Grassroots governance is the cornerstone of national governance, and the coordinated promotion of township and town (sub-district) and urban-rural community governance is a fundamental project to modernize the national governance system and governance capacity. In order to thoroughly implement the spirit of the 19th Party Congress and its 2nd, 3rd, 4th, and 5th Plenary Sessions and consolidate the foundations of national governance, we hereby propose the following opinions on strengthening the modernization requirements of the grassroots governance system and governance capacity.
I. Overall Requirements
(i) Guiding ideology: Guided by Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, we will uphold and strengthen the party’s overall leadership, adhere to the people-centered approach, take the improvement of the people’s well-being as our starting point and goal, take the strengthening of grassroots party organization construction and enhancement of the political functions and organizational strength of grassroots party organizations as the critical issue, focus on strengthening the construction of grassroots political authority and improving the system of self-government by the masses at the grassroots level, view reform and innovation, institution building, and capacity building as levers to grasp, establish and improve grassroots governance institutions and mechanisms, promote the positive interaction of governmental governance with social adjustments and resident autonomy, and improve the level of socialization, rule of law, intelligentization, and professionalization of grassroots governance.
(ii) Work principles: We will uphold the Party’s overall leadership of grassroots governance and implement the Party’s leadership throughout the entire process and over all aspects of grassroots governance. We will adhere to the concept of full-cycle management, strengthen systematic governance, governance based on law, comprehensive governance, and source governance (源头治理). We will adhere to the adaptation of measures to local conditions, categorized guidance, hierarchical advancement, and step-by-step implementation, delegate authority to and empower the grassroots level, and reduce the burden on the grassroots level. We will adhere to mutual construction, mutual governance, and mutual enjoyment and build a community of grassroots governance where all have their respective responsibilities, work diligently to fulfill them, and share in the benefits.
(iii) Main objectives: We will strive to achieve the following within about five years: Establish a grassroots governance system that incorporates the unified leadership of the Party organization, the government’s exercise of responsibilities according to law, the active coordination of various organizations, the extensive participation of the masses and combines autonomy, rule of law, and rule of virtue. We will improve the grassroots governance mechanism that dynamically connects normal-state-of-affairs management (常态化管理) and emergency management and build a grassroots management service platform featuring grid-based management, refined services, informatized support, and open sharing. Party building will lead the comprehensive improvement of the grassroots governance mechanism. The grassroots government shall be strong and powerful, grassroots masses shall enjoy full and energetic autonomy, and grassroots public services shall be accurate and efficient. The foundation of the Party’s authority will become more solid and the level of modernization of the grassroots governance system and governance capacity shall significantly improve. We will strive to achieve the following within about ten years: Basically achieve the modernization of the grassroots governance system and governance capacity and fully demonstrate the advantages of the grassroots governance system with Chinese characteristics.
II. Improve the Grassroots Governance System under the Party’s Overall Leadership
(i) Strengthen the construction of the Party’s grassroots organizations and improve the leadership system of the Party for grassroots governance. We will view grasping the grassroots level and laying the foundation as a long-term plan and consolidation of the foundation and make grassroots party organization construction into a strong fighting fortress for leading grassroots governance so as to strengthen and consolidate the role of Party building in leading grassroots governance. We will strengthen the unified leadership of township and town (sub-district) and village (neighborhood) Party organizations over various grassroots organizations and various tasks, focus on improving organizational strength, improve the relevant institutions for upholding and strengthening the Party’s leadership over grassroots governance, and ensure that important matters and major issues involving grassroots governance are determined by Party organizations after study and discussion. We will actively encourage the village (neighborhood) Party organization secretary to serve as the chairman of the village (resident) committee, and the cross-appointment of the members of the village (community) “two committees.” We will focus on clearly designating outstanding candidates recommended by the Party organization as the persons in charge of various organizations through certain procedures and ensure that the Party leadership and Party building requirements are written into the carters of various organizations in accordance with the law. We will innovate the Party organization setup and activity methods, continuously expand the Party’s organizational and work coverage, and continue to rectify weak and lax grassroots party organizations. We will promote the full extension of strict party governance to the grassroots level, strengthen routine supervision, and continue to rectify unhealthy tendencies and corruption around the masses.
(ii) We will construct a simple and efficient township and town (sub-district) management system under the leadership of the Party committee and the overall planning of the Party and the government. We will deepen the reform of grassroots institutions, coordinate the establishment, function allocation, and staffing resources of Party and government institutions, and set up comprehensive internal institutions. Except for the organizations for which the Party Central Committee explicitly requires staffing by dispatch appointment system (派驻体制), the organizations directly under the county departments in townships and towns (sub-districts) are subject to territorial management in principle If the dispatch appointment system continues to be implemented, it must be included under the unified command and coordination of the township or town (sub-district).
(iii) Improve the social participation system led by Party building. We will persist in Party building and mass building and better fulfill the responsibilities of organization, propaganda, cohesion, and service to the masses. We will coordinate the allocation of resources for grassroots Party organizations and mass organizations and support mass organizations in their performance of public service functions. We will cultivate and support grassroots public welfare, service, and mutual aid social organizations. We will support the priority of social organizations with sound party organizations and standardized management in undertaking functions and service projects transferred from the government. We will build a regionalized Party building platform, promote the joint construction between government agencies, enterprises, and institutions, and township and town (sub-district) and village (neighborhood) Party organizations, and organize party members and cadres to go down and participate in grassroots governance and effectively serve the masses.
III. Strengthen the Construction of Grassroots Political Authority Governance Capacity
(i) Strengthen the administrative and executive capacity of townships and towns (sub-districts). We will strengthen the leadership of the township and town (sub-district) Party (working) committees over the construction of grassroots political authority. We will give townships and towns (sub-districts) comprehensive management authority, overall planning and coordination authority, and emergency response authority in accordance with the law and strengthen their authority to participate in and make suggestions concerning major decisions, major plans, and major projects in the region. Based on the actual local situation, the township or town (sub-district) shall be given administrative and executive authority in accordance with the law and existing executive forces and resources shall be integrated. We will promote the administrative and executive publicity systems for townships and towns (sub-districts) and implement the “double random, one open” (双随机, 一公开) supervision model. We will optimize the administrative division of townships and towns (sub-districts) to ensure that management services effectively cover the resident population.
(ii) Enhance the capacity of townships and towns (sub-districts) to serve the people. Municipal and county-level governments shall regulate township and town (sub-district) government services, public services, public security, and other matters and decentralize services that can be undertaken directly to the masses and townships and towns (sub-district) in accordance with the law. Townships and towns must focus on tasks such as comprehensively promoting rural revitalization, consolidating and expanding the achievements made in poverty alleviation, and doing a good job in agricultural industry development, living environment construction, and care services for left-behind children, left-behind women, and left-behind elderly. Sub-districts must do a good job in municipal and city appearance management, property management, mobile population service management, and social organization cultivation and guidance. We will strengthen the construction of grassroots medical and health institutions and rural health professionals. We will optimize the township and town (sub-district) government service process, comprehensively promote one-window acceptance and one-stop processing, speed up the implementation of centralized municipal administrative processing, and gradually implement centralized cross-regional administrative processing.
(iii) Enhance the deliberative capacity of townships and towns (sub-districts). We will improve the grassroots democratic consultation system. County-level party committees and governments will determine the key points for township and town (sub-district) consultations concerning matters that involve the vital interests of the masses. The party (work) committee of the township and town (sub-district) will lead the deliberations and improve the consultation methods, such as seminars and hearings. We will pay attention to the role of deputies to the National People’s Congress and members of the Chinese People’s Political Consultative Conference (CPPCC). We will explore the establishment of a system for the public to attend township and town (sub-district) meetings as non-voting delegates.
(iv) Enhance the emergency management capacity of townships and towns (sub-districts). We will strengthen the territorial responsibilities and corresponding powers of townships and towns (sub-districts) and build a response system for social mobilization involving multiple parties We will improve the grassroots emergency management organization system, refine the emergency response plans of townships and towns (sub-districts), and do a good job in risk research and judgment, early warning, and response. We will establish an emergency management team with unified command and strengthen the assurance of emergency supplies. We will organize and carry out comprehensive emergency drills annually. Municipal and county-level governments should guide townships and towns (sub-districts) to make emergency preparations and strengthen the personnel, financial, and material support for townships and towns (sub-districts) under emergency conditions.
(v) Enhance the peace and security construction capacity of townships and towns (sub-districts). We will persist in and develop the “Fengqiao Experience” (枫桥经验, mobilizing the masses at the grassroots of society to enforce proper conduct) in the new era, strengthen the standardized construction of township and town (sub-district) comprehensive governance centers, and give play to its role as a platform for integrating social governance resources and innovating social governance methods. We will improve the grassroots public security prevention and control system and improve the long-term mechanism for preventing crime and vice. We will improve the one-stop, diversified conflict resolution mechanism and psychological counseling service mechanism for townships and towns (sub-districts).
IV. Improve the Grassroots Self-government System
(i) Strengthen the standardized construction of village (resident) committees. We will adhere to the system of party organizations leading grassroots self-government organizations, establish a legal person filing system for grassroots self-government organizations, and strengthen collective asset management. We will standardize the conditions and procedures for the abolition of village committees and the establishment of community resident committees and reasonably determine the size of the village (community) without blindly seeking to make them larger. We will give full play to the role of people’s mediation, public security, public health, and other committees under the village (resident) committee. Village committees should set up women and children’s committees, and community residents committees can add committees such as environment and property management committees and do a good job in related work. Improve the commitment and debriefing system for village (resident) committee members.
(ii) Improve the village (resident) self-government mechanism. We will strengthen the leadership role of the party organization and standardize the replacement and election of village (resident) committees, fully implement the village (community) “two committees” team membership joint qualification review mechanism, and resolutely prevent politically two-faced people (两面), people who have received criminal penalties, existing “village tyrants”, those involved in organized crime or clan-based evil forces, organizers, implementers, and participants of illegal religions and cults form entering the “two committees” of the village (community). In grassroots public affairs and public welfare undertakings, self-management, self-service, self-education, and self-supervision by the masses will be widely implemented, and the channels by which the masses can reflect their opinions and suggestions will be expanded. We will focus on facts affecting people’s lives and important matters that are of concern to the masses and conduct democratic consultations on a regular basis. We will improve the Party affairs, village (residential) affairs, and financial disclosure systems, disclose matters related to political authority in a timely manner, and accept supervision by the masses. We will strengthen the communication, collaboration, and effective connection between grassroots discipline inspection and supervision organizations and village (residential) supervision committees to form a combined force for supervision.
(iii) Enhance village (community) organization and mobilization capabilities. We will improve the mechanisms by which members of the village (community) “two committees” can contact the masses and regularly conduct household visits. We will strengthen the construction of mass prevention and governance and joint prevention and joint governance mechanisms and improve emergency response plans. In an emergency situation, the “two committees” of the village (community) will coordinate the deployment of various resources and forces in the region and organize emergency response work. We will improve management by grid services, rely on villages (communities) to divide comprehensive grids in a uniform manner, and clarify grid management service matters.
(iv) Optimize the village (community) service pattern. Municipal and county-level governments must standardize village (community) public services and delegated government service matters, and the grassroots Party organizations will take the lead in integrating resources to provide services to the masses. We will promote the construction of comprehensive service facilities in urban and rural communities, rely on them to provide services such as employment, elderly care, medical care, and childcare, strengthen care for disadvantaged groups and special-needs groups, and do a good job in the prevention and control of infectious diseases and chronic diseases. We will strengthen comprehensive service and bottom-line service capacity building. We will improve policies to support the development of the community service industry, adopt project demonstrations and other methods, implement government purchase of community services, and encourage community service agencies to cooperate with market entities and social forces. Carry out “New Era, New Community, New Life” (新时代新社区新生活) service quality improvement activities to promote the standardization of community services.
V. Promote the Construction of the Rule of Law and the Rule of Virtue at the Grassroots Level
(i) Promote the construction of the rule of law in grassroots governance. We will improve the rule of law literacy of grassroots party members and cadres and guide the masses to actively participate in, support, and cooperate with grassroots governance in accordance with the law. We will improve the grassroots public legal service system and strengthen and standardize the village (resident) legal consultation work. The township and town (sub-district) with guide the village (community) to formulate village regulations, folk agreements, and residents’ conventions in accordance with the law, improve the filing and implementation mechanisms, and ensure compliance with laws, regulations, public order, and decency.
(ii) Strengthen ideological and moral construction: We will cultivate and practice the core values of socialism and promote the reach of Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era into communities, rural areas, and families. We will improve village (community) moral evaluation mechanisms, carry out moral role model selection and commendation activities, and pay attention to the important role of family tutors and family style in grassroots governance. We will organize and carry out the popularization of basic science knowledge, health and epidemic prevention knowledge, and emergency response knowledge as well as integrity publicity and education, conduct in-depth patriotic health campaigns, curb various kinds of traditional bad habits, and resist feudal superstition activities.
(iii) Develop charitable undertakings. We will improve the incentive policies that encourage social forces to participate in grassroots governance, innovate the linkage mechanisms between communities and social organizations, social workers, community volunteers, and social charitable resources, support the establishment of mechanisms for the township and town (sub-district) purchase of social work services and the establishment of collaborative vehicles such as community foundations, and attract social forces to participate in grassroots emergency rescue. We will improve the grassroots volunteer service system and vigorously carry out neighborhood mutual assistance services and interactive exchange activities to better meet the needs of the masses.
VI. Strengthen the Construction of Grassroots Intelligent Governance Capacity
(i) Do a good job in planning and construction. Municipal and county governments must incorporate townships and towns (sub-districts) and villages (communities) into their informatization construction plans, coordinate the promotion of smart cities, smart community infrastructure, system platforms, and application terminals, and strengthen system integration, data fusion, and network security assurances. We will improve the basic-level smart governance standard system and promote technologies such as smart perception.
(ii) Consolidate data resources. We will implement the “Internet + Grassroots Governance” initiative, improve basic data such as township and town (sub-district) and village (community) geographic information, jointly build a national grassroots governance database, promote the sharing of grassroots governance data resources, and open the data to the grassroots for use as needed. We will improve the data resource sharing and exchange mechanisms of townships and towns (sub-districts) and departmental government information systems. We will promote the construction of village (community) data resources, implement the comprehensive collection of village (community) data, and achieve one-time collection and utilization by multiple parties.
(iii) Expand application scenarios. We will accelerate the construction of a national integrated government service platform, promote the extension of local government service platforms to townships and towns (sub-districts), build and develop a smart community information system and simple application software, improve the level of digitization and intelligentization of grassroots governance, and improve the efficiency of policy publicity, communication of people’s sentiments, and convenience services, so that data will do more of the work and the masses will not have to do as much. We will fully consider the habits of the elderly, promote barrier-free information services suitable for the elderly, and retain necessary offline service channels.
VII. Strengthen organizational assurance
(i) Consolidate the responsibilities of Party committees and governments at all levels. Party committees and governments at all levels must strengthen the organization and leadership of grassroots governance, improve the deliberation and coordination mechanisms, strengthen overall planning and coordination, regularly study grassroots governance work, plan urban and rural community construction, governance, and services as a whole, and help solve difficulties and problems at the grassroots level in a timely manner. We will strengthen the evaluation of the effectiveness of grassroots governance work and use the evaluation results for the assessment of municipal and county-level party and government leading groups and leading cadres as well as important content for the Party committee secretary’s grasp of grassroots party building, debriefing, appraisal, and assessment. Party committees and governments at the municipal and county levels must play the role of front-line headquarters, and townships and towns (sub-districts) must improve their implementation capabilities. Organizations, political and legal affairs, and civil affairs departments must promptly submit policy recommendations to the Party committee and the government.
(ii) Improve assessment and evaluation at the grassroots level. Party committees and governments at the municipal and county levels must regulate the powers and responsibilities of townships and towns (sub-districts) and villages (communities) and provide corresponding support for entrusted work outside their own authority and responsibility. Without the unified deployments of the Party committee and the government, various functional departments shall not delegate their own authority and responsibilities to townships and towns (sub-districts) or villages (communities). We will improve the assessment and evaluation system and incentive methods, strengthen the comprehensive assessment of townships and towns (sub-districts) and villages (communities), and strictly control the total amount and frequency of assessments. We will coordinate and standardize the supervision and inspection of the grassroots level, clean up and standardize the work ledgers, reports, and “one-vote veto” projects, and sign the responsibility statements, issue certification items, and create demonstration projects to effectively reduce the burden on the grassroots level. We will do a good job in fault tolerance and correction and protect the enthusiasm of grassroots cadres to perform their duties with initiative (干事创业).
(iii) Ensure investment in grassroots governance. We will improve the funding assurance mechanism for townships and towns (sub-districts) and further deepen the reform of the centralized payment system for the township and town (sub-district) treasuries. We will formulate construction plans for the urban and rural community service system, incorporate the construction of comprehensive service facilities into land and space planning, and optimize the layout of comprehensive service facilities in the urban and rural communities with the party-mass service center in the base position. All provinces (autonomous regions and province-level municipalities) must clarify their functional area standards of townships and towns (sub-districts) and villages (communities) for offices, services, events, and emergencies, adopt methods such as revitalizing existing resources or new construction in accordance with relevant regulations, and support the construction and improvement of grassroots positions.
(iv) Strengthen the construction of grassroots governance teams. We will fortify the backbone force of grassroots governance and strengthen the construction of teams of grassroots Party workers. Party committees at all levels must formulate training plans specifically, explore the establishment of a hierarchical training system for grassroots cadres, make good use of urban and rural grassroots cadre training bases and online training platforms, and strengthen the training and use of grassroots governance talents. We will promote the prioritization of townships and towns (sub-districts) in the allocation of staffing resources and encourage cross-level transfers of administrative and business staff from top to bottom. We will strictly implement the regulations on the tenure adjustment and minimum service period of township and town (sub-district) cadres and implement township and town work subsidy policies for the staff of township and town agencies and institutions. We will establish and improve the reserve talent pool of village (community) party organization secretaries and implement the filing-based management of county-level party committee organization departments by village (community) party organization secretaries. We will study and formulate policies and measures to strengthen the construction of urban and rural community worker teams. Municipal and county governments must comprehensively consider the number of residents served and other factors to formulate standards for the deployment of community workers; improve the professional system of community workers, establish a post and salary system and improve dynamic adjustment mechanisms, implement social insurance benefits, and explore the inclusion of full-time grid personnel into the management of community workers. We will strengthen the construction of urban and rural community service talent teams and guide college graduates to engage in community work.
(v) Promote innovation in grassroots governance. We will accelerate the construction of grassroots governance research bases and think tanks and strengthen theoretical research on socialist grassroots governance with Chinese characteristics. We will carry out demonstration work for grassroots governance with cities (prefectures, states, and leagues) as the basic unit, strengthen the construction of grassroots governance platforms, and encourage grassroots governance reforms and innovations. We will earnestly summarize the experience gained in the prevention and control of the COVID-19 epidemic, make up for the shortcomings in community prevention and control, and effectively consolidate the community’s prevention and control position. We will improve grassroots governance laws and regulations, revise the Organic Law of the Urban Residents Committee of the People’s Republic of China and Organic Law of the Villagers’ Committees of the People’s Republic of China in due course, and study and formulate community service regulations.
(vi) Create a good atmosphere for grassroots governance. We will select outstanding examples for the commendation of advanced models of grassroots governance and promote the creation of a nationwide harmonious community. We will do a good job in the survey and statistics of grassroots governance and establish a grassroots governance survey system to reflect the satisfaction of the masses. We will organize and carry out special publicity concerning grassroots governance.