村委书记主任一肩挑运行机制的对策思考
今年，全省村级“两委”统一进行换届选举。按照省、市委的要求，村级“两委”班子换届选举要大力提倡“两委”成员交叉任职，并力争使村级党组织书记和村委会主任“一肩挑”的比例达到三分之二。
大力推行村级“一肩挑”领导体制是推进农村基层组织建设的一项制度创新，既需要鲜活的实践，也需要深邃的思考。实践表明：实行“一肩挑”，从体制上实现了
加强党的领导与完善村民自治的有机结合，强化了领导效能；从制度上促进了村级“两委”班子的协调运转，提高了服务效能；从操作上降低了村级组织的运作成本，体现了精简效能。但是，“一肩挑”本身在实践中的潜在问题也是不可回避的，“两委”成员实行交叉任职，“一套人马，两块牌子”容易导致党政职责不分；“两委”班子一把手实行“一肩挑”，“党政权力集于一身”容易滋生权力腐败；“两委”班子由一人唱主角，“分身乏力，顾此失彼”容易损害班子整体功能等。因此，村级“两委”换届选举结束后，围绕如何扬长避短，科学规范“一肩挑”运行机制，是摆在我们面前一个现实而紧迫的重要课题。
结合“一肩挑”的运行特点，针对可能出现的潜在问题，我们应着力加强制度设计，坚持以制度规避矛盾，以制度规范运行，以制度提高效率。
一、围绕能力提升，建立健全教育培训机制
“一肩挑”领导体制对村干部的个人素质提出了更高的要求。切实加强对“一肩挑”村干部的教育培训，努力提高其岗位履职的能力素质，这是保证“一肩挑”领导体制扬长避短的重要环节。因此，必须把换届后村级“两委”干部的培训工作列入重要议事日程，纳入制度化、规范化培训轨道，依托“素质教育工程”，建立以各级党校为基地，以组织、民政、农业、科技、司法等部门联合办学为载体，以党的观念、法律法规、社会主义新农村建设、科技文化、市场经济以及组织领导艺术等为主要内容，采取脱产与半脱产相结合的形式开展培训的教育培训机制，进一步打牢村干部为人民服务的思想基础，切实提高领导水平。当前，要着重加强“三个培训”，提高“三个能力”：
1．加强民主法制培训，提高依法行政的能力。通过民主法制教育培训，使村干部进一步明确自身的权利、义务、地位和作用，提高他们的民主意识和法制观念，指导他们学会依法行政，自觉贯彻落实党的路线、方针、政策。对于利用家族、宗族势力当选的村干部，还要特别注意加强思想政治工作，教育引导他们进一步强化宗旨意识，筑牢为民服务的思想基础，自觉努力工作，自觉培养锻造感召力和凝聚力。
2．加强实用技术培训，提高致富共富的能力。按照建设社会主义新农村的要求，引导村干部特别是“一把手”把主要工作精力从做好具体、繁琐的村级事务转向积极发展壮大集体经济和带领群众致富上，通过组织各种紧密结合地区实际的实用致富技术培训，强化科技观念，学习科学技术，提高科技素质，不断提高村干部的“双带”能力，有效地指导和带领群众实行共同富裕。
3．加强岗位技能培训，提高科学履职的能力。围绕怎样做一名合格的“两委”村干部，有针对性地加强职责任务、方法技巧等方面的教育培训，使村干部掌握村“两委”的主要工作内容和基本工作程序，正确处理好民主决策与科学决策、集中领导与抓大放小、对上负责与对下负责的关系，切实提高其胜任本职岗位的能力素质。
二、科学划分职责，建立健全工作协调机制
实行“两委”班子“一肩挑”，不仅不能把村党组织和村委会的工作等同混淆，反而要进一步理清“两委”的职责，理顺“两委”的关系，做到既不偏离村党组织的核心领导，又扎实推进村民的自治进程，使村级权力运行机制向村党组织和村委会功能分立、各司其职转变，使村“两委”干部做到思想上合心、工作上合力、行动上合拍，形成既有党组织的核心领导和相应权威，又有村委会的民主决策和民主管理的新格局。
1．科学界定“两委”职责。“两委”关系不协调的一个重要原因是职责不明、分工不清、关系摆不正。要正确处理好“两委”关系，必须依据《村委会组织法》和党的《基层组织工作条例》，本着党组织管方向性、政策性、全局性大事，村委会管事务性、技术性、具体性事情的原则，结合实际以地方规范性文件的形式明确划分和科学界定村“两委”工作职责。从实践看，党支部主要应当在四个方面发挥好作用，即：政治上的领导、工作上的指导、思想上的引导和行动上的向导。政治上的领导，就是在政治上支持村委会在党的路线方针政策指导下，在国家法律法规规定范围内开展工作，保证村民自治的正确方向；工作上的指导，就是在工作上支持村委会和村民依法开展自治，经常过问村委会的工作，及时帮助解决工作中遇到的困难和问题，保证“四个民主”制度的落实；思想上的引导，就是经常组织村委会成员学习党的方针政策和国家有关法律法规，增加法制和政策观念，经常了解他们的思想，动态，及时解决思想上的问题；行动上的向导，就是党支部和党员要做遵纪守法的模范，带头致富的
construction opportunities, inheritance and innovation, to build the cloud temple of Buddhist culture, West queen culture two name card, full integration into the national provinces and cities, scenic spots construction and "Silk Road Economic Belt" construction, all efforts to build China Fobao shrine, the international Center for research on international and National West Queen Mother Buddha relic The base of cultural studies, the * * silk road has become the key point of economic sectors. The development of fusion, to fully developed culture tourism resources, improve the cultural content of tourism, the static static cultural resources and cultural elements dispersed fully activated, concentrated has a connotation, characteristic the Cultural Park, and create a bright spot, selling the traveling scenic area, and continuously improve the regional competitiveness and the impact of the cultural tourism industry * * force, efforts will create a cultural tourism has the advantage, can support across the development of county economy and the first important supporting industry.To fully grasp the project to go, strong support, efforts to improve the economic strength of the county. The project is a powerful engine to accelerate the development of county economy. The whole county to continuously strengthen the awareness of the project, in accordance with the requirements of "33411 overall" project, find the breakthrough, hold on contact, continue to strengthen for the introduction, and construction of large projects to pull huge investment, pushing and promoting the great development. To closely guide planning planning projects, reflecting the strategic. Keen on the docking state, and the "Silk Road" economic zone construction, new urbanization, and aspects of Chinese civilization inheritance and innovation area construction planning, careful argument reserve Preparation of a number of the policy oriented, able to fight to win, come to reality, support the development of the strategic project * * years, demonstration projects more than 500 reserves, to introduce more investment to win to win the initiative. To break through the conventional introduction project, embodies the initiative. On the levels of responsibility, the county building grasping the project, grasping investment, a good atmosphere for the people of the whole county leaders and departments of all the main Township, is mainly responsible for the scratch as in the past, as an important responsibility to promote the development of exhibition, grasping investment, thinking carefully plan to break the normal procedure, the project, led the fight for the project, the full introduction of the project, especially not on ecological paper Ming County, the construction of major projects to stick, tracking, until convergence, to ensure that the annual air plant, for funding for the project exceeded 800 million yuan. To focus on the integration of the implementation of the project, reflect the real effectiveness of full financial capital "" 42 pounds ", there will be a restricted project funding package use, overall planning, focused on the people most concerned about, the most urgent problem of people's livelihood and most looking forward to the economic and social development, the most significant issue, real change" and pepper "as a" hit ", and realize the project benefit maximization. Be strict with strict standards of project management, reflect the specification conscientiously implement the project to fan. Corporate responsibility system, the bidding system, the project management system as the main content of the project management system, strict approval procedures, strengthen the supervision and management of funds, to ensure that the project project specification operation, financial management.Two to persevere grasping industry, promote and promote income, further promoting the construction of new countryside. The "three rural" work is always the priority among priorities party work. The next to the development of modern agriculture, promote agricultural income of farmers as reinforce the "three rural" work, speed up the construction of New Countryside primary task. Efforts in emerging industries, and promote income, distribution facilities, strong foundation, focus on reform, build system, and make agriculture "strong", "rich" farmers, rural "beauty" ". To focus on expanding the capacity of the quality and efficiency of brand effect, promote industry development in depth market means. To continue to expand the production scale of the industry vigorously Promote the suitable area full coverage strategy, 550 thousand acres of orchard planting year, new greenhouse 2000, and shed 1000, and more than 20 breeding areas; to cultivate the main body of the market, accelerate the development of education leading enterprises, cooperative economic organization, family farms and other new market players, focus on Building Office, a group of competitive products, a complete industrial chain of "agricultural leading enterprises" in the name of the dragon, guide a farmer to increase income in market competition; to speed up the cultivation of industrial clusters, to support the red fruit Longyuan trading company, Zhengda feed, Furun poultry industry, animal husbandry industry ruentex Enterprises, expand the business. Die, to extend the industrial chain, promoting fruit, vegetables, livestock and other characteristics and advantages of industrial cluster development. To focus on the integration of multi element, to push group concept to promote the new rural construction. Focus on the construction of beautiful countryside, the planning group, the construction of ecological function, support, community service, democratic management, new farmers into the direction of reference are jade Kang Jia Wang Cun, twenty shop experience, fully integrated into the industry, ecological, cultural, tourism and other ideas, build a high standard grip * * high cliff, jade under 5 by AO Center Demonstration Village in Zhengjiagou Rui Feng; ditch, double key point, * * sanshilipu village, Wang The village relocation and Taiping Village, Wanyan Redcliffe Bay eswva project focusing on the village, the village integrated circuit Road, financial awards complement, reconstruction and other projects, and actively improve the basic conditions, big strong regulation of village environment, promoting new rural construction level. To focus on breaking the bottleneck to promote the solution bottle, comprehensive rural reform. To create the province's rural comprehensive reform demonstration county as the goal, in efforts to improve the rural homestead system, advancing into the land circulation, the innovation of financial system in rural areas, deepen the reform of forest right system and other aspects of bold exploration and innovation, new technology, effectively solve the land, capital, talent the bottleneck of system Approximately, to stimulate the development of rural vitality.Three to take measures and grasping investment, to build the park, all the extension of the total industrial economy. The industrial economy is to boost county economy, promote the optimization and upgrading of industrial structure into a breakthrough. The whole county to develop agricultural and sideline products processing, textile and building materials, energy sources such as the development of enterprise clusters, accelerate the construction of the construction industry the whole national economy. Venture investment. To encourage the people catch entrepreneurial success, leading to set up enterprises, Lingban park; constantly optimize the development environment, expanding multi investment attraction, let go of the development of non-public economy, and strive to force investment funds exceeded 44 billion yuan. To gather the elements Garden District . innovation park management mechanism, improve park infrastructure, accelerate the construction of Rui Rui River Customs Line Engineering; the enterprises in the park, in the project for land use approval number, support to expand financing, give full play to the park gathering effect.. to foster leading strong support. Focusing on playing to create "* * Textile City" objective to improve the grasp planning, to promote the two phase of the production line construction, into the natural fiber cotton industry, to ensure the completion of the main factory building and ancillary works before the end of the year, began the installation of equipment;; encourage Zhengda feed, poultry industry chain extension extension Furun, built office breeding base, the establishment of "enterprise + base + farmer households" business model Type of enterprise, realize mutual win-win. To develop resources increase stamina strength. To increase the pace of hair oil, development of coal resources, accelerate Gansu Gansu energy conversion and utilization of coal construction project area, * *, crude oil production exceeded 200 thousand tons, a strong industrial way relying on resources.Four to break through overall grasp, boosting up, accelerating urbanization. The city urbanization is the economic development of the important supporting, a significant symbol of social progress. The whole county to seize the central provinces, promote the urbanization opportunity, the county, the small town center, as the center of the village as an important node, accelerate the construction of urban and rural integration pattern. Scientific planning to actively integrate into the cloth layout. * * rich culture, ecological resources, historical elements and characteristics of the times, fully completed the fourth round of the overall planning and control features of the county planning, completed the "urban village", shantytowns planning and related construction details of The key point of regulation, careful revision of small towns and the center of the village planning, the formation of organic integration of urban and rural planning system. To accelerate the construction. To grasp the good city comprehensive development, city landscape change * * transformation, the old city street renovation project to start building little heavy, Jinghe River Bridge, the county to expand city scale, expand the city space; multi; broaden the financing channels, speed up urban construction, such as * * *, jade center, radiation driven urban and rural integrated development. To implement fine management. The city planning law enforcement and comprehensive law enforcement together, around the municipal facilities maintenance, health cleaning, market regulation and other key governance, sustainable development" Management to enhance the activities of "the year of the city tube, the establishment of scientific management mechanism, the implementation of sophisticated management, and effectively solve the dirty and messy problem, improve the level of city management, consolidate solid health county to create results.Fifth, to grasp unremittingly innovation, exploration, ways, efforts to build cultural tourism brand. The cultural tourism is the greatest potential for future economic and social development will be * *, is the biggest advantage. The whole county to seize the great opportunities of "Silk Road Economic Zone and the Chinese civilization inheritance and innovation area construction in accordance with" with the Dunhuang West, East * * * "of the objectives and requirements, the depth of excavation digging the regional culture resources, carefully build the brand of cultural tourism, as the adjustment of economic structure, change the mode of development into the new power. To elaborate planning. A focus to build a Chinese baby * * Buddha shrine, the queen mother of the West cultural birthplace. Gansu. Leisure and health resort, ecological livable city of cultural tourism city and the integration of urban and rural economic transformation demonstration county, complete the county cultural tourism development planning and the overall planning of high quality Dayun temple, fine crafted Wu Huanxian Martyrs Memorial Hall read detailed planning, leading the cultural tourism development. To accelerate the construction of major scenic spots. In accordance with the provinces and cities as the construction of scenic spots and "one by one with more than four points" space layout, to the cloud temple as the core, to the palace, Tianjiagou and South cave temple as nodes, and constantly improve the scenic spots, and strive to build the system, * * has become the core block of Pingliang --** scenic spot to actively docking. Market Hire experts. Scholars take the lead, set up special bodies, and carry out academic research, editing and publishing journal publications, promoting * * excellent culture; through the Internet, television and other modern media media and all kinds of festivals, to strengthen publicity and promotion, the introduction of a number of strategic investors, and intensify the construction of cultural tourism development, create new economic growth made to focus on training. To cultivate large industry. The formation of cultural tourism * * investment company, will focus on non heritage scenic spots and real estate assets under the overall return, unified planning, market operation, more diversified financing package, development; travel around the elements and health care, tourism travel real estate development as the starting point, construction investment Building office major cultural tourism projects; accelerate into the "New Zealand silver" regional tourism circle, fine lines, multi active lap, expand the market, improve the tourism comprehensive income.Six to the best to catch people's livelihood, build a harmonious, all-round push and promote social development. To guarantee and improve the livelihood of the people is a long-term strategic task, but also to build a harmonious society important content. The whole county should adhere to Chi Huimin benefiting the people oriented, and efforts to protect and improve people's livelihood, promote equal and quality public the process of service. To co-ordinate the development of social undertakings. Speeding up the city and rural social security system, constantly improve the social insurance coverage; insist to give priority to the development of education, improve school conditions do, balanced allocation of education resources, strengthen teaching management, to improve the quality of education in order to enhance the capacity of urban and rural areas; The health level of rural residents as the focus, continue to improve the basic medical service network; Gong consolidate national interest oriented system demonstration Fanxian to create results, improve the overall population and the level of planning work. Carefully handle Huimin practical. Carefully grasp the provincial, city and county listed in the practical handling of work, to ensure the good things, good things real, real issues related to the vital interests of the masses to solve. To push forward the anti poverty crucial. In accordance with the "village of a leading industry, household income opportunities", and vigorously promote the impoverished village big industry, full coverage, and strengthen the practical technical training, focus on grasping the set to build a batch of infrastructure project for poverty alleviation focus on. To solve the people traveling, eating draught, school, medical treatment and other issues, enhance the ability of independent development in impoverished rural areas. To continue to deepen the "double" action. On the sustained increase of the core, by village cadres household duties on the unit and responsible for the project, to help the poor rural credit funds, cultivate diverse enriching industry, improve the foundation the conditions, to accelerate the pace of development of; "home hand in hand, to build a small Kang dream" and other activities as the starting point, constantly enrich the "rich first help, common rushes off" theme activities to promote the connotation of "double action depth. To continue to carry out the innovation of social management. Give full play to the grass-roots level the main role In the village, the village environment, clean up the village finance, agricultural capital supervision, rural planning law enforcement focus on deepening the "11 three visit three" theme activities, the full implementation of the "five independent" three cooperation "mode of democratic management, and constantly improve the rural social governance of agricultural scientific and standardized level; attach great importance to production safety, and deepen peace building efforts to maintain social stability.The goal of any task, in the specific work process, we must firmly grasp the following six aspects: one is to deepen the reform as a fundamental motive force to break the bottleneck of the development. The mechanism is the most fundamental economic and social development, show the most effective, most lasting promotion factors. Facing a new round of the development opportunities, who liberated earlier, who mechanism innovation first, who will win the competition. The various departments at all levels must be tight tight around the central provinces, on deepening reform of the overall requirements, bold exploration, positive, push system, financial investment, livelihood security, the reform of land transfer and so on, really change Leather innovation into a powerful driving force to boost the development of the animal. The two is to put the planning guidance as to enhance the level of development. An important pre planning is leading, is the program, is the blueprint. Planning level, planning implementation level, decided to a place for the development of the quality and grade of all levels. All departments must firmly establish the "planning first" philosophy, to improve the planning as a strengthening of Cheng Cheng, top-level design as the condensation process of knowledge benefit by mutual discussion, consensus, strengthen planning, planning and implementation of the conscious and active movement, to improve and perfect the system of the Department of planning and strong. To promote and promote the To enhance the level of economic and social development. The three is to put the market guide as a powerful starting point around the change the way of development. The market economic system, do not pay attention to market forces, not to play the role of the market, it is very difficult to realize the quick development in the market competition. The various departments at all levels must fully understand the market in the allocation of resources no decisive role, good market research, and use the market, develop the market, cultivating the education market, correctly deal with the government and the market, the enterprise and the market, the relationship between farmers and market, in accordance with the "market + base + farmers" mode, set up an effective platform for flat pan wide masses to enter the market, with the hand market While promoting economic rapid economic development of society. The four is to put the key breakthrough as accelerating the pace of development of major initiatives. The implementation of key work focused on breakthrough is our important experience of tired accumulation in recent years. It is a pressing matter of the moment according to the plan, lead, park poly aggregation, project support ideas, give all the power of the county to promote the tourism industry, cultural industry achieved a major breakthrough in the short term, to accelerate the transformation of leapfrog development provides important support. At the same time, to co-ordinate and promote the economy through the major breakthrough in various fields of social development, concentrating power, promote the overall development of the quality, water level. Five is to put the typical cultivation As an effective way to explore the development path. Grasp construction typical, demonstration and guidance to help Party members and cadres at all levels to learn a direction, drive model, super target, positive polarity induced excitation at all levels of the organization undertaking. Departments at all levels should cultivate typical code, consolidate the promotion as a typical, typical an important task for the development of Li County, * * on in the country, the province, the overall development of the City Council to locate, careful planning, centralized catch built a number of distinctive connotation, scale, comprehensive, comprehensive influence in typical provinces and cities, to create a batch of bright little Engineering, and play the typical advanced comprehensive demonstration Effect of lead and drive the overall upgrade. Six is to put social governance as a basic work of the development of force force cohesion. The party's eighteen session of the three plenary meeting puts forward to promotesafe in urban rail transit passenger transportation system in all modes of transportation, urban mass transit security second only to aviation. The following table is a United States
construction opportunities, inheritance and innovation, to build the cloud temple of Buddhist culture, West queen culture two name card, full integration into the national provinces and cities, scenic spots construction and "Silk Road Economic Belt" construction, all efforts to build China Fobao shrine, the international Center for research on international and National West Queen Mother Buddha relic The base of cultural studies, the * * silk road has become the key point of economic sectors. The development of fusion, to fully developed culture tourism resources, improve the cultural content of tourism, the static static cultural resources and cultural elements dispersed fully activated, concentrated has a connotation, characteristic the Cultural Park, and create a bright spot, selling the traveling scenic area, and continuously improve the regional competitiveness and the impact of the cultural tourism industry * * force, efforts will create a cultural tourism has the advantage, can support across the development of county economy and the first important supporting industry.To fully grasp the project to go, strong support, efforts to improve the economic strength of the county. The project is a powerful engine to accelerate the development of county economy. The whole county to continuously strengthen the awareness of the project, in accordance with the requirements of "33411 overall" project, find the breakthrough, hold on contact, continue to strengthen for the introduction, and construction of large projects to pull huge investment, pushing and promoting the great development. To closely guide planning planning projects, reflecting the strategic. Keen on the docking state, and the "Silk Road" economic zone construction, new urbanization, and aspects of Chinese civilization inheritance and innovation area construction planning, careful argument reserve Preparation of a number of the policy oriented, able to fight to win, come to reality, support the development of the strategic project * * years, demonstration projects more than 500 reserves, to introduce more investment to win to win the initiative. To break through the conventional introduction project, embodies the initiative. On the levels of responsibility, the county building grasping the project, grasping investment, a good atmosphere for the people of the whole county leaders and departments of all the main Township, is mainly responsible for the scratch as in the past, as an important responsibility to promote the development of exhibition, grasping investment, thinking carefully plan to break the normal procedure, the project, led the fight for the project, the full introduction of the project, especially not on ecological paper Ming County, the construction of major projects to stick, tracking, until convergence, to ensure that the annual air plant, for funding for the project exceeded 800 million yuan. To focus on the integration of the implementation of the project, reflect the real effectiveness of full financial capital "" 42 pounds ", there will be a restricted project funding package use, overall planning, focused on the people most concerned about, the most urgent problem of people's livelihood and most looking forward to the economic and social development, the most significant issue, real change" and pepper "as a" hit ", and realize the project benefit maximization. Be strict with strict standards of project management, reflect the specification conscientiously implement the project to fan. Corporate responsibility system, the bidding system, the project management system as the main content of the project management system, strict approval procedures, strengthen the supervision and management of funds, to ensure that the project project specification operation, financial management.Two to persevere grasping industry, promote and promote income, further promoting the construction of new countryside. The "three rural" work is always the priority among priorities party work. The next to the development of modern agriculture, promote agricultural income of farmers as reinforce the "three rural" work, speed up the construction of New Countryside primary task. Efforts in emerging industries, and promote income, distribution facilities, strong foundation, focus on reform, build system, and make agriculture "strong", "rich" farmers, rural "beauty" ". To focus on expanding the capacity of the quality and efficiency of brand effect, promote industry development in depth market means. To continue to expand the production scale of the industry vigorously Promote the suitable area full coverage strategy, 550 thousand acres of orchard planting year, new greenhouse 2000, and shed 1000, and more than 20 breeding areas; to cultivate the main body of the market, accelerate the development of education leading enterprises, cooperative economic organization, family farms and other new market players, focus on Building Office, a group of competitive products, a complete industrial chain of "agricultural leading enterprises" in the name of the dragon, guide a farmer to increase income in market competition; to speed up the cultivation of industrial clusters, to support the red fruit Longyuan trading company, Zhengda feed, Furun poultry industry, animal husbandry industry ruentex Enterprises, expand the business. Die, to extend the industrial chain, promoting fruit, vegetables, livestock and other characteristics and advantages of industrial cluster development. To focus on the integration of multi element, to push group concept to promote the new rural construction. Focus on the construction of beautiful countryside, the planning group, the construction of ecological function, support, community service, democratic management, new farmers into the direction of reference are jade Kang Jia Wang Cun, twenty shop experience, fully integrated into the industry, ecological, cultural, tourism and other ideas, build a high standard grip * * high cliff, jade under 5 by AO Center Demonstration Village in Zhengjiagou Rui Feng; ditch, double key point, * * sanshilipu village, Wang The village relocation and Taiping Village, Wanyan Redcliffe Bay eswva project focusing on the village, the village integrated circu