The Logical Evolution of Party-Building-Led Modernization of Primary-Level Governance in the New Era

I. Problem Statement and Research Progress

一、问题的提出与研究进展

Primary-level governance is the key and focal point of social governance; innovating the concepts, methods, and systems of primary-level governance is an important measure for advancing the modernization of national governance. In 2021, the *Opinions of the Central Committee of the Communist Party of China and the State Council on Strengthening the Modernization of the Primary-Level Governance System and Governance Capacity* put forward the requirement that “the mechanism for Party-building-led primary-level governance be comprehensively improved” and that “the role of Party building in leading primary-level governance be strengthened and consolidated.” This marked the first formal introduction of the important concept of Party-building-led primary-level governance, which is regarded as the necessary path and essential task for realizing the modernization of primary-level governance. On this basis, the 20th National Congress of the CPC, under the strategic goal of comprehensively building a modern socialist country, emphasized “promoting Party-building-led primary-level governance.” The Third Plenary Session of the 20th Central Committee of the CPC made “advancing the modernization of the national governance system and governance capacity” the “overall goal of further deepening reform comprehensively” and reiterated “strengthening Party-building-led primary-level governance.” How to use Party building as the lead to advance the modernization of primary-level governance and assist the modernization of national governance is a goal and task that the Party and the state must accomplish now and for a long time to come.

基层是社会治理的重难点和着力点，创新基层治理理念、方式和体系是推进国家治理现代化的重要举措。2021年《中共中央 国务院关于加强基层治理体系和治理能力现代化建设的意见》提出了“党建引领基层治理机制全面完善”“使党建引领基层治理的作用得到强化和巩固”的要求。这标志着党建引领基层治理这一重要概念的首次提出，并被视为实现基层治理现代化的必由之路和成事之要。在此基础上，党的二十大在全面建设社会主义现代化国家的战略目标下，强调“推进以党建引领基层治理”。党的二十届三中全会将“推进国家治理体系和治理能力现代化”作为“进一步全面深化改革的总目标”，并重申“加强党建引领基层治理”。如何以党建为引领推进基层治理现代化、助力国家治理现代化，是党和国家当前及今后很长一段时间需要完成的目标任务。

Primary-level governance is oriented toward the goal of modernization, and Party-building leadership is proposed precisely to realize the modernization of primary-level governance. This article discusses “Party-building-led modernization of primary-level governance” as an integrated concept. Why “Party-building-led modernization of primary-level governance” is necessary, possible, and feasible is currently a hot topic of academic discussion. Related research can be roughly divided into three types: The first is the “genesis theory,” which discusses the “orthodoxy” and inevitability of “Party-building-led modernization of primary-level governance” from the original texts of Marxist theory, the successful experience of the Party in leading primary-level governance, and the Party’s theoretical and practical innovations in the New Era. For example, it justifies the rationality of “Party-building-led modernization of primary-level governance” from the characteristics of “the Party leading society” and “organizations absorbing society.” The second is the “advantage theory,” which emphasizes that Party-building governance has outstanding advantages that transcend the bureaucratic system. It is a modern creation based on reflection on traditional primary-level social governance methods, embodying the Party’s political advantages in breaking through the predicament of the bureaucratic system. Some scholars have condensed this as “super-administrative governance” or “breaking the bureaucratic system predicament.” The third is the “model theory,” which, based on case studies of different primary-level organizations, analyzes unique local experiences from distinctive theoretical perspectives, thereby condensing different models of “Party-building-led modernization of primary-level governance,” such as “micro-governance” and “strip-block integrated governance,” exploring how the modernization of primary-level governance can be achieved under the leadership of Party building.

基层治理是以现代化为目标导向的，党建引领又是为实现基层治理现代化而提出的。本文将“党建引领基层治理现代化”作为一个整体性概念进行讨论。“党建引领基层治理现代化”何以必要、何以可能与何以可为正成为当前学界探讨的热点问题，相关研究大致可分为三种类型：其一是“生成论”，即从马克思主义理论原典、党领导基层治理的成功经验以及新时代党的理论与实践创新中论述“党建引领基层治理现代化”的“正统性”与必然性，如从“政党统领社会”“组织吸纳社会”特质出发证成“党建引领基层治理现代化”的合理性；其二是“优势论”，强调党建治理具有超越科层制的突出优势，是基于传统基层社会治理方式反思之上的现代化创造，体现了党的政治优势对科层制困境的突围，有学者将其凝练为“超行政治理”“破解科层制困境”；其三是“模式论”，即基于对不同基层组织的个案研究，以独特的理论视角分析新颖的地方经验，从而凝练出“党建引领基层治理现代化”的不同模式，如“微治理”“条块融合型治理”，探讨了在党建引领下实现基层治理现代化何以可为的问题。

The explanatory system constituted by the above three types of views, through the summarization and refinement of theory and practice, has to a certain extent formed a holistic interpretation of “Party-building-led modernization of primary-level governance.” However, existing research tends to focus on a specific historical period or a concrete governance scenario, with analysis and interpretation being predominantly static. Comparative analysis based on a dimension of change is relatively scarce. Therefore, to deeply understand “Party-building-led modernization of primary-level governance,” it is also necessary to conduct a dynamic interpretation from the perspective of the evolution and development of political concepts. Based on this, this article explores the logical evolution of “Party-building-led modernization of primary-level governance” in the New Era from the perspective of its theoretical evolution and practical expansion. It focuses on the realistic basis of its theoretical construction, the internal mechanism of its logical unfolding, and the promotion strategies of its path evolution, aiming to “increase the observation and response to the new situations and expectations of current primary-level society,” thereby providing theoretical support and practical reference for advancing the modernization of the national governance system and governance capacity in the New Era.

以上三类观点所构成的解释系统，通过对理论与实践的总结提炼，一定程度上形成了对“党建引领基层治理现代化”的整体性阐释。然而，已有研究偏重于立足某一特定历史时段或聚焦于具体治理情景，分析阐释以静态为主，基于变迁性维度、进行对比性解析的研究相对匮乏。因此，深入理解“党建引领基层治理现代化”，还应基于政治概念发展演进的视域进行动态阐释。基于此，本文立足于新时代“党建引领基层治理现代化”的理论演进与实践拓展探究其逻辑演进的脉络。并着重探讨其理论建构的现实依据、逻辑展开的内在机理与路径演化的推进策略，旨在“增加对当前基层社会执行新情况和期待的观照和回应”，进而为新时代推进国家治理体系和治理能力现代化提供理论支撑与实践参考。

II. The Logical Basis of Party-Building-Led Modernization of Primary-Level Governance in the New Era

二、新时代党建引领基层治理现代化的逻辑基础

“Party-building-led modernization of primary-level governance,” as a practical and conceptual innovation formed by the Communist Party of China during its long-term exploration of primary-level governance and clarified in the New Era, has its specific historical and contemporary connotations. From the perspective of its logical basis, the proposal of “Party-building-led modernization of primary-level governance” has distinct theoretical purport, ample historical accumulation, and a clear discursive transformation.

“党建引领基层治理现代化”作为中国共产党在长期的基层治理探索中形成并在新时代明确的实践创新与概念创新，有其特定的历史与现实意涵。从逻辑基础来看，“党建引领基层治理现代化”的提出具有鲜明的理论旨趣、充分的历史积淀和清晰的话语转换。

(I) Theoretical Purport: The Prescriptive Requirement of Using the Party’s Self-Revolution to Lead the Social Revolution

（一）理论旨趣：以党的自我革命引领社会革命的规定性要求

“Party-building-led modernization of primary-level governance,” in terms of content, can be understood through the paradigm of “the unity of Party building, Party leadership, and the Party’s cause” to grasp its logic of generation, and through “using the Party’s self-revolution to lead the social revolution” to grasp its scientific connotation. Using the Party’s self-revolution to lead the social revolution is a characteristic and advantage of the proletarian party as elucidated in the original texts of Marxism. On the one hand, having the courage for self-revolution is the distinct quality of the proletarian party. Marx once pointed out: “The class that overthrows the ruling class can only, in a revolution, throw off all the old filthy things that have clung to it, and become capable of rebuilding society.” [1]1 A traditional Chinese saying describing the limited reach of imperial state power, which typically stopped at the county level, leaving local governance to clan and gentry networks. This statement clarifies that the proletarian party needs to forge itself in revolution, and only after undergoing this self-revolution can it be better qualified to undertake the great mission of advancing the social revolution. On the other hand, advancing the social revolution is the historical mission of the proletarian party. Marx emphasized: “At a certain stage of development, the material productive forces of society come into conflict with the existing relations of production or—this merely expresses the same thing in legal terms—with the property relations within the framework of which they have operated hitherto. From forms of development of the productive forces these relations turn into their fetters. Then begins an era of social revolution.” [2]2 A military reorganization led by Mao Zedong in September 1927 in Sanwan Village, Jiangxi Province, which established the principle of placing Party branches at the company level within the Red Army, ensuring Party control over the military. At that time, the social revolution they discussed was mainly focused on the level where changes in the economic base of society trigger corresponding changes in the superstructure, and it required breaking the old world through revolutionary means.

“党建引领基层治理现代化”，从内容上看可以用“党的建设、党的领导、党的事业的统一性”的范式来理解其生成逻辑，用“以党的自我革命引领社会革命”来把握其科学内涵。以党的自我革命引领社会革命是马克思主义原典中所阐明的无产阶级政党的特征与优势。一方面，勇于自我革命是无产阶级政党的鲜明品格。马克思曾指出：“推翻统治阶级的那个阶级，只有在革命中才能抛掉自己身上的一切陈旧的肮脏东西，才能胜任重建社会的工作”。这一论述阐明了无产阶级政党需要在革命中锻造自身，经此自我革命的无产阶级政党才能更好胜任推进社会革命的伟大使命。另一方面，推进社会革命是无产阶级政党的历史使命。马克思强调：“社会的物质生产力发展到一定阶段，便同它们一直在其中运动的现存生产关系或财产关系（这只是生产关系的法律用语）发生矛盾。于是这些关系便由生产力的发展形式变成生产力的桎梏。那时社会革命的时代就到来了。”此时他们所讲的社会革命主要聚焦在社会经济基础变化引发上层建筑相应变革的层面，并且需要以革命的方式打破旧世界。

In the New Era, General Secretary Xi Jinping has made a clear definition of the Party’s self-revolution and the social revolution. First, self-revolution is the necessary path to solving the unique problems of a large party. [n1] In the process of self-revolution, the Party will continuously achieve the goals of self-purification, self-improvement, self-renewal, and self-enhancement. At the same time, the Party’s organizational capacity is continuously strengthened, and the Party’s comprehensive leadership over the primary level is continuously deepened. Second, the social revolution is different from “social system change”; it is the sum total of all links in the construction of socialist modernization. General Secretary Xi Jinping emphasized: “The social revolution, based on the contradictory movement of productive forces and relations of production, is not merely a social movement to break down the old political superstructure, but more so a movement for new social construction.” [3]3 Held in November 2013, this plenum marked a major policy shift by adopting “modernizing the national governance system and governance capacity” as a central goal of reform. Finally, the Party’s self-revolution and the social revolution are inseparable. Self-revolution is the foundation and prerequisite of the social revolution, and the social revolution is the practice and test of self-revolution. The two are unified in the new journey of socialist modernization and jointly point toward the grand goal of the great rejuvenation of the Chinese nation.

在新时代，习近平总书记对党的自我革命与社会革命做出了明确界定。首先，自我革命是解决大党独有难题的必由之路。在自我革命的过程中，党将不断实现自我净化、自我完善、自我革新、自我提高的目标。同时，党的组织力不断增强，党对基层的全面领导不断深化。其次，社会革命不同于“社会制度变革”，而是社会主义现代化建设中各个环节的总和。习近平总书记强调：“社会革命以生产力和生产关系的矛盾运动为基础，不仅仅是一种破除旧的政治上层建筑的社会运动，更是一种新的社会建设运动。”最后，党的自我革命与社会革命密不可分。自我革命是社会革命的基础和前提，社会革命是自我革命的实践与检验，二者统一于社会主义现代化建设的新征程，共同指向中华民族伟大复兴的宏伟目标。

The proposal of “Party-building-led modernization of primary-level governance” contains profound theoretical foundations. It overlaps in category, is similar in structure, and shares the same logic with using the Party’s self-revolution to lead the social revolution, conforming to the practical requirements of self-revolution and social revolution. “Party building” is the activity of “building the Party into a vibrant Marxist ruling party that always remains at the forefront of the times, enjoys the heartfelt support of the people, has the courage for self-revolution, and can withstand all kinds of tests and storms.” [4]4 Held in July 2024, this plenum focused on further deepening reform comprehensively to advance Chinese-path modernization. It includes not only the transformation of ideas and concepts but, more importantly, the transformation of the “subject world,” i.e., the Party itself, manifesting the distinct quality of the Party’s self-revolution. “Modernization of primary-level governance” is the foundational project of the modernization of national governance. The modernization of national governance, in turn, provides the path and possibility for national modernization, is an indispensable factor in national modernization, and is an important component of the Party’s cause. It involves not only the liberation and development of productive forces but also the transformation of relations of production, Party-society relations, and the form of human civilization, aligning with the value stance of the Party’s social revolution. From this perspective, “Party-building-led modernization of primary-level governance” is a symbolic manifestation and in-depth practice of using the Party’s self-revolution to lead the social revolution.

“党建引领基层治理现代化”的提出蕴含着深刻的理论依据，其与以党的自我革命引领社会革命范畴相交、结构相近、理路相通，符合自我革命与社会革命的实践要求。“党建”是“把党建设成为始终走在时代前列、人民衷心拥护、勇于自我革命、经得起各种风浪考验、朝气蓬勃的马克思主义执政党”的活动。它不仅包含改造思想观念，而且更在于改造“主体世界”即党自身，彰显了党的自我革命的鲜明品格。“基层治理现代化”是国家治理现代化的基础工程，国家治理现代化又为国家现代化提供了路径与可能，是国家现代化不可或缺的因素，是党的事业的重要组成部分。它不仅在于解放和发展生产力，也包括改造生产关系、政社关系与人类文明形态，契合党的社会革命的价值立场。由此观之，“党建引领基层治理现代化”是以党的自我革命引领社会革命的标志性呈现和纵深性践履。

(II) Historical Basis: The Foundational Advantages of the Communist Party of China in Advancing Primary-Level Governance Practice

（二）历史依据：中国共产党推进基层治理实践的基础性优势

Looking back at history, a Marxist political party whose goal is to “change the world” should extend into all major fields of practice. Under the conditions of a semi-colonial and semi-feudal society, there was a serious “vacuum” in state power governance at the grassroots level, which provided favorable conditions for the Chinese Communist Party to explore grassroots governance in areas under its partial rule. During the period of the New Democratic Revolution, the establishment and expansion of rural revolutionary base areas can be seen as a special form of rural governance carried out under special circumstances. It provided a strategic foundation for the strategy of encircling the cities from the countryside and seizing state power by armed force, and to a certain extent, it shook the traditional feudal governance model of “imperial power does not extend below the county level; below the county level, only clans rule.” [1]1 A traditional Chinese saying describing the limited reach of imperial state power, which typically stopped at the county level, leaving local governance to clan and gentry networks. The Party organization penetrated into the rural sphere, making the countryside a direct field for Party organizational activities and Party building. In the “Sanwan Reorganization,” [2]2 A military reorganization led by Mao Zedong in September 1927 in Sanwan Village, Jiangxi Province, which established the principle of placing Party branches at the company level within the Red Army, ensuring Party control over the military. Mao Zedong put forward the basic principle of “building the Party branch on the company,” marking a good beginning for the extension of Party power to the military grassroots and representing a great pioneering initiative in the Party’s practice of grassroots governance. The exploration of grassroots governance at this time provided rich practical experience for the Chinese Communist Party to construct a modern nation-state after governing nationwide. During the period of socialist revolution and construction, the Party implemented a unit-based grassroots management system in the cities, where units ran society, and adopted forms such as people’s communes and production teams in the countryside. Whether it was “building the Party branch in the unit” or “building the Party branch in the commune and production team,” both manifested as a highly centralized grassroots governance system. This was an inevitable trend as China transitioned from a “semi-colonial and semi-feudal society” to a modern nation-state, and also a powerful tool for a late-developing socialist country to advance modernization. The shift in the theme of the times required transforming the principles of Sinicized Marxism of that era into the actions of contemporary Sinicized Marxism. During the new period of reform and opening up and socialist modernization, development became the theme of the entire era, social productive forces were greatly liberated, and as different social actors became active, grassroots governance showed a trend of pluralistic differentiation. Consequently, the Party’s management of grassroots society broke out of the unit system model and began to cede space to individual and specialized forces. For example, community resident self-governance was promoted in cities, and villager self-governance was universally implemented in rural areas. The formation of an open, mobile, and pluralistic co-governance pattern in grassroots governance is an inevitable trend of the modernization process.

回顾历史，以“改变世界”为目标的马克思主义政党，应当通向一切重大实践场域。在半殖民地半封建社会状况下，基层社会存在严重的国家政权治理“真空”，这就为中国共产党在局部执政地区开展基层治理探索提供了良好的条件。在新民主主义革命时期，农村革命根据地的建立和壮大，可以被看作是在特别时期以特殊形式进行的乡村治理，它为农村包围城市、武装夺取政权提供了战略根基，也在一定程度上动摇了“皇权不下县，县下惟宗族”的传统封建治理方式。党组织深入到了农村领域，使农村成为党组织活动与建设的直接场域。在“三湾改编”中，毛泽东提出了“支部建在连上”的基本原则，标志着党的力量向军队基层延伸的良好开端，是党在基层治理实践中的伟大创举。此时的基层治理探索，为中国共产党在全国范围执政后建构现代民族国家提供了丰富的实践经验。在社会主义革命和建设时期，党在城市施行单位办社会的单位制基层管理，在农村则采取人民公社及生产队等形式。无论是“支部建在单位”，还是“支部建在社队”，二者都表现为高度集中的基层治理体制。这是中国由“双半社会”转向现代民族国家的必然趋势，也是社会主义后发国家推进现代化建设的有力武器。时代主题的转换要求将当年中国化马克思主义的原则转变为当代中国化马克思主义的行动。在改革开放和社会主义现代化建设新时期，发展成为整个时代的主题，社会生产力得到极大解放，随着不同社会主体活跃起来，基层治理呈现出多元分化趋势。由此，党对基层社会的管理突围出单位制模式，开始为个体化和专业化力量让渡空间。例如，在城市推行社区居民自治、在农村普遍实行村民自治。开放流动、多元共治的基层治理格局的形成是现代化进程的必然趋势。

From the thread of historical development, the evolution of the Party’s grassroots governance practice embodies the unity of difference and identity. The difference is manifested in the shift of historical fields and the change of the times’ themes, which also produced differences in the Party’s grassroots governance methods. The identity is manifested in the fact that Party leadership runs through the entire process of grassroots governance, which explains why the Chinese Communist Party has achieved great success in grassroots society and reflects the Party’s fine traditions and advantages in the field of grassroots governance. However, with the transformation of social contradictions in the New Era, the heterogeneous characteristics of grassroots society have become increasingly prominent, and a practical shift towards “simplified governance” has emerged in China’s grassroots governance, indicating that “Party leadership of grassroots governance” will be optimized into a more modern relationship between the Party and society and governance methods. In other words, the historical practice of the former constitutes the historical experience of the latter, and “Party leadership of grassroots governance” will become the pre-existing scenario and historical context for the continuous advancement of “Party-building leading the modernization of grassroots governance.”

从历史发展的脉络来看，党的基层治理实践的发展体现了差异性与同一性的统一，差异性表现为历史场域的切换、时代主题的变换，由此也产生了党的基层执政方式的差异。同一性表现为党的领导贯穿基层治理的全过程，由此解释了中国共产党在基层社会何以取得巨大成功，体现了中国共产党在基层治理领域的优良传统和优势所在。然而，伴随着新时代社会矛盾的转变，基层异质性特征不断凸显，中国基层治理出现了“简约治理”的实践转向，预示着“党领导基层治理”将被优化为更具现代性的政社关系与治理方式。换言之，前者的历史实践构成了后者的历史经验，“党领导基层治理”将成为“党建引领基层治理现代化”不断推进的前置情景和历史语境。

(3) Discourse Transformation: The Creative Development of the Party’s Grassroots Governance Thought since the New Era

（三）话语转换：新时代以来党的基层治理思想的创造性发展

Since the New Era, China’s social contradictions, mode of production, and international status have all undergone significant changes, thus creating a discourse transformation in the Party’s concept of grassroots governance at a new historical starting point. General Secretary Xi Jinping has made a series of important instructions and expositions on grassroots governance, profoundly implying the evolution and transformation of “Party-building leading the modernization of grassroots governance” at the discourse level.

新时代以来，我国的社会矛盾、生产方式、国际地位等都发生了很大变化，从而造就了新的历史起点上党的基层治理理念的话语转换。习近平总书记关于基层治理做出了一系列重要指示和论述，深刻蕴涵话语层面“党建引领基层治理现代化”的演变和转换。

The Third Plenary Session of the 18th Central Committee [3]3 Held in November 2013, this plenum marked a major policy shift by adopting “modernizing the national governance system and governance capacity” as a central goal of reform. first put forward the epochal proposition of “modernizing the national governance system and governance capacity,” specifying the Party’s goals and requirements for advancing national governance, including grassroots governance, in the New Era. Against the backdrop of national governance modernization, the 19th National Congress of the CPC proposed innovating social governance as an important measure to improve people’s livelihoods and enhance their well-being. Focusing on the field of grassroots governance, it emphasized strengthening grassroots organizational construction by enhancing organizational capacity, in order to better lead grassroots governance. In 2021, the “Opinions of the Central Committee of the Communist Party of China and the State Council on Strengthening the Modernization of the Grassroots Governance System and Governance Capacity” put forward the construction goal of “strengthening and consolidating the role of Party-building in leading grassroots governance.” This was the first time a central document explicitly proposed Party-building leading grassroots governance, marking that Party-building leading, as an important measure to achieve the modernization of grassroots governance, had officially become part of the national top-level design. On this basis, the report to the 20th National Congress of the CPC clearly stated the goal of basically realizing the modernization of the national governance system and governance capacity by 2035, and emphasized “enhancing the political and organizational functions of Party organizations” and “promoting Party-building-led grassroots governance.”

党的十八届三中全会首次提出了“国家治理体系和治理能力现代化”的时代命题，指明了我们党在新时代推进包括基层治理在内的国家治理的目标要求。在国家治理现代化的背景下，党的十九大提出了将创新社会治理作为改善民生、增进人民福祉的重要举措。聚焦在基层治理领域，则强调以提升组织力为重点加强基层组织建设，以更好地领导基层治理。2021年，《中共中央 国务院关于加强基层治理体系和治理能力现代化建设的意见》提出了“使党建引领基层治理的作用得到强化和巩固”的建设目标，这是首次在中央文件中明确提出党建引领基层治理，标志着党建引领作为实现基层治理现代化的重要举措正式成为国家顶层设计的一部分。在此基础上，党的二十大报告明确提出到二○三五年基本实现国家治理体系和治理能力现代化，并强调“增强党组织政治功能和组织功能”“推进以党建引领基层治理”。

On the new journey, the Third Plenary Session of the 20th Central Committee [4]4 Held in July 2024, this plenum focused on further deepening reform comprehensively to advance Chinese-path modernization. drew a grand blueprint for further deepening reform comprehensively and advancing Chinese-path modernization, and continued to emphasize “strengthening Party-building-led grassroots governance.” This marks that “Party-building leading the modernization of grassroots governance” has entered a new stage of in-depth advancement. The “newness” is manifested in two aspects: on the one hand, building the Party well is a prerequisite for leading the modernization of grassroots governance. Our Party, through means such as comprehensive and strict governance of the Party and strengthening its governance capacity, better plays the role of grassroots Party organizations as battle fortresses. On the other hand, the exercise of the leading function connects the logic of the political party with the logic of governance. Leading is not commanding, let alone determining; it is guiding and steering, with the aim of better integrating the Party’s line, principles, and policies throughout the entire process of grassroots governance modernization in a flexible manner.

新征程上，党的二十届三中全会擘画了进一步全面深化改革、推进中国式现代化的宏伟蓝图，并继续强调“加强党建引领基层治理”。这标志着“党建引领基层治理现代化”进入了深入推进的新阶段。“新”则表现为两个方面：一方面，把党建设好是引领基层治理现代化的先决条件。我们党通过全面从严治党、加强党的执政能力建设等方式，更好地发挥出基层党组织的战斗堡垒作用。另一方面，引领功能的发挥联结着政党逻辑与治理逻辑。引领不是领导，更不是决定，而是指引与领航，其目的在于以柔性的方式更好地将党的路线方针政策贯穿基层治理现代化的全过程。

The advancement of “Party-building leading the modernization of grassroots governance” represents a transcendence and transformation of the actual state of “Party leadership of grassroots governance.” Its transcendence lies in: breaking out of the “decentralization-recentralization” power relation adjustment model of “rooting-mobilization, domination-control, mobility-autonomy” characteristic of the “Party leadership of grassroots governance” stage; enabling Party-building to transcend Party affairs and function within the field of grassroots governance; and promoting innovation in contemporary Chinese social governance by fostering cross-organizational coordination and extending governance networks into the mobile society, thereby demonstrating the strong institutional advantages of China’s governance. The conceptual shift from “Party leadership of grassroots governance” to “Party-building leading the modernization of grassroots governance” marks the Party’s continuously deepening understanding of the laws of governance and the laws of grassroots governance, evolving from a macro-level interpretation based on relying on forces to a clear goal-oriented design, from the rigidity of leadership to the flexibility of leading, and from emphasizing the Party’s organizational capacity to valuing grassroots autonomy.

“党建引领基层治理现代化”的推进是对“党领导基层治理”现实状态的超越和变革。其超越性在于：跳出了“党领导基层治理”阶段“扎根—动员、支配—管控、流动—自治”的“放权—收权”式权力关系调节模式，使党建超脱党务工作作用于基层治理领域之中，并以推动跨组织协同、向流动社会拓展治理网络等方式推动了当代中国社会治理创新，彰显出中国之治的强大制度优势。从“党领导基层治理”到“党建引领基层治理现代化”的概念转换，标志着我们党对执政规律和基层治理规律的认识持续深化，从宏观的依靠力量解读细化为明确的目标导向设计，从领导的刚性演进为引领的柔性，从强调党的组织力拓展为重视基层的自主性。

III. The Logical Mechanism of Party-Building Leading the Modernization of Grassroots Governance in the New Era

三、新时代党建引领基层治理现代化的逻辑机理

“Party-building leading the modernization of grassroots governance” is a deepening process within the development of the theory and practice of the Chinese Communist Party leading grassroots governance, embodying the dual implications of the intertwining of Party building and governance modernization. From the perspective of its logical mechanism, its development and evolution first originate from a profound reflection on the relationship between the Party and grassroots society, which constitutes the starting point for practical advancement; at the same time, it closely focuses on the prominent difficulties faced in grassroots governance, thereby clarifying the goal orientation of enhancing governance effectiveness; finally, through continuously strengthening the construction of grassroots Party organizations, it forms a fundamental guideline for systematic and institutionalized advancement.

“党建引领基层治理现代化”是在中国共产党领导基层治理的理论与实践的发展中不断深化的，体现了政党建设与治理现代化相互交织的双重意涵。从逻辑机理看，其发展演进首先源于对政党与基层社会关系的深刻反思，这构成了实践推进的原点；同时，紧扣基层治理中面临的突出难题，从而明确了提升治理效能的目标指向；最终通过持续强化基层党组织建设，形成了系统化、制度化推进的根本遵循。

(1) Origin Examination: Reflecting on the Mirror Image of the Party Suspended Above Grassroots Society

（一）原点检视：以政党悬浮于基层社会为镜像审思

“The Party suspended above primary-level society” refers to a situation in which the Party and primary-level society are disembedded from each other, the Party is unable to effectively exercise its governance function as a subject, and cannot reach the nerve endings of governance, thereby leading to problems such as the “idling” of Party organizations and disorder in primary-level governance. “Suspension” has different historical evolutionary threads and forms of expression in urban and rural primary-level society. On the one hand, the Communist Party of China promoted the reform of rural taxes and administrative fees in order to adjust the “quasi-administrative” organizational nature of rural primary-level Party organizations and the tense relations with peasant households caused by the compulsory collection of taxes and fees. However, this measure severed the direct link between primary-level political power organizations and peasant households, leaving the former in a state of “suspension” in rural society. On the other hand, after reform and opening up, due to the rapid development of the economy and urbanization, the “unit system” [n5] of the planned economy period, which combined political and economic functions, gradually disintegrated. This marked the exit of the totalist mode of social management from the historical stage, and primary-level governance in cities also shifted from the Party’s deep embedding to “suspension.” In various primary-level fields, “suspension” exhibits the following characteristics: first, subject suspension — primary-level Party organizations cannot manage every aspect of primary-level society, their governance functions are “multiply differentiated,” and primary-level governance lacks a “family head” [n6]; second, capacity suspension — primary-level Party organizations often have no actual control over emerging social groups without political affiliation, such as “new economic and new social organizations” [n7]; third, value suspension — the ideology of the Communist Party of China and the scientific system of

“政党悬浮于基层社会”是指政党与基层社会相互脱嵌，政党无法有效发挥治理的主体功能，触及不到治理的神经末梢，从而导致党组织“空转”、基层治理失序等问题。“悬浮化”在城乡基层社会有着不同的历史演变脉络和表现形式。一方面，中国共产党为了调整农村基层党组织“准行政化”的组织性质以及因其强制征收税费所造成的与农户的紧张关系而推动农村税费改革。但这一举措切断了基层政权组织与农户的直接关联，基层政权组织在乡村社会呈现出“悬浮化”状态。另一方面，改革开放后，由于经济和城市化的迅速发展，计划经济时期“政经合一”的“单位制”逐渐解体，这标志着全能主义的社会管理方式退出历史舞台，城市中的基层治理也由党的高度嵌入转为“悬浮化”。在各个基层领域，“悬浮化”都表现出以下的特点：一是主体悬浮，基层党组织无法管理到基层社会的方方面面，治理功能被“多元分化”，基层治理缺少“娘家人”；二是能力悬浮，对于“两新组织”等新兴的无政治隶属关系的社会团体，基层党组织往往没有实际的控制力；三是价值悬浮，中国共产党的意识形态、马克思主义的科学体系无法深入到基层内部，拜金主义、享乐主义、历史虚无主义等错误思潮在基层社会仍有市场；四是资源悬浮，资源主要集中在上级领导部门，向基层的分配和传递存在阻隔。

In the poverty alleviation efforts of the New Era, the Communist Party of China, through methods such as dispatching village-based work teams and targeted poverty alleviation, has to a large extent achieved a sinking of Party power to the grassroots, effectively alleviating the governance problem of "suspension." [5]5 "Suspension" (悬浮化) refers to a situation where Party and state institutions, while formally present at the grassroots level, fail to effectively integrate with or respond to the needs of local society, remaining "suspended" above it rather than being embedded within it. However, after achieving a comprehensive victory in poverty alleviation, in the new development stage of consolidating and expanding the achievements of poverty alleviation and comprehensively promoting rural revitalization, or in other grassroots fields lacking extraordinary governance measures, how to avoid the "suspension" of Party organizations from grassroots society has become an urgent problem for our Party. A profound reflection on the Party's suspension above grassroots society is undoubtedly the realistic starting point for "Party building leading the modernization of grassroots governance." Solving this problem requires adhering to the unity of Party building, Party leadership, and the Party's cause. First, it is necessary to strengthen the construction of grassroots Party organizations, reinforce the Party's governance techniques, enhance the Party's governance capacity, and give full play to the Party's governance level. Second, it is necessary to empower grassroots units by expanding their authority, increasing their autonomy, and mobilizing their initiative, so that grassroots units can effectively take over the downward shift of governance focus and the sinking of resources. Finally, it is necessary to establish a linkage mechanism between the two, using "leadership" to promote the deep integration of Party building and grassroots governance, and to create a public space for seamless governance.

在新时代的脱贫攻坚中，中国共产党通过派遣驻村工作队、精准扶贫等方式，很大程度上实现了政党力量下沉，有效缓解了“悬浮化”的治理难题。然而，脱贫攻坚取得全面胜利之后，在巩固拓展脱贫攻坚成果、全面推进乡村振兴的发展新阶段，亦或是在无超常规治理手段的其他基层领域，如何避免党组织与基层社会的“悬浮化”，成为我们党亟待解决的问题。对政党悬浮于基层社会的深刻反思无疑成为“党建引领基层治理现代化”的现实出发点。解决这一问题，必须坚持党的建设、党的领导、党的事业的统一性。首先是加强基层党组织的建设、强化党的治理技术、提升党的治理能力、发挥党的治理水平；其次是为基层扩权赋能、增加基层的自主权、调动基层的积极性，使基层承接好治理重心的下移和资源的下沉；最后是建立二者的联动机制，以“引领”促进党建与基层治理的深度融合，建立无缝隙治理的公共空间。

(II) Goal Orientation: Taking the Response to Grassroots Governance Challenges as the Realistic Foundation

（二）目标指向：以回应基层治理的难题为现实依托

The grassroots level is an important field of national governance, and the modernization of grassroots governance is a foundational project for the modernization of national governance. As General Secretary Xi Jinping has pointed out: "The strongest support for the Party's work lies at the grassroots level, and the most prominent contradictions and problems in economic and social development and people's livelihoods are also at the grassroots level." Since the New Era, grassroots governance has achieved unprecedented breakthroughs, but it has also inevitably encountered many difficulties. First, the structure of grassroots governance is imbalanced. There is a structural contradiction between the administrative logic and the governance logic of grassroots society. The pressure-based system oriented towards completing higher-level tasks and objectives often gives rise to a governance scenario where administration replaces autonomy. Second, there is a lack of governance subjects at the grassroots level. This lack of governance subjects is particularly prominent in rural grassroots areas. The continuous outflow of the rural population, difficulties in their return, and the poor effectiveness of talent attraction in rural areas have led to a shortage of both endogenous and exogenous human resource supply for rural grassroots Party organizations and Party member teams, restricting the replenishment of subjects for grassroots governance. Third, grassroots governance capacity is insufficient. Whether it is the "top-down" or "top-bottom division of powers" mode of power operation, or the "top-heavy, bottom-light" or "top-light, bottom-heavy" model of governance focus and resource allocation, these all implicitly conform to the hierarchical structure of bureaucracy, failing to break free from the bureaucratic mold. Consequently, they are unable to effectively govern social organizations without administrative affiliation, nor can they effectively respond to the fragmented governance challenges arising from increased social mobility.

基层是国家治理的重要场域，基层治理现代化是国家治理现代化的基础性工程。正如习近平总书记所指出：“党的工作最坚实的力量支撑在基层，经济社会发展和民生最突出的矛盾和问题也在基层”。新时代以来，基层治理取得了前所未有的突破性进展，但同时也不可避免地遭遇诸多困境。第一，基层治理结构失衡。基层社会行政逻辑与治理逻辑之间存在结构性矛盾，以完成上级目标任务为导向的压力型体制往往催生出以行政代替自治的治理情景。第二，基层治理主体缺失。治理主体缺失在农村基层表现尤为突出，农村人口不断向外输出、回流困难且农村引才效果不佳导致农村基层党组织、党员队伍缺乏内生型和外源型人力资源供给，制约了基层治理的主体补充。第三，基层治理能力不足。无论是“自上而下”还是“上下分治”的权力运行方式，亦或是“上重下轻”“上轻下重”的治理重心和资源配比模式，事实上都暗合着科层制的层级化结构，未能走出科层化的窠臼，因而无力形成对无行政隶属关系的社会组织的有效治理，也难以形成对因社会流动性增强而导致的碎片化治理难题的有效回应。

Alleviating the difficulties of grassroots governance is an important goal of "Party building leading the modernization of grassroots governance." First, "Party building leading the modernization of grassroots governance" balances the structure of grassroots governance. It optimizes administrative logic through Party logic and achieves a coupled linkage between Party logic and governance logic. Party logic emphasizes the mission-oriented Party characteristics of the Communist Party of China. The original aspiration and founding mission of Chinese Communists is to seek happiness for the Chinese people and rejuvenation for the Chinese nation. From the perspective of governance logic, the improvement of grassroots governance levels and the achievement of the goal of modernizing grassroots governance are ultimately directed towards realizing the grassroots masses' aspiration for a better life and embarking on the path of modernization towards common prosperity for all people. Therefore, Party building leadership and the modernization of grassroots governance share a high degree of consistency in driving force and goals. Second, "Party building leading the modernization of grassroots governance" enriches the subjects of grassroots governance. In governance practice, the sinking of the Party is a prerequisite condition, and mass participation is an important measure. The Communist Party of China achieves the exogenous and endogenous development of grassroots governance subjects by dispatching grassroots work teams and cultivating the subjectivity of the grassroots masses. Finally, "Party building leading the modernization of grassroots governance" strengthens grassroots governance capacity. The report of the 20th National Congress of the CPC points out: "Taking growth through experience at the grassroots level and in arduous areas as an important way to train young cadres." The grassroots level itself is a school, and the masses are the best teachers. While grassroots Party members and staff take root in and build the grassroots level, the grassroots level is also a big stage for their growth and a testing ground for learning real skills.

纾解基层治理的难题是“党建引领基层治理现代化”的重要目标。首先，“党建引领基层治理现代化”平衡了基层治理结构。其以政党逻辑优化了行政逻辑，并实现了政党逻辑与治理逻辑的耦合联动。政党逻辑强调中国共产党的使命型政党特质。中国共产党人的初心和使命，就是为中国人民谋幸福，为中华民族谋复兴。从治理逻辑出发，基层治理水平的提高、基层治理现代化目标的达成，最终都以实现基层群众对美好生活的向往、走上全体人民共同富裕的现代化道路为指向。所以，党建引领与基层治理现代化具有高度的动力和目标一致性。其次，“党建引领基层治理现代化”充实了基层治理主体。在治理实践中，政党下沉是前提条件，群众参与是重要举措。中国共产党通过派遣基层工作队和培育基层群众主体性等方式，实现了基层治理主体的外源内生。最后，“党建引领基层治理现代化”强化了基层治理能力。党的二十大报告指出：“把到基层和艰苦地区锻炼成长作为年轻干部培养的重要途径。”基层本身就是一所学校，群众是最好的老师。在基层党员队伍和工作人员扎根基层、建设基层的同时，基层也是他们成长成才的大舞台、学真本领的试炼场。

(III) Fundamental Principle: Taking the Strengthening of Grassroots Party Organization Construction as the Main Starting Point

（三）根本遵循：以强化基层党组织建设为主要抓手

Grassroots Party organizations, as the "nerve endings" and "fighting fortresses" of the Party in grassroots society, are the foundation of the Party's governance and the source of its strength. The quality of grassroots Party organization construction not only reflects the effectiveness of the great new project of Party building but also concerns the effectiveness of socialist modernization construction and the unfolding of the overall strategic situation of the great rejuvenation of the Chinese nation. Since entering the New Era, the construction of grassroots Party organizations has received high attention from the Party Central Committee, and their organizational capacity has been effectively enhanced. At the same time, some problems still exist in the construction of grassroots Party organizations, which have had a negative impact on consolidating Party leadership and strengthening the Party's ruling foundation. First, the leadership role of grassroots Party organizations is not smoothly exerted. On the one hand, in the process of extending the Party's power to the grassroots, Party building penetration often relies on administrative means, using methods of organizational mobilization through administrative orders. This leads to Party organizations often lacking substantive leverage when facing emerging social organizations resulting from delinking and restructuring. On the other hand, some grassroots Party organizations lack a sense of mission and service awareness, lack the proactive spirit to solve difficulties for the people, and often perfunctorily respond to the demands of the masses out of habit. Second, the quality of Party members in grassroots Party organizations is not high. In rural grassroots areas, accompanied by rural aging and hollowing out, the aging of rural Party member teams is severe, the reserve force is insufficient, and the transmission mechanism of the old leading the new is not yet perfected. At the same time, the professionalization level of rural Party member teams is not high; there are cases of a half-understanding of the Party's line, principles, and policies, making it difficult to effectively implement them in practice. Third, the effectiveness of organizational life in grassroots Party organizations is poor. From the perspective of activity forms, the conduct of organizational life mostly relies on one-way indoctrination of grassroots Party members, with little effective dialogue with the grassroots masses, making full interaction between the two difficult. From the perspective of activity content, the content of organizational life in some grassroots Party organizations is relatively monotonous, and the business supply of Party building is detached from the diverse demands of grassroots governance.

基层党组织作为党在基层社会的“神经末梢”和“战斗堡垒”，是党的执政之基、力量之源。基层党组织的建设质量既反映出党的建设新的伟大工程的效果，也关乎社会主义现代化建设的成效以及中华民族伟大复兴战略全局的开展。进入新时代以来，基层党组织建设受到党中央的高度重视，组织力得以有效提升。与此同时，基层党组织建设仍存在一些问题，对巩固党的领导、筑牢党的执政根基产生了消极的影响。第一，基层党组织领导作用发挥不畅。一方面，在党的力量延伸到基层的过程中，党建渗透多是依靠行政手段，采用通过行政命令进行组织动员的方式。这导致了党组织在面对脱钩改制而来的新兴社会组织时，往往缺少实质性抓手。另一方面，部分基层党组织的使命意识和服务意识不够，缺乏为民解困的主动精神，对群众的诉求多是熟练性地敷衍。第二，基层党组织党员队伍素养不高。在农村基层，伴随着农村老龄化、空心化，农村党员队伍老龄化严重、后备力量不足且以老带新的传递机制还未完善。同时，农村党员队伍的职业化程度不高，存在对党的路线方针政策等一知半解的情况，在实践中很难有效下达。第三，基层党组织组织生活效果不佳。从活动形式上看，组织生活的开展多以基层党员的单向灌输为主，较少与基层群众有效对话，难有二者的充分互动。从活动内容来看，部分基层党组织的组织生活内容较为单调，党建的业务供给脱离了基层治理的多样性诉求。

Strengthening the construction of primary-level Party organizations is the main lever for advancing “Party building leading the modernization of primary-level governance.” As General Secretary Xi Jinping has stated: “Whether a primary-level Party organization has strong organizational capacity is tested and tempered by its implementation of major tasks.” On the one hand, strengthening the construction of primary-level Party organizations is an important measure for advancing “Party building leading the modernization of primary-level governance.” When facing the complex and intricate systemic project of primary-level governance, primary-level Party organizations must adapt to new forms and new demands through self-purification, self-improvement, self-innovation, and self-enhancement, resolving problems such as the hollowing out of political leadership, the degradation of mass organizational capacity, the weakening of social appeal, and the dilution of ideological guidance, thereby better serving as a powerful combat bastion for primary-level governance. On the other hand, the effectiveness of primary-level Party organization construction must be tested in the practice of primary-level governance. “Party building leading the modernization of primary-level governance” can reflect the degree to which the Party’s principle of governing itself strictly and comprehensively is implemented at the primary level, the degree to which the Party’s leadership methods and working methods fit the primary level, the degree to which the Party’s service capacity and service skills are realized at the primary level, and the degree to which the Party’s ideals, beliefs, and fine work style are promoted at the primary level, thereby continuously guiding the construction of primary-level Party organizations to face new tasks and move toward new goals.

强化基层党组织建设是推进“党建引领基层治理现代化”的主要抓手。正如习近平总书记所说：“基层党组织组织能力强不强，抓重大任务落实是试金石，也是磨刀石。”一方面，加强基层党组织建设是推进“党建引领基层治理现代化”的重要举措。基层党组织在面对基层治理这一纷繁复杂的系统工程时，必须通过自我净化、自我完善、自我革新、自我提高来适应新形式与新要求，解决政治领导力虚化、群众组织力退化、社会号召力弱化、思想引领力淡化等问题，从而更好地为基层治理发挥强大的战斗堡垒功能。另一方面，基层党组织建设的效果要在基层治理的实践中得以检验。“党建引领基层治理现代化”能够反映出党要管党、全面从严治党方针在基层的贯彻程度、党的领导方式及工作方法在基层的契合程度、党的服务能力和服务本领在基层的落实程度、党的理想信念和优良作风在基层的发扬程度，从而不断引导基层党组织建设面向新的任务、迈向新的目标。

IV. The Logical Path of Party Building Leading the Modernization of Primary-Level Governance in the New Era

四、新时代党建引领基层治理现代化的逻辑进路

On the new journey of the New Era, Party building leading the modernization of primary-level governance has continuously expanded and deepened in the practical dimension, gradually forming an overall advancement pattern with political leadership as the command, ideological education as the measure, organizational construction as the foundation, and capacity building as the driver. Through coordinated efforts and systematic planning, it provides solid institutional guarantees and sustained momentum support for realizing the modernization of primary-level governance.

在新时代新征程上，党建引领基层治理现代化在实践维度不断拓展深化，逐步形成了以政治引领为统领、以思想教育为举措、以组织构建为基础、以能力建设为驱动的整体推进格局。进而协同发力、系统统筹，为实现基层治理现代化提供坚实的制度保障与持续的动力支撑。

(1) Political Leadership: Consolidating the Political Foundation of the Modernization of Primary-Level Governance

（一）政治引领：筑牢基层治理现代化的政治根基

General Secretary Xi Jinping has pointed out: “Political direction is the primary issue for the Party’s survival and development, concerning the Party’s future, destiny, and the success or failure of its cause.” Political attributes are the fundamental attributes of Party organizations. Political leadership, as the primary prerequisite for “Party building leading the modernization of primary-level governance,” clarifies the guiding role of political construction in Party building, highlights the distinctive characteristics of the Chinese Communist Party’s governance of the country, and interprets the Party’s high degree of political consciousness and strong political advantages.

习近平总书记指出：“政治方向是党生存发展第一位的问题，事关党的前途命运和事业兴衰成败。”政治属性是党组织的根本属性，政治引领作为“党建引领基层治理现代化”的首要前提，明确了政治建设在党的建设中发挥的先导性作用，彰显了中国共产党治国理政的鲜明特质，诠释了我们党的高度政治自觉和强大政治优势。

First, clarifying the political direction of primary-level governance. The issue of direction is the primary issue in primary-level governance; mistakes in choosing direction can lead to catastrophic errors. As the Party’s combat bastion at the primary level, primary-level Party organizations must comprehensively implement the Party’s guiding ideology and its working principles in primary-level governance, grasp the laws of development, master historical initiative, and lead primary-level governance toward the path of socialist primary-level good governance with Chinese characteristics, achieving the development goal of “modernizing the primary-level governance system and governance capacity, and fully demonstrating the institutional advantages of the primary-level governance system with Chinese characteristics.” Second, deepening the Party’s comprehensive leadership over the primary level. Upholding and strengthening the Party’s comprehensive leadership over the primary level is both a fundamental political principle of the Party’s primary-level work and a practical need to better serve the masses and serve the primary level. Specifically, it is necessary to take “Party building +” as the lever to ensure that Party leadership penetrates all areas and links of primary-level governance. For example: taking “Party building + geography” as the lever, utilizing the Party building organizational network and working mechanisms to promote “cross-sector, cross-industry, cross-administrative-unit collaboration” [n], advancing the construction of building-based Party building, business district Party building, industrial park Party building, and mobile Party branches, and “adapting measures to local conditions” to achieve resource integration, effective governance, and Party member management within the region; taking “Party building + governance issues” as the orientation, facing the complex governance scenarios brought about by diverse interest demands, primary-level Party organizations must focus on the “urgent, difficult, and anxious” problems of the people in primary-level governance, closely integrate Party building activities with the work and life of the masses, reconstruct the functions of primary-level Party organizations, reorganize the structure of primary-level social relations, reshape the pattern of primary-level mass interests, effectively enhance the cooperation of the masses, and promote the role of multiple actors. Third, perfecting the institutional system for the Party’s self-revolution. Self-revolution is an important means of solving the unique problems of a large Party [n] and plays an irreplaceable role in maintaining the autonomy and dominance of the Party’s leadership in primary-level governance. It is necessary to ensure the Party’s advanced nature and integrity through institutional construction, ensuring that the Party’s long-term ruling position remains unshaken. According to governance needs, improve and implement the institutional system for comprehensive and strict governance of the Party, the institutional system for clean governance and anti-corruption, and the institutional system for discipline inspection and supervision, providing institutional system guarantees for governing the Party and managing the Party, continuously enhancing the degree of institutionalization of power operation, regulation, supervision, and restriction, and effectively eliminating interference from interest groups and the phenomenon of elite capture in primary-level governance.

其一，明确基层治理的政治方向。方向问题是基层治理的首要问题，方向选择失误会导致颠覆性错误。基层党组织作为党在基层的战斗堡垒，要全面贯彻党的指导思想和党在基层治理中的工作原则，把握发展规律、掌握历史主动，引领基层治理走向中国特色社会主义基层善治之路，实现“基层治理体系和治理能力现代化，中国特色基层治理制度优势充分展现”的发展目标。其二，深化党对基层的全面领导。坚持和加强党对基层的全面领导，既是党的基层工作根本政治原则，也是更好服务群众、服务基层的现实需要。具言之，要以“党建+”为抓手，确保党的领导渗透基层治理各领域各环节。例如：以“党建+地缘”为抓手，利用党建组织网络和工作机制推动跨行业、跨领域、跨行政单位的“条块协作”，推进楼宇党建、商圈党建、园区党建以及流动型党支部建设，“因地制宜”实现区域内资源整合、有效治理与党员管理；以“党建+治理问题”为导向，面对多样化的利益需求带来的复杂治理情景，基层党组织要聚焦基层治理中人民群众“急难愁盼”的问题，将党建活动与群众工作生活紧密结合，重构基层党组织职能、重组基层社会关系架构、重塑基层群众利益格局，有效提升群众的配合度，推进多元主体作用发挥。其三，完善党的自我革命制度体系。自我革命是解决大党独有难题的重要手段，对于维系党领导基层治理的自主性与主导性起到不可替代的作用。要以制度建设保证党的先进性与纯洁性，确保党的长期执政地位不动摇。根据治理需要完善和落实全面从严治党制度体系、反腐倡廉制度体系、纪检监察制度体系，为管党治党提供制度体系保障，持续提升权力运行、规范、监督和制约的制度化程度，有力排除基层治理中的利益集团干扰与精英捕获现象。

(2) Ideological Education: Consolidating the Value Support for the Modernization of Primary-Level Governance

（二）思想教育：夯实基层治理现代化的价值支撑

Mao Zedong once pointed out: “Mastering ideological education is the central link in uniting the whole Party for great political struggles. If this task is not resolved, none of the Party’s political tasks can be accomplished.” Correct ideological forms are the precursors to the formation of scientific value concepts, and scientific value concepts are the criteria for judging action. It can be said that the dual measures of truth and value should and must achieve organic unity in the practice of primary-level governance led by the Chinese Communist Party. It is in this sense that Party organizations emphasize arming primary-level society with ideology to exert the function of value guidance.

毛泽东曾指出：“掌握思想教育，是团结全党进行伟大政治斗争的中心环节。如果这个任务不解决，党的一切政治任务是不能完成的。”正确的思想形态是科学价值观念形成的先导，科学价值观念是行动的判断标准。可以说，真理与价值的双重尺度应当也必须在中国共产党领导的基层治理实践中实现有机统一。正是在这个意义上，党组织强调以思想武装基层社会以发挥价值指引功能。

First, using ideological education to drive value cohesion in primary-level society. China’s current primary-level society is in a complex period of transition, where existing diverse value concepts mutually undermine each other, and a value synergy has not yet formed. When facing different target groups, primary-level Party organizations should adopt flexible and adaptable methods to transmit mainstream ideology. When facing units within the system, ideological education should place more emphasis on excavating traditional value concepts and carrying out institutionalized political education activities. When facing units outside the system, it is necessary to absorb general value concepts widely accepted by modern society to advance work, such as integrating the goal of improving people’s livelihoods with modern corporate social responsibility for publicity and education, thereby gaining support more easily and constructing the “greatest common divisor” of value consensus for the whole society. This “value common divisor” is then used as the dialogue foundation for primary-level governance, thereby laying the value foundation for promoting collaborative governance among all parties. Second, using ideological education to strengthen the construction of the Party’s fine work style. In the process of Party power sinking to the primary level, the primary-level Party member team goes deep among the masses and serves as the Party’s window for presenting its image to the masses. The fundamental foothold of work style construction lies in the transformation of thinking within the primary-level Party member team. For example: cultivating the value pursuit of “people-centeredness.” Using a holistic view of the people to transcend individual interest pursuits, guiding primary-level Party cadres to form the spiritual pursuit of “I will have no self, and live up to the people” [n]. Encouraging Party cadres to bravely take responsibility, bravely act, and dare to act in primary-level work, and concretizing the Party organization’s mission and responsibility at the primary level into quantifiable and assessable indicator requirements, clarifying the responsible subjects. Third, using ideological education to advance the process of building rule by virtue at the primary level. Rule by virtue is dedicated to solving the ideological problems of people hidden behind issues, playing a very unique function in primary-level governance. It can appear as an independent governance method or supplement and empower autonomy and rule by law. Currently, the production methods and living conditions under which traditional local moral concepts function have changed. Therefore, it is necessary to seek points of integration and growth between tradition and modernity. Primary-level Party organizations should excavate the governance elements of traditional moral values, adhere to the direction of Marxist moral concepts, promote the integration of the core socialist value system with local traditional rule-by-virtue resources, and construct a new pattern of rule by virtue in primary-level society. At the same time, in the specific process of implementation, the informal norms of morality should be extracted from the empirical world to form operationalized rules and details.

第一，以思想教育带动基层社会价值凝聚。当前的中国基层社会正处于复杂的转型期，现有的多样价值观念相互消解，价值合力还未形成。基层党组织在面对不同受众群体时，应采用灵活应变的方式传递主流意识形态。在面对体制内单位时，思想教育要更注重对传统价值理念的挖掘和开展制度化的政治教育活动。在面对体制外单位时，要吸纳现代社会广为接受的通识化价值理念来推进工作，比如将改善民生的目标与现代企业社会责任融通起来进行宣传教育，从而更容易获得支持，构建全社会价值共识的“最大公约数”。并且将“价值公约数”作为基层治理的对话基础，从而为推进各方协作共治奠定价值根基。第二，以思想教育强化党的优良作风建设。在政党力量下沉的进路之中，基层党员队伍深入群众，是党向群众展现自身形象的门户。作风建设的根本落脚点在于基层党员队伍的思维转换。例如：培育“人民至上”的价值追求。以整体的人民观超越个体的利益追求，引导基层党员干部形成“我将无我，不负人民”的精神追求。鼓励党员干部在基层工作中勇担责任、勇于作为、敢于作为，并将党组织在基层的使命担当具象化为可量化可考核的指标要求，明确责任主体。第三，以思想教育推进基层德治建设进程。德治致力于解决隐藏于问题背后的人的思想的问题，在基层治理中发挥着非常独特的功能，既可以作为独立的治理方式出现，又可以为自治和法制补位增能。当前，本土传统道德观念发挥作用的生产方式和生活条件已经变迁，因此，要寻求传统与现代的结合点与增长点。基层党组织要发掘传统道德价值的治理要素，坚持马克思主义道德观方向，推动社会主义核心价值体系与本土传统德治资源相融合，构建起基层社会的新型德治格局。同时，在具体践行过程中，要将道德的非正式规范从经验世界里提炼出来，形成可操作化的规则明细。

(3) Organizational Construction: Perfecting the Institutional Guarantee for the Modernization of Primary-Level Governance

（三）组织构建：完善基层治理现代化的体系保障

General Secretary Xi Jinping has pointed out: “Continuously improve the quality of organizational work, to better provide a strong organizational guarantee for the Party’s great self-revolution leading the great social revolution, and for advancing the construction of a strong country and the great cause of national rejuvenation.” The Chinese Communist Party has long possessed a powerful organizational advantage in concentrating resources to accomplish major tasks. The essence of organizational construction lies in unleashing the Party organization’s mass organizational capacity and social appeal, thereby unblocking the capillaries of primary-level governance, perfecting and improving the primary-level governance system, and providing an institutional guarantee for advancing the modernization of primary-level governance.

习近平总书记指出：“不断提高组织工作质量，为更好地以党的伟大自我革命引领伟大社会革命，推进强国建设、民族复兴伟业提供坚强组织保证。”中国共产党素有集中力量办大事的强大的组织优势，组织构建要义在于发挥党组织的群众组织力和社会号召力，进而打通基层治理末梢、完善健全基层治理体系，为推进基层治理现代化提供体系保障。

On the one hand, build cross-organizational collaboration platforms. Building cross-organizational collaboration platforms with Party building as the bond is an important organizational form for promoting pluralistic co-governance. Simply setting up a platform does not easily generate the willingness of diverse subjects to participate, and relying solely on intra-system constraints is insufficient to sustain the ongoing development of cross-organizational Party building work. Therefore, in the process of platform construction, the principle of shaping the interdependence of different social subjects must be followed. Under normal circumstances, various types of organizations within a region often have objective or potential dependencies in resource allocation, professional division of labor, and business fields. At this point, primary-level Party organizations need to carry out diversified organizational activities to promote exchanges and cooperation among different types of organizations, consolidate existing dependencies, and develop potential governance resources. When the explicit degree of interdependence among organizations within a region is insufficient, primary-level Party organizations should enhance inter-organizational linkages through refined development, incorporate socially similar organizations into organizational platforms with specific governance goals, build stable cooperation mechanisms, and thereby enhance the platform’s absorptive capacity and influence. On the other hand, innovate mechanisms for mobilizing diverse subjects. To mobilize multiple subjects to participate in primary-level governance and to give play to the Party’s mass organizational capacity and social appeal, primary-level Party organizations should utilize organizational operational methods such as social organization of the Party and socialized Party building. Social organization of the Party requires incorporating diverse social subjects into the political actions of primary-level governance through political absorption—that is, granting political identity to new village elites [8]8 New village elites (新乡贤): A term referring to individuals of virtue and talent who return to or engage with rural communities to contribute to local governance and development, distinct from traditional rural gentry., returning youth, capable individuals from various industries, and other socially virtuous persons willing to participate in primary-level governance, thereby enhancing their political discourse. Socialized Party building focuses on reflecting on the overly political bias of traditional Party building methods, emphasizing the enhancement of the openness and sociality of Party building activities. Primary-level Party organizations should meet the diverse needs of the grassroots by organizing public welfare activities and conducting volunteer services, changing the previous “aloof” and “self-entertaining” state of disembedding in Party building activities, thereby achieving the goal of using Party building activities to fill the gaps in primary-level governance. Social organization of the Party and socialized Party building mutually promote and complement each other. In practice, the two must be closely integrated: social organization of the Party provides organizational support for socialized Party building, while socialized Party building, with its characteristic of reshaping the spirit of neighborliness, provides an emotional bond for social organization mobilization.

一方面，构建跨组织协作平台。以党建为纽带构建跨组织协作平台是推动多元共治的重要组织形式。单纯的平台搭建不容易引起多元主体的参与意愿，仅依靠体制内约束也不足以维持跨组织党建工作的持续开展。所以，在平台搭建过程中，要以塑造不同社会主体的相互依赖性为原则遵循。在通常情况下，区域内各类组织往往在资源配置、专业分工和业务领域存在客观或潜在的依存关系，这时基层党组织需要展开多样化的组织活动促进不同类型组织加强交流合作，筑牢已有的依存关系，开发出潜在的治理资源。当区域内组织间的显性依赖度不足时，基层党组织应以精细化发展的方式增强组织间的联结，通过将功能相近的社会组织纳入特定治理目标的组织平台，构建稳定的合作机制，以提升平台的吸纳力和影响力。另一方面，创新多元主体动员机制。为了动员多方主体参与基层治理，发挥党的群众组织力与社会号召力，基层党组织应利用社会组织化和社会化党建等组织运作方式。社会组织化要求通过政治吸纳的方式将多样社会主体纳入到基层治理的政治行动之中，即赋予新乡贤、返乡青年、各行业能人等有志参与基层治理的社会贤达政治身份，增强其政治话语。社会化党建着重于对传统党建方式偏重政治性的反思，强调增强党建活动的公开性与社会性。基层党组织应通过组织公益活动、进行志愿服务等方式对接基层群众的多样化需求，改变以往党建活动“高高在上”“自娱自乐”的脱嵌化状态，从而实现以党建活动补齐基层治理短板的目标。社会组织化与社会化党建二者相互促进、相辅相成，在实践中，要将二者紧密结合，以社会组织化为社会化党建提供组织依托，以社会化党建重塑睦邻精神的特性为社会组织化动员提供情感纽带。

(4) Capacity Building: Strengthening the Subject-Driven Modernization of Primary-Level Governance

（四）能力建设：强化基层治理现代化的主体驱动

General Secretary Xi Jinping emphasizes: “The national governance system and governance capacity are the concentrated embodiment of a country’s system and its system-execution ability. The two complement each other; relying on either alone to govern the country will not work.” [9]9 Xi Jinping, “Explanation of the ‘Decision of the Central Committee of the Communist Party of China on Several Major Issues Concerning Comprehensively Deepening Reform’” (November 9, 2013), in *Selected Readings of Xi Jinping’s Works*, vol. 1 (Beijing: People’s Publishing House, 2016), p. 499. National governance capacity is both an independent element in national governance and runs through the entire process of building the national governance system, playing an important supporting role in perfecting the national governance system. Primary-level governance capacity is the state capacity extended to primary-level society. Primary-level Party organizations, as the subjects of primary-level governance capacity, emphasize leading the modernization of primary-level governance through capacity building.

习近平总书记强调：“国家治理体系和治理能力是一个国家的制度和制度执行能力的集中体现，两者相辅相成，单靠哪一个治理国家都不行。”国家治理能力既是国家治理中的独立要素，又贯穿于国家治理体系建设的全过程，对完善国家治理体系发挥着重要的支撑作用。基层治理能力是延伸至基层社会的国家能力。基层党组织作为基层治理能力的主体，强调以能力建设引领基层治理现代化。

On the one hand, primary-level Party organizations must forge strong political capacity. General Secretary Xi Jinping points out: “Among the various capacities needed by cadres to do their work well, political capacity is the foremost.” [10]10 Xi Jinping, “Speech at the Opening Ceremony of the Training Course for Young and Middle-Aged Cadres at the Central Party School (National Academy of Governance)” (September 1, 2019), in *Selected Readings of Xi Jinping’s Works*, vol. 3 (Beijing: People’s Publishing House, 2021), p. 529. To improve the political capacity of primary-level Party members and cadres, first, they should enhance their comprehension through the study of political theory. Primary-level Party members and cadres should persist in studying the original texts of Marxism, deeply grasp its basic principles, earnestly study the spirit of General Secretary Xi Jinping’s series of important speeches, and improve their ability to use Marxist standpoints, viewpoints, and methods to analyze and solve practical problems. Second, they should enhance their judgment through engagement in practice. Primary-level Party members and cadres must discern the essence of things and the laws of development amid various risks and challenges, be adept at detecting political clues in subtle details, and make correct political decisions in safeguarding the interests of the Party and the people. Third, they should enhance their execution by carrying forward the spirit of struggle. In the New Era, facing new challenges, risks, and difficulties, it is necessary to wage a great struggle with many new historical features. [11]11 A reference to Xi Jinping’s call for a “great struggle with many new historical features,” first articulated in his report to the 19th National Congress of the CPC in 2017. Primary-level Party members and cadres must both carry forward the spirit of struggle in arduous efforts and strengthen their ability to struggle in overcoming difficulties. On the other hand, primary-level Party organizations must hone proficient professional capacity. First, they must firmly establish the awareness of serving the people. Primary-level Party organizations should firmly establish the development concept of relying on the people, for the people, and serving the people. In the process of policy formulation and implementation at the primary level, meeting the people’s needs and solving their difficulties should be placed in the foremost position. They should correct the erroneous tendency of substituting leadership for service and effectively promote the organic integration of leadership and service. Second, they should improve the level of serving the people. In the New Era, characterized by drastic changes in social production and life and the diversification and multi-level nature of the people’s needs, primary-level Party organizations must keep pace with the times, continuously optimize working methods, and enhance service levels. For example, in the face of powerless governance scenarios caused by the fragmentation of primary-level resources and institutional segmentation, primary-level Party organizations can utilize emerging technologies such as big data, artificial intelligence, and blockchain to effectively integrate fragmented information. For instance, using mobile applications, social software, portal websites, and other online platforms to sort out the people’s needs, implement a “menu-style” management model, and thereby promote the convenience and precision of governance.

一方面，基层党组织要锻造过硬的政治能力。习近平总书记指出：“在干部干好工作所需的各种能力中，政治能力是第一位的。”提高基层党员干部的政治能力，一是要以政治理论学习提升领悟力，基层党员干部应坚持学习马克思主义原著原文，深刻领会基本原理，深入学习习近平总书记系列重要讲话精神，并提升运用马克思主义的立场、观点、方法分析解决实际问题的能力。二是在投身实践中提升判断力。基层党员干部要在应对各种风险挑战中认清事物本质和发展规律，擅长于细微之处发现政治端倪，在维护党和人民的利益中做出正确的政治决断。三是以发扬斗争精神提升执行力。在新时代，面对新的挑战、风险和难题，必须进行具有新的历史特点的伟大斗争。基层党员干部既要在艰苦奋斗中发扬斗争精神，又要在攻坚克难中增强斗争本领。另一方面，基层党组织要磨炼娴熟的业务能力。首先要筑牢为人民服务的意识。基层党组织要牢固树立依靠人民、为了人民、服务人民的发展理念，在基层的政策制定与实施过程中，把满足人民需求、为民解困摆在首要位置。纠正以领导替代服务的错误倾向，切实推进领导与服务的有机融合。其次是提升为人民服务的水平。在社会生产生活变革剧烈和群众需求多样化、多层次的新时代，基层党组织必须保持与时俱进、不断优化工作方式、提升服务水平。如面对基层资源分散化、体制分割化造成的无力化治理情景，基层党组织可利用大数据、人工智能、区块链等新兴技术，有效整合碎片化信息。譬如：利用手机应用、社交软件、门户网站等网络平台梳理群众需求，施行“菜单式”管理模式，进而推进治理的便捷化、精准化。

Conclusion

结语

The Third Plenary Session of the 20th Central Committee of the Party emphasized: “The overall goal of further deepening reform comprehensively is to continue to perfect and develop the system of socialism with Chinese characteristics and to advance the modernization of the national governance system and governance capacity.” [12]12 “Communiqué of the Third Plenary Session of the 20th Central Committee of the Communist Party of China” (July 18, 2024). Governing the country and ensuring peace and stability depend on the primary level. Primary-level governance is the foundational project of national governance, and the modernization of primary-level governance provides the pathway and possibility for the modernization of national governance. Party building leading the modernization of primary-level governance highlights the fundamental role of the political party in the process of achieving governance modernization in a late-developing modernized country, and it concerns the process of comprehensively building a modern socialist country. Using logical foundation, logical mechanism, and logical pathway as the analytical framework to dynamically, comprehensively, and systematically examine the evolutionary process and development trajectory of Party building leading the modernization of primary-level governance not only deepens the understanding of advancing the modernization of the national governance system and governance capacity but also helps to highlight the Chinese characteristics and unique advantages of Chinese-path modernization. From the perspective of the “Party-society” relationship, Western-proposed social centrism, corporatism, or state centrism cannot solve government failure, market failure, or social failure in primary-level governance. Party building leading the modernization of primary-level governance, then, demonstrates the orientation of the ruling party in leading, organizing, and integrating primary-level society and coordinating the vitality and order of primary-level governance. From the perspective of the “Party-government” relationship, Party building can enhance the governance efficiency of the government and better respond to comprehensive, complex, and urgent tasks. This is fundamentally different from the Western context, where the government is separate from the political party and emphasizes bureaucracy. In summary, Party building leading the modernization of primary-level governance, as a primary-level governance paradigm with Chinese characteristics, has important practical significance for perfecting the social governance system and enhancing the effectiveness of primary-level governance modernization.

党的二十届三中全会强调：“进一步全面深化改革的总目标。继续完善和发展中国特色社会主义制度，推进国家治理体系和治理能力现代化。”治国安邦重在基层，基层治理是国家治理的基础性工程，基层治理现代化为国家治理现代化提供了路径与可能。党建引领基层治理现代化彰显了政党在后发现代化国家实现治理现代化过程中的根本性作用，关乎全面建设社会主义现代化国家的进程。以逻辑基础、逻辑机理和逻辑进路为分析框架，动态、全面、系统地考察党建引领基层治理现代化的演进过程与发展脉络，不仅能够深化对推进国家治理体系和治理能力现代化的认识，而且有助于彰显中国式现代化的中国特色和独特优势。从“政党—社会”关系视角来看，西方所主张的社会中心主义、法团主义或国家中心主义都无法解决基层治理中的政府失灵、市场失灵与社会失灵，那么党建引领基层治理现代化则演绎了执政党引领、组织和整合基层社会并统筹基层治理活力与秩序的面向。从“政党—政府”关系的角度来看，党建引领能提升政府的治理效率，更好地应对综合性、复杂性和紧迫性的工作，这与西方情景中政府分立于政党之外而强调的科层制亦有本质区别。总的来说，党建引领基层治理现代化作为具有中国特色的基层治理范式，对于健全社会治理体系，提升基层治理现代化的效能具有重要的现实意义。

(The authors are: a professor at Northwestern Polytechnical University, director of the Shaanxi (University) Philosophy and Social Science Key Research Base “Center for the Innovative Development of Marxist Theory”; and a doctoral student at Northwestern Polytechnical University.)

（作者系西北工业大学教授，陕西(高校)哲学社会科学重点研究基地“马克思主义创新发展研究中心”主任；西北工业大学博士研究生）

Online editor: Ma Jingren

网络编辑：马京仁