investigation found that my country's cadres' temporary posts have formed various forms such as top hanging, bottom hanging, flat hanging, and external hanging.Hanging up refers to the cadres of grassroots units, especially the grassroots cadres in the western regions and ethnic minority areas, who go to the central state organs and developed regions to take temporary posts.The lower-level assignment refers to the assignment of cadres by the higher-level organs to the lower-level organs, especially to the western regions or the old revolutionary bases.Flat placement refers to the mutual exchange of cadres and mutual appointment between various departments of the country and between corresponding provinces and cities.

In recent years, this kind of temporary job has also developed to foreign countries, which is called cheating.For example, on September 1, 2003, 48-year-old South Korean cadre Lee Dong-ho went to Bozhou, Anhui Province to take a temporary post.Prior to this, Zhang Guanjun, a cadre of the Bozhou City Planning Commission, also went abroad to work in South Korea for training. "From the current point of view, the number of people who are suspended is the most prevalent, and it is expanding. Compared with other forms of secondment, the number of people is much smaller." Professor Li Chengyan, a doctoral supervisor at the School of Government and Administration of Peking University, said in an interview with reporters, "The change of cadres' secondment It is only the working relationship of the temporary cadres. The personnel and administrative relations and salary relations are retained in the original unit, and do not account for the number of the assigned unit. When, who is selected to be assigned to the unit, and what position the cadre is assigned and how long is the time, etc. , are determined by the relevant organization department and organized and implemented in advance through consultation with the unit that accepts the temporary cadres. After the temporary training is over, there will generally be a two-way selection based on the wishes of both parties.” "The reason why cadres' temporary positions can be implemented on a large scale and last for a long time is related to the organization and personnel department's understanding of the quality of cadres." Professor Qi Shanhong, a doctoral supervisor at Nankai University, told reporters that the organization and personnel department has always emphasized comprehensiveness in the selection of cadres Development, both ability and political integrity, are often entrusted with heavy responsibilities to those who are experienced and good at doing mass work, and the temporary position just provides a platform for training such cadres. From October 2002 to October 2003, Professor Gong Weibin of the National School of Governance once held the post of Deputy Mayor of Haimen City, Jiangsu Province, and has a personal experience of the post. "Various forms of temporary positions are of positive significance not only to the temporary workers themselves, but also to the units and regions that select and receive temporary cadres." On November 2, 2008, Gong Weibin said in an interview with reporters, "Temporary positions Temporary cadres can increase their practical work experience, increase their talents, and withstand the tempering and training of practical work. Sometimes the temporary position can also enable the units and regions that accept the temporary cadres to get some support and help in terms of technology, projects, ideas and information. " During the interview, the reporter learned that many of the cadres take on “special tasks” on temporary positions, such as attracting investment, bringing corresponding funds and projects, assisting enterprises in restructuring, and so on.In addition, when selecting cadres for temporary positions, not only strong work ability and good political quality are emphasized, but also there are rigid requirements for education and age. "When selecting temporary cadres in various places, they basically follow the steps of individual registration, unit recommendation, organization department inspection, party committee or selection agency decision." A staff member of a Beijing agency who has worked in the organization department for a long time revealed to the reporter, "Currently, There is not enough democracy and transparency in the selection of temporary cadres, so that some cadres with little training value are squeezed into this rank. Some units even turn this system into a tool for power struggle-some unit leaders consider the balance. One of the subordinates who do not agree with each other arranges temporary posts; some unit leaders send out those cadres who do not obey their own discipline; others, in order to balance the power struggle, send some of the cadres who cannot be assigned positions temporarily to temporary posts.” During the follow-up interviews, the reporter found that because most of the cadres are temporarily on duty for a short period of time, ranging from a year or a half to two or three years, short-term behavior is unavoidable among temporary cadres, and the idea of ​​"passing by" is also common. Some cadres They even regard temporary employment as public-funded travel, lacking the ideological motivation to undergo training and improve skills at the grassroots level. "Actually, not all accepting units welcome temporary cadres. This is related to the design problems of our cadre temporary post system." The reporter had a friend who once served as a deputy county magistrate in a county in Hunan. The unit also has a lot of concerns. They are afraid of disrupting the normal work order, and they are unwilling to assign specific, in charge of a certain aspect of work to the temporary cadres. At the same time, the temporary cadres are "airborne", and the masses do not understand their abilities and lack the basis of public opinion. Work is often difficult to carry out.” According to the regulations of the national personnel department, organs above the sub-provincial level must ensure that at least one-third of the newly recruited cadres have more than two years of grassroots work experience.According to the available data, in the 2008 central state organ cadre examination recruitment, the central party and the central state organs required as much as 50% of the grassroots work experience; in Hainan Province's 2008 cadre recruitment examination, about half of the recruited positions required grassroots work experience; Among the approximately 2,300 cadres and office staff recruited by the 2006 examination in Shanghai, about one-third were required to have more than two years of work experience at the grassroots level, and so on. "When inspecting cadres, the organizational department attaches great importance to whether the cadres have grass-roots work experience." According to a grassroots official in a city in Yunnan Province, "Cadres who come down to temporary positions will be promoted in most positions after returning. Therefore, some temporary positions The cadres are not strict with themselves, and regard the temporary post as gold-plated. They think that the significance of the temporary post lies in having such an experience. As long as they stay for enough time, they can complete the task. There is a good identification." According to many people, due to loopholes in the system, some cadres basically fell into the "three no-regards" cadres during their temporary posting period, that is, the sending unit did not want to take care of them, the receiving unit did not dare to take care of them, and the higher-level organization department was "out of reach".Some cadres work in the countryside in the local area, but live in the city, and take the bus every day to leave early and return late, spending a lot of time on the road.Some of them simply go out in the name of running a project or asking for funds within a few days, and outsiders have no way of knowing their whereabouts. The reporter learned that many sending units are not very enthusiastic about arranging temporary posts for cadres, because many candidates for temporary posts are the backbone of the unit, and sending them to temporary posts will not only affect the work of the unit, but also bear their wages, bonuses and a certain amount of temporary posts. subsidy.Therefore, some dispatched units basically let the temporary cadres go their own way.For many accepting units, temporary cadres are "airborne" because their backgrounds are unknown, and they are afraid of offending them. They are inconvenient at work and dare not give hard tasks, so that the temporary cadres have nothing to do. In some places, temporary cadres are regarded as liaison officers for building relationships with higher-level units or developed regions and running projects, and do not undertake the management work corresponding to their positions. "At present, there are many problems worth noting about temporary assignments, which greatly weaken the role of this system." Professor Zhang Ming from the Department of Political Science at Renmin University of China said in an interview with reporters, "The original purpose of temporary assignments is to train cadres and let them understand the following situation. But Now there are two biases for temporary cadres. One is that they can’t do anything below, and they drink and eat every day. No matter how good or bad the person who is on the job is doing, if he can win resources, he is a good cadre.” "One year of temporary employment is over in a blink of an eye. I haven't even had time to go to some towns, let alone familiarize myself with the situation." During the reporter's interview, a young cadre who had just returned to Beijing from a southern province said with emotion, " If you come back without sinking to the grassroots level, such a mere formality will not have much practical effect on the organizational department, the temporary unit and the temporary cadres." The reporter's investigation found that there are not a few temporary cadres who have such emotions.At present, the reason why cadres' temporary posts have become "tasteless" in some departments and regions is closely related to the shortcomings of our current cadres' temporary post training system. First of all, the management of the personnel department of the organization is extensive, and the assessment methods are not scientific and standardized enough.The reporter learned that although the cadre training system has become an important part of the cadre personnel system, so far it has been carried out according to the special documents of the central and local governments, lacking a unified national regulation and local implementation rules. "The organization and personnel department is not scientific enough in the selection of personnel, role positioning, job responsibilities, assignment of tasks, or in work guidance, follow-up supervision, work assessment, and combination of application and application." Qi Shanhong believes, " In the "Civil Servant Law of the People's Republic of China", post-job training is only briefly mentioned as one of the communication forms of cadres, lacking specific operational regulations. There is a lack of scientific and strict index system and inspection methods in job assessment. Among cadres Regarding the combination of appointment and use, there are no detailed explanations in the various appointment rules, but it is only generally stipulated that 'the outstanding performance of the appointment will be promoted and used first', which provides the possibility of unhealthy employment." "Some temporary cadres go to temporary posts because they are motivated by profit, in order to have one more promotion condition after returning to the original unit." Zeng Guangyu, deputy secretary-general of the 10th Beijing Committee of the Chinese People's Political Consultative Conference and deputy chairman of the Beijing Municipal Committee of the China Democratic National Construction Association, was interviewed by reporters. Said, "As an organizational department, it often regards the temporary post as a promotion condition, and does not look at whether the temporary cadres have made achievements during the temporary post, and the performance of the temporary post is not decided by the local people who are posted, but by the local department. Identification is a mere formality." Secondly, the powers and responsibilities of each main unit are not clear, and there is no effective management of temporary cadres.The reporter learned that the authority and responsibility of the implementing unit, sending unit, receiving unit, and temporary cadres have not been clearly stipulated in the temporary cadre system, and there is a serious vacuum in the management of temporary cadres. "Relevant regulations on temporary posting of cadres are relatively vague in many places and lack operability." Li Chengyan believes, "As the organization department of the implementing unit, it is generally satisfied with the inspection at the end stage. As the receiving unit of the business supervisory unit, in the daily business management It is difficult to connect with the final assessment of the organization department, and the management of the personnel administration of the sending unit is 'out of reach', and this kind of 'vacuum' in management and assessment has led to the laissez-faire cadres." Furthermore, some "variant" appointments are contrary to relevant laws and affect the social reputation of party and government organs and temporary cadres.In recent years, with the extension of the connotation of temporary employment, there have been "variants" of temporary employment for cadres such as "temporary employment in private enterprises", which has caused adverse effects among the masses. In the name of serving private enterprises and diverting cadres, the "job craze" in private enterprises is in the ascendant in some places.For example, as an "attempt to cultivate compound talents", relevant departments of the Beijing Haidian District Government began to send government personnel to private high-tech enterprises in the first half of 2006. In random interviews with reporters, many people believed that cadres brought power into the market, which could easily lead to a separation between officials and businessmen, resulting in new corruption, which in turn would damage market fairness. "Sending cadres to private enterprises is a variant of the background of strictly prohibiting cadres from doing business." Qi Shanhong believes, "Officials are officials, and businessmen are businessmen. Cadres directly intervene in enterprises, and it is easy for government departments to form interest chains with temporary enterprises and institutions. , The integration of government and business has resulted in the unfair distribution of social resources and provided the possibility of corruption.” Many interviewed experts believe that secondment, as a mode of training cadres, has played a lot of positive significance.However, with the development of the times, temporary positions have gradually revealed some disadvantages. The central government should improve and innovate the system so that temporary positions can play a greater role in the training and training of cadres. There are also temporary jobs abroad, but it is not as common as in our country.According to Gong Weibin, the temporary positions in some countries are mainly carried out jointly with civil servant training institutions. They have clear training objectives and assessment methods, carefully designed training procedures in advance, carefully selected temporary units and positions, and have special instructors. Regular team discussions and exchanges are held, and the results of on-the-job training are clearly linked to the use after graduation.After graduating from the French National School of Administration, 100 civil servants will be ranked according to their grades, and the first place will be the first to choose a work unit, and so on.Gong Weibin believes that these methods are worth learning from the personnel departments of organizations at all levels in our country, so as to further improve our country's cadre training system. "Currently, the deployment and arrangement of temporary positions are based on the relevant documents of the central and local governments, and it is necessary to formulate a national unified regulation on temporary positions of cadres." Associate Professor Yang Zhonghong of the School of Humanities and Social Sciences, Beijing Institute of Petrochemical Technology believes, "Whether it is in the selected A set of scientific and detailed regulations must be established in terms of personnel, role positioning, job responsibilities, and assignment of tasks, as well as in work guidance, follow-up supervision, work assessment, and combination of appointment and use. For example, there must be a scientific and rigorous index system in work assessment and testing methods." "The cadre temporary position system should clarify the purpose of training cadres, and then refine the qualification review procedures." Zhang Ming said, "Since temporary cadres are to exercise the cadres' ability to work at the grassroots level and understand the society, you might as well go to the end and go directly to the The most basic level should be responsible for specific tasks. In case of temporary employment, you just go to the lower level to do idle work, and you will come back after a while." "Because many actors are involved in the temporary posting, there are at least two problems in the temporary posting of cadres that need to be improved." Qi Shanhong believes, "On the one hand, the authority and responsibility of various subjects such as the implementing unit, sending unit, receiving unit, and temporary cadres need to be further clarified. At present, the organization department is satisfied with the inspection at the end stage. It is difficult for the daily business management of the receiving unit to be connected with the final assessment of the organization department, and the personnel administration management of the sending unit cannot be in place. This kind of vacuum in management and assessment The phenomenon requires the establishment of a cohesion mechanism. On the other hand, whether the temporary position is a necessary condition for promotion, what proportion it accounts for in the promotion conditions, and the relationship between the temporary position and the use of promotion, need to be explained in detail in the temporary position document. " "It is necessary to formulate a nationally unified cadre temporary posting regulation or rule, and turn the principled provisions shown in the current red-headed documents into an operable legal system, and gradually standardize and guide our country's cadres' temporary posting training activities." Beijing Zhongsheng Lawyer Lawyer Du Liyuan of the firm suggested in an interview with reporters. "The Regulations on Temporary Positions of Cadres must clarify the tasks of temporary cadres and bear the corresponding responsibilities. The current system of temporary positions for cadres is incompatible with the principle of 'responsible government'. The principle of responsible government requires that powers and responsibilities be consistent. However, the characteristic of a temporary position is that it exercises power without taking responsibility—if you do a good job, you will be promoted and reused; "Whether cadres need to be elected by local people's congresses for temporary positions should be clearly defined in the law. The regulations on cadres' temporary positions should be closely integrated with our country's current system of people's congresses. Because at present, some places directly appoint temporary cadres, or let people leave after appointment. This kind of practice not only damages the seriousness of the people's congress system, but also runs counter to the spirit of ruling the country according to the law. The most important thing is that the selection and review procedures of cadres should be fair, open and just."