The Internal Logic of the “Three Distinctions” and Further Deepening Reform Comprehensively

At the Third Plenary Session of the 20th Central Committee of the CPC, Xi Jinping emphasized: “Establish and practice a correct outlook on political performance, implement the ‘Three Distinctions,’ and encourage cadres to forge ahead, start undertakings, and do solid work.” [1] Following his initial proposal at a study session for principal leading cadres at the provincial and ministerial level on implementing the spirit of the Fifth Plenary Session of the 18th Central Committee—where he stated: “Distinguish between errors and mistakes made in promoting reform due to lack of experience and exploratory trials, and deliberate violations of discipline and law committed with full knowledge; distinguish between errors and mistakes in exploratory experiments where no clear restrictions have been set by higher authorities, and violations of discipline and law committed after higher authorities have explicitly prohibited them; distinguish between unintentional faults made in the course of promoting development, and violations of discipline and law committed for personal gain” [2]—Xi Jinping has repeatedly articulated on important occasions: “Strictly implement the ‘Three Distinctions,’ tolerate cadres’ errors and mistakes in their work, especially in reform and innovation, and promote their creative work” [3]; “Improve the cadre assessment and evaluation mechanism, strictly implement the ‘Three Distinctions,’ and provide support and encouragement for cadres to boldly innovate and explore” [4]; “While maintaining the ‘strict’ keynote over the long term, we must also be adept at making the ‘Three Distinctions’” [5]. At the same time, the Party Central Committee has frequently discussed and emphasized this requirement in the Party’s political reports, the formulation of intra-Party regulations, and plenary sessions of the Central Committee, fully expressing the importance and urgency of implementing the “Three Distinctions” and highlighting their significant role in the development of the Party’s and the state’s undertakings. As the Third Plenary Session of the 20th Central Committee sounded the clarion call of the era for further deepening reform comprehensively and advancing Chinese-path modernization, implementing the “Three Distinctions” holds special significance for thoroughly implementing the spirit of the Third Plenary Session of the 20th Central Committee, further promoting comprehensive deepening of reform, and vigorously advancing Chinese-path modernization.

习近平在党的二十届三中全会上强调：“树立和践行正确政绩观，落实‘三个区分开来’，激励干部开拓进取、干事创业。” [1] 继在省部级主要领导干部学习贯彻党的十八届五中全会专题研讨班上，首提“把干部在推进改革中因缺乏经验、先行先试出现的失误和错误，同明知故犯的违纪违法行为区分开来；把上级尚无明确限制的探索性试验中的失误和错误，同上级明令禁止后依然我行我素的违纪违法行为区分开来；把为推动发展的无意过失，同为谋取私利的违纪违法行为区分开来”[2] 以来，习近平在多个重要场合持续发表“严格落实‘三个区分开来’，宽容干部在工作中特别是改革创新中的失误，促进他们创造性开展工作”[3]；“要完善干部考核评价机制，严格落实‘三个区分开来’，为干部大胆创新探索撑腰鼓劲”[4]；“既要把‘严’的主基调长期坚持下去，又要善于做到‘三个区分开来’”[5] 等重要论述。同时，党中央在党的政治报告、党内法规制定、中央全会等频频论述和强调这一要求，充分表达了落实“三个区分开来”的重要性与紧迫性，凸显了“三个区分开来”在党和国家事业发展中的重要作用。随着党的二十届三中全会吹响了以进一步全面深化改革、推进中国式现代化的时代号角，落实“三个区分开来”对深入贯彻党的二十届三中全会精神、进一步推动全面深化改革、大力推进中国式现代化更具有特殊的重要意义。

I. The Scientific Connotation and Contemporary Value of the “Three Distinctions”

一、“三个区分开来”的科学内涵与当代价值

The combination of strict management and care, and the equal emphasis on incentives and constraints, has always manifested the essence of our Party’s ideological line and organizational line. It serves as the “one body with two wings” of governing the Party and managing cadres, and is a valuable and important experience in our Party’s cadre policy and guidelines. The two are always mutually conditional, interactive, and non-contradictory. In January 2016, Xi Jinping proposed the “Three Distinctions,” emphasizing that errors and mistakes made by cadres in reform exploration out of public-mindedness and without subjective intent should be tolerated, distinguishing them from cases of deliberate violation with full knowledge or seeking personal gain. The report of the 19th National Congress of the CPC clearly articulated the contemporary requirement of combining strict management with care and balancing incentives with constraints. The report of the 20th National Congress of the CPC clearly revealed the central task of the Party in the New Era. In the New Era, our Party’s emphasis on the “Three Distinctions” is a contemporary expression of combining strict management with care and a contemporary need for deeply implementing the Party’s central task.

严管厚爱结合、激励约束并重，向来彰显着我们党的思想路线、组织路线的精髓要义，是治党治吏的“一体两翼”，是我们党的干部路线和方针政策弥足珍贵的重要经验。两者始终互为条件、相互作用、并行不悖。2016年1月，习近平提出“三个区分开来”，强调对干部在改革探索中出于公心、无主观故意所犯失误错误予以包容，区别于明知故犯、谋取私利等情况。党的十九大报告鲜明阐释了严管和厚爱结合、激励和约束并重的时代要求。党的二十大报告鲜明揭示了新时代党的中心任务。新时代我们党强调“三个区分开来”，是严管厚爱结合的时代表达，是深入落实党的中心任务的时代需要。

(A) The “Three Distinctions” emphasize precisely constructing a fault-tolerance mechanism orientation, aiming to encourage cadres to dare to act in the “breakthrough” agenda of further deepening reform comprehensively

（一）“三个区分开来”，强调精准构建容错机制导向，旨在鼓励干部在进一步全面深化改革“突破性”议程中敢于作为

Since our Party embarked on the magnificent journey of reform and opening up, it has always emphasized promoting the exploratory spirit of “crossing the river by feeling the stones.” Chinese-path modernization likewise has no ready-made samples or paths to copy, and consistently requires Party members and cadres to dare to take risks, brave dangerous shoals, and charge forward. “Exploration may lead to mistakes, and doing things may lead to errors.” [6] Undertaking endeavors always carries risks; one cannot expect every task to succeed without failure. In response to the real-life problem where some cadres fear being held accountable for exploratory mistakes, leading to phenomena such as “daring not to act,” “acting poorly,” or “not acting at all”—collectively termed “officials not

自从我们党开启波澜壮阔的改革开放征程，就始终强调弘扬“摸着石头过河”的探索精神。中国式现代化，同样没有现成可搬的样本与路径，一如既往需要党员干部敢冒险、涉险滩、善冲锋。“探索就有可能失误，做事就有可能出错。”[6] 干事业总是有风险的，不能期望每一项工作只成功不失败。针对现实生活中一些干部担忧探索失误被追责问责，由此出现“不敢为”“不善为”“不作为”等“为官不为”的问题和现象，习近平深刻指出，“解决干部敢干事问题，就要建立容错纠错机制，严格落实‘三个区分开来’”[7]。

To further advance the practical guidance of the “Three Distinctions,” in 2018 the General Office of the CPC Central Committee issued the *Opinions on Further Encouraging Broad Cadres to Take on New Responsibilities and Make New Achievements in the New Era*, which emphasized implementing the “Three Distinctions,” “establishing and improving a fault-tolerance and error-correction mechanism, and tolerating cadres’ mistakes and errors in reform and innovation,” and further stipulated principles and methods: “It is necessary to properly grasp principles such as putting the cause first, seeking truth from facts, acting in accordance with discipline and law, and combining tolerance with correction, and to conduct a comprehensive analysis of cadres’ mistakes and errors based on factors such as motivation and attitude, objective conditions, procedures and methods, nature and severity, consequences and impact, and the recovery of losses.” Many localities across the country have also issued policy documents to promote the construction of fault-tolerance and error-correction mechanisms. Jinan issued the *Implementation Measures (Trial) on Supporting Party Members and Cadres in Undertaking Entrepreneurship and Establishing a Fault-Tolerance and Liability-Exemption Mechanism*; Shenzhen issued the *Several Provisions (Trial) on Supporting Reform and Innovation and Establishing Fault-Tolerance and Error-Correction*; Beijing issued the *Working Measures (Trial) on Encouraging Cadres to Take on Responsibilities and Implementing Fault-Tolerance and Error-Correction*, and so on.

为深入推动“三个区分开来”的实践指引，2018年中共中央办公厅印发了《关于进一步激励广大干部新时代新担当新作为的意见》，强调落实“三个区分开来”，“建立健全容错纠错机制，宽容干部在改革创新中的失误错误”，并进一步规定了原则和方法，“要妥善把握事业为上、实事求是、依纪依法、容纠并举等原则，结合动机态度、客观条件、程序方法、性质程度、后果影响以及挽回损失等情况，对干部的失误错误进行综合分析”。全国多地亦出台政策文件，推进容错纠错机制的建构。济南出台《关于支持党员干部干事创业建立容错免责机制的实施办法（试行）》；深圳出台《关于支持改革创新建立容错纠错的若干规定（试行）》；北京出台《关于激励干部担当作为实施容错纠错工作办法（试行）》，等等。

Non-institutionalized fault-tolerance relies more on the understanding and trust of higher-level leaders toward cadres, possessing a certain degree of subjectivity and contingency. When reforms encounter strong resistance or controversy and fail to achieve expected goals, protective measures are often taken based on trust relationships.[8]8 The “Xian’an Political Reform” refers to a series of local government restructuring initiatives in Xian’an District, Xianning City, Hubei Province, beginning in the early 2000s, which included attempts to streamline Party and government organs and reform the personnel system. For example, in 2003, a reformer of the “Xian’an Political Reform” was transferred from his post, which was considered a form of “protective promotion.” Conversely, institutionalized fault-tolerance and error-correction are more predictable, determined by the fundamental, stable, and long-term nature of institutions. The Third Plenary Session of the 20th Central Committee of the CPC proposed over three hundred major reform deployments for further deepening comprehensive reform, all of which require breaking away from past development thinking and practices. For instance, developing productive forces characterized by high technology, high efficiency, and high quality requires promoting revolutionary breakthroughs in technology.[9]9 “Reassurance pill” (定心丸) is a Chinese idiom meaning something that calms one’s mind or removes anxiety, often used metaphorically for policies or measures that provide security. Implementing these breakthrough reform tasks urgently demands that cadres seize the moment, dare to act, and persevere over the long term. Precisely constructing a fault-tolerance and error-correction mechanism based on the “Three Distinctions” creates a “big stage” and provides a “reassurance pill” for cadres who genuinely want to do things, dare to do things, and are capable of doing things.

非制度化容错更多依赖上级领导对干部的了解、信任，具有一定的主观性、偶然性。当改革遇到强大阻力、争议，没有达到预期目标时，很多情况下是基于信任关系采取保护性措施。[8] 例如，2003年“咸安政改”的一改革者被调离岗位，就被认为是一种“保护性提拔”。反之，制度化的容错纠错更具可预期性，由制度的根本性、稳定性、长期性所决定。党的二十届三中全会提出三百多项进一步全面深化改革的许多重大改革部署都要求突破以往发展思路和做法。比如，发展以高技术、高效能、高质量为特征的生产力，就要求推动技术的革命性突破。[9] 落实这些突破性的改革任务，迫切要求干部时不我待、敢于作为、久久为功。以“三个区分开来”精准构建容错纠错机制，为切实想干事、敢干事、能干事的干部创设“大舞台”、提供了“定心丸”。

(2) The “Three Distinctions” emphasize continuously improving the responsibility system for performing duties, aiming to encourage cadres to be adept at acting in the “complex” agenda of further deepening comprehensive reform.

（二）“三个区分开来”，强调持续完善履职责任体系，旨在鼓励干部在进一步全面深化改革“复杂性”议程中精于作为

“In any long-lasting political system, there exists a most basic requirement: that there be a chain of responsibility from public administration to political leaders to citizens.”[10]10 The source of this quotation is not specified in the original text; it appears to be a general reference to a principle in political science or public administration theory. Therefore, whether in national governance or intra-Party governance, responsibility discourse and responsibility systems or mechanisms with responsibility as the core element are widespread.[11]11 “Responsibility discourse” (责任话语) refers to the language and conceptual framework centered on responsibility that permeates governance systems. This is specifically manifested in: cadres perform their duties by exercising power and assuming obligations; those who exercise power improperly or fail to fulfill obligations are subject to accountability and punishment. The responsibility system plays a role in guiding, supervising, and evaluating cadres’ performance of duties to a certain extent.

“在任何长存的政治系统中都存在一条最基本的要求，即从公共行政到政治领导人再到公民间存在着一条责任链。”[10] 因此无论在国家治理还是政党内部治理中，都广泛存在责任话语以及以责任为核心要素的责任制度或责任机制。[11] 这具体表现为：干部通过行使权力、承担义务来履职尽责，权力行使不规范或义务履行不到位的要受到追责问责。责任制度对干部的履职行为一定程度上发挥着指引、督促和评价作用。

The “Three Distinctions” emphasize distinguishing mistakes and errors made by cadres in reform exploration out of public spirit and without subjective intent from violations of discipline and law, and not holding cadres accountable for “tolerable mistakes” in the same way as for violations of discipline and law such as knowing violations, persisting in wrongdoing after explicit prohibition by higher authorities, or seeking personal gain. The result of the “distinction” is reflected in the attribution of responsibility; tolerance for reform mistakes is reflected in the handling of “reduced or exempted liability.” Article 17, Paragraph 1 of the *Regulations on Accountability of the Communist Party of China* stipulates that mistakes made in advancing reforms due to lack of experience and pioneering trials, mistakes in exploratory experiments with no clear restrictions, and unintentional errors made to promote development may not be subject to accountability or may be exempted from accountability. The newly revised *Regulations on Disciplinary Punishment of the Communist Party of China* improves the “rules for applying disciplinary punishments” in the general provisions, requiring different handling according to different circumstances such as general disciplinary violations, minor disciplinary violations, and cases not subject to Party disciplinary liability, providing a legal basis for accurately determining the nature of conduct, clarifying responsibility handling, and implementing differential treatment. It can be said that the responsibility system provides a carrier for fault-tolerance and error-correction, offers a handle for effectively carrying out the “distinction,” and effectively avoids the fault-tolerance and error-correction mechanism becoming a mere formality or operating in a vacuum.

“三个区分开来”，强调将干部在改革探索中出于公心、无主观故意所犯失误错误同违纪违法区分，不像对明知故犯、上级明令禁止后依然我行我素、为谋私利等违纪违法追责那般向“可容之错”追责。“区分”的结果反映在责任归属上；对改革失误的包容反映在“减责免责”处置上。《中国共产党问责条例》第十七条第一款规定，在推进改革中因缺乏经验、先行先试出现的失误，尚无明确限制的探索性试验中的失误，为推动发展的无意过失，可以不予问责或免予问责。新修订的《中国共产党纪律处分条例》完善总则中“纪律处分运用规则”，要求区分一般违纪、轻微违纪、不追究党纪责任等不同情形给予相应处理，为准确认定行为性质、明晰责任处置、实行区别对待提供法规依据。可以说，责任制度让容错纠错有了载体，为切实做好“区分”提供了抓手，有效避免容错纠错的虚设空转。

Xi Jinping pointed out: “We must uphold the ‘Three Distinctions,’ enforce accountability and incentivize cadres with precision, so that cadres who truly work can lay down their burdens and move forward light.” The quantifiability of responsibility is precisely an important foundation for “precise enforcement of accountability and incentives.” The quantitative and precise attribution of responsibility that reflects the results of “distinguishing” enhances the confidence and sense of recognition of the cadres involved, and even of the broader cadre corps. At the same time, precise attribution of responsibility, premised on a scientific judgment of “the nature of the error,” guides cadres to “truly and clearly understand what can be done and what cannot be done,”[12]12 Xi Jinping, “Speech at the Third Plenary Session of the 19th Central Commission for Discipline Inspection” (January 11, 2019), in *Selected Readings of Xi Jinping’s Works*, vol. 3, Beijing: Foreign Languages Press, 2024, p. 484. which in turn drives the continuous improvement of the system of due performance responsibilities. The Decision of the Third Plenary Session of the 20th Central Committee of the CPC proposed “steadily expanding institutional opening-up,” requiring proactive alignment with high-standard international economic and trade rules, achieving compatibility and coherence in rules, regulations, management, and standards in areas such as property rights protection, industrial subsidies, and environmental standards, so as to create a transparent, stable, and predictable institutional environment.[13]13 *Decision of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Path Modernization*, Beijing: People’s Publishing House, 2024, p. 6. This is a responsive measure to the complex and volatile international environment, for which there is no ready-made answer, highlighting the demand for precise thinking among Party members and cadres. In its implementation, it is necessary to strengthen investigation and research, focusing on the effective implementation and results of “steadily expanding institutional opening-up.” At the same time, it urgently requires Party organizations in relevant fields and departments to incentivize Party members and cadres to tackle complex reform tasks, to skillfully and meticulously plan reform measures, and to mobilize their initiative, creativity, and proactiveness in grasping reform and promoting development. The “Three Distinctions,” relying on and acting through the continuously improving system of due performance responsibilities, provide support for cadres to act with precision in the “complex” agenda of further deepening reform comprehensively, in terms of both internal conviction and external standards of action.

习近平指出：“要坚持‘三个区分开来’，精准执纪问责激励干部作为，让真正干事的干部放下包袱、轻装上阵。”责任的可量化正是“精准执纪问责”的重要基础。反映“区分”结果的定量化、精准化责任归属，增强了涉事干部、甚至是广大干部的信心和认同感。同时，精准化责任归属以科学判断“错误的性质”为前提，引导干部“把哪些能做、哪些不能做真正搞得清清楚楚、明明白白”[12]，又反过来推动应然的履职责任体系不断完善。党的二十届三中全会《决定》提出“稳步扩大制度型开放”，要求主动对接国际高标准经贸规则，在产权保护、产业补贴、环境标准等实现规则、规制、管理、标准相通相容，打造透明稳定可预期的制度环境。[13] 这是应对纷繁复杂国际环境的因应举措，没有现成答案，凸显了对党员干部精准思维的要求，在其实施过程中需要加强调查研究、注重“稳步扩大制度型开放”的落地落效。同时，迫切要求相关领域相关部门的党组织激励党员干部应对复杂改革任务，善谋精谋改革措施，调动抓改革、促发展的积极性、主动性、创造性。“三个区分开来”依托并作用于不断完善的履职责任体系，在内部信仰和外部行动标准方面，都为干部在进一步全面深化改革“复杂性”议程中精准作为提供支持支撑。

(3) The “Three Distinctions” emphasize creating a political ecosystem for undertaking endeavors, aiming to encourage cadres to be adept at acting in the “clear” agenda of further deepening reform comprehensively.

（三）“三个区分开来”，强调营造干事创业政治生态，旨在鼓励干部在进一步全面深化改革“明确性”议程中善于作为

Political ecosystem, in the final analysis, is a matter of people and cadres. Cadres daring to take responsibility and act is both a political character and their fundamental duty in office. The mental state of cadres is crucial to the Party’s political ecosystem; the Party’s political ecosystem is based on the mental state of cadres. Xi Jinping emphasized at the First Plenary Session of the 20th Central Committee: “Strictness does not mean stifling everyone, making them hesitant and timid, turning things into a stagnant pool of lifelessness and inaction. Rather, it means, through clarifying direction, establishing rules, rectifying conduct, and strengthening immunity, forming a clean and upright political ecosystem within the Party, creating a favorable environment for undertaking endeavors.”[14]14 Xi Jinping, “Speech at the First Plenary Session of the 20th Central Committee of the Communist Party of China” (October 23, 2022), in *Selected Readings of Xi Jinping’s Works*, vol. 4, Beijing: Foreign Languages Press, 2024, p. 583. The “Three Distinctions” emphasize accurately grasping and seriously treating the nature and degree of “errors” made by cadres, showing tolerance and leniency for unintentional mistakes in reform exploratory experiments, and further helping them correct errors, so that they can better play their role in promoting development. This demonstrates that while the organization dares to manage and is good at managing, it also highlights the management warmth of backing up, encouraging, and showing care and tolerance, thereby broadly fostering a political ecosystem for undertaking endeavors.

政治生态，说到底是人的问题、干部问题。干部敢于担当作为，这既是政治品格，也是从政本分。干部精神状态，攸关党的政治生态；党的政治生态，基于干部精神状态。习近平在党的二十届一中全会上强调：“严并不是要把大家管死，使人瞻前顾后、畏首畏尾，搞成暮气沉沉、无所作为的一潭死水，而是通过明方向、立规矩、正风气、强免疫，形成风清气正的党内政治生态，营造有利于干事创业的良好环境。”[14] “三个区分开来” 强调对干部所犯“错误”性质和程度的准确把握和认真对待，对干部在改革探索性试验中无意过失予以包容宽容，并进一步帮助其纠正错误，使其在推动发展中更好发挥作用，从而展现组织敢抓善管的同时，彰显撑腰鼓劲、关爱宽容的管理温度，广泛营造干事创业的政治生态。

Xi Jinping emphasized: “Pay attention to protecting those cadres who dare to take responsibility and act, and promptly clarify the situation for those cadres who have been falsely accused or framed, forming a good political ecosystem that promotes the good and eliminates the evil, and encourages undertaking endeavors.”[15]15 Xi Jinping, “Speech at the National Conference on Organizational Work” (July 3, 2018), in *Selected Readings of Xi Jinping’s Works*, vol. 3, Beijing: Foreign Languages Press, 2024, p. 518. Promoting clarification of names and punishment of false accusations, in order to create a clean and stable political ecosystem, is also an important part of the series of fault-tolerance and error-correction mechanisms that the “Three Distinctions” helps to build. The “Opinions on Further Encouraging the Broad Cadre Corps to Take on New Responsibilities and Make New Achievements in the New Era” stipulates: “Seriously investigate and punish acts of false accusation and framing, promptly clarify names and eliminate concerns for cadres who have been subjected to unfounded reports, guiding cadres to become promoters and doers of reform, wholeheartedly undertaking endeavors and making contributions for the Party and the people.”

习近平强调：“注意保护那些敢于负责、敢于担当作为的干部，对那些受到诬告陷害的干部要及时予以澄清，形成激浊扬清、干事创业的良好政治生态。”[15] 推动澄清正名与诬告惩治，以营造海晏河清政治生态，也是“三个区分开来”推动构建的系列容错纠错机制中的重要内容。《关于进一步激励广大干部新时代新担当新作为的意见》规定：“严肃查处诬告陷害行为，及时为受到不实反映的干部澄清正名、消除顾虑，引导干部争当改革的促进派、实干家，专心致志为党和人民干事创业、建功立业。”

The implementation and realization of many “clear” reform tasks in further deepening reform comprehensively are closely linked to the construction of a political ecosystem for undertaking endeavors. For example, the Decision of the Third Plenary Session of the 20th Central Committee emphasizes the need to fully implement the Constitution, uphold the authority of the Constitution, coordinate and advance reforms in legislation, law enforcement, judiciary, and law-abiding, improve the guarantee mechanism for equality before the law, promote the spirit of socialist rule of law, safeguard social fairness and justice, and comprehensively advance the rule of law in all aspects of national work.[16]16 *Decision of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Path Modernization*, Beijing: People’s Publishing House, 2024, p. 33. To implement the requirements of the spirit of the Third Plenary Session of the 20th Central Committee, and to rectify and address problems exposed in the judicial field, in the final analysis, involves both promoting the spirit of rule of law and constructing a good political ecosystem for undertaking endeavors. The “Three Distinctions” help relevant fields and departments to create a political ecosystem for undertaking endeavors and incentivize cadres to be adept at acting.

进一步全面深化改革中许多“明确性”改革任务的落地落实，与干事创业政治生态的构筑紧密关联。比如，党的二十届三中全会《决定》强调，必须全面贯彻实施宪法，维护宪法权威，协同推进立法、执法、司法、守法各环节改革，健全法律面前人人平等保障机制，弘扬社会主义法治精神，维护社会公平正义，全面推进国家各方面工作法治化。[16] 落实党的二十届三中全会精神的要求，整治纠治司法领域所暴露出的问题，说到底，既涉及法治精神的弘扬，又涉及干事创业良好政治生态的构筑。“三个区分开来”助益相关领域相关部门营造干事创业政治生态、激励干部善于作为。

2. The Logical Relationship Between Implementing the “Three Distinctions” and Further Deepening Reform Comprehensively

二、落实“三个区分开来”与进一步全面深化改革的逻辑关系

Internal logic reflects the relationship of interaction and mutual influence among the internal elements of a thing. Clarifying the internal logic between the “Three Distinctions” and further deepening reform comprehensively is the fundamental prerequisite for promoting the “Three Distinctions” to better play their function of incentivizing and protecting cadres in the field of further deepening reform comprehensively. Further deepening reform comprehensively includes a series of institutional, innovative, and breakthrough reform contents, requiring the broad cadre corps to be filled with passion for undertaking endeavors and a strong sense of responsibility, to dare to open roads through mountains and build bridges over waters, and to bravely venture into “no-man’s-land”; to uphold the principle of “boldness in action, steadiness in steps,” and actively tackle “tough nuts”; to break free from ideological constraints and break through entrenched interest barriers, and strive to eliminate the “syndrome of being fettered.” The “Three Distinctions” tolerate errors and mistakes arising from lack of experience and pilot explorations in “no-man’s-land” reforms; fully recognize the difficulty, complexity, and slowness of tackling “tough nuts,” comprehensively consider factors such as corresponding motives and attitudes, procedural methods, and consequences, and carry out reasonable, lawful, and legitimate fault-tolerance and error-correction; provide strong support for cadres to break through ideological and policy constraints.

内在逻辑反映的是事物内部各要素之间的相互作用、相互影响的关系。厘清“三个区分开来”与进一步全面深化改革的内在逻辑，是推动“三个区分开来”在进一步全面深化改革场域更好发挥激励和保护干部功能的基础前提。进一步全面深化改革包含着一系列制度性、创新性、突破性改革内容，要求广大干部饱含干事创业激情和强烈的责任担当，勇于逢山开路、遇水架桥，勇闯“无人区”；秉持“胆子要大、步子要稳”，主动啃下“硬骨头”；冲破思想观念束缚、突破利益固化藩篱，着力消解“禁锢症”。“三个区分开来”包容“无人区”改革中因缺乏经验、先行先试出现的失误错误；充分认识啃下“硬骨头”的艰难性、复杂性、缓慢性，统筹考虑相应的动机态度、程序方法、后果影响等因素，进行合情合理合法的容错纠错；为干部冲破理念上的禁锢、突破政策上禁锢，提供有力支撑。

(1) Implementing the “Three Distinctions” to incentivize and protect cadres in daring to venture into the “no-man’s-land” of further deepening reform comprehensively.

（一）落实“三个区分开来”，激励和保护干部勇闯进一步全面深化改革中的“无人区”

The Decision of the Third Plenary Session of the 20th Central Committee points out: Establish a mechanism for increasing investment in future industries, improve the development policies and governance systems for strategic industries such as next-generation information technology, artificial intelligence, and aerospace, and guide the healthy and orderly development of emerging industries.[17]17 *Decision of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Path Modernization*, Beijing: People’s Publishing House, 2024, p. 30. This requires cadres in relevant fields to actively explore new paths for “establishing a mechanism for increasing investment in future industries,” continuously form new experiences, deepen new understandings, and contribute new solutions. This indicates to a certain extent that further deepening reform comprehensively has entered “no-man’s-land” in many fields—that is, reform areas or contents that are newly emerging on the new journey or that predecessors have not touched or broken through are becoming increasingly evident. This requires Party members and cadres to dare to explore new paths and bravely venture into “no-man’s-land.” In this process, cadres are likely to make mistakes due to lack of experience and pilot explorations. Therefore, it correspondingly requires Party organizations at all levels to make good use of the “Three Distinctions,” to incentivize cadres in relevant fields to promote exploration in the “no-man’s-land” of further deepening reform comprehensively, so that they have more vitality, confidence, and a greater sense of security.

党的二十届三中全会《决定》指出，建立未来产业投入增长机制，完善推动新一代信息技术、人工智能、航空航天等战略性产业发展政策和治理体系，引导新兴产业健康有序发展。[17] 这要求相关领域相关干部积极探索“建立未来产业投入增长机制”的新路径，不断形成新经验、深化新认识、贡献新方案。这一定程度上表明，进一步全面深化改革在许多领域突入“无人区”，即新征程新出现的或前人没有触碰或突破的改革领域或改革内容愈加明显。这要求党员干部勇于探索新路，勇闯“无人区”。这一过程中干部很有可能因为缺乏经验、先行先试而出现失误。为此，相应要求各级党组织用好“三个区分开来”，激励相关领域相关干部推动进一步全面深化改革中的“无人区”的探索，使他们更有朝气底气、更富有安全感。

In recent years, in relevant research, some cadres still have various concerns when delving into reforms in these “no-man’s-land” areas: some dare not act for fear of “policy conflicts”—that is, policies between different departments are not unified, and the “front-end” policies encouraging work innovation are difficult to coordinate with the “back-end” of supervision and regulation, leading many cadres to avoid taking risks and being unwilling to innovate; some are unwilling to act for fear of “suspicion of impropriety”—when promoting some innovative reforms, some cadres worry about not being able to accurately grasp the scope and standards of errors and mistakes tolerated by discipline and law in innovation and creation, and even fear being subjected to malicious reports, thus developing slack thinking such as “wait and see”; some cadres believe that “those who often wash bowls break them,” fearing the “dishwashing effect” and thus not wanting to act. Reforms in “no-man’s-land” urgently require innovative work, but pioneering and first attempts often easily lead to errors and mistakes, making them relatively more likely to be held accountable.

近些年来，在相关调研中，部分干部在深入这些“无人区”改革中还存在这样或那样的顾虑：有的因怕“政策打架”而不敢干，即一些部门之间的政策不统一，鼓励工作创新的“前道”政策与监督监管的“后道”难以协调，导致不少干部不敢冒险，也不愿创新；有的因怕“瓜田李下”而不愿干，在推进一些创新性改革中，部分干部怕拿捏不准纪法包容的创新创造失误犯错的范畴和尺度，甚至担心由此遭受恶意举报，而出现了“等一等”“看一看”等懈怠性思维；有些干部认为“常洗碗摔碎碗”，恐遭“洗碗效应”而不想干。“无人区”改革亟须创新性工作，而首创首试往往容易导致失误错误，相对也就更容易被追责问责。

The “Three Distinctions” provide clear guidance to dispel various concerns among cadres in the “uncharted territory” of further deepening reform comprehensively, emphasizing “distinguishing mistakes and errors made by cadres in advancing reforms due to lack of experience and pilot initiatives from intentional violations of discipline and law,” and focusing on tolerating “initial errors” in “pilot trials.” This includes: first, cognitive limitations. Objectively, in reforms involving “uncharted territory,” some cadres’ mistakes or errors are not due to improper attitudes or lack of professional competence, but because they “truly did not anticipate” them, determined by the objective finitude and limitations of thinking. Such errors are not unique to a particular cadre; other cadres would likely commit them as well, but because a certain cadre took the lead in advancing the reform, they are more likely to err first. Second, the probability of success. As Marx said, “To learn to walk, one must also learn to fall, and it is only through falling that one learns to walk.” [18]18 Marx, “Critique of Hegel’s Philosophy of Law. Introduction” (1843-1844), in *Marx and Engels Collected Works*, vol. 1, p. 403. The original German reads: “Man muß das Kind nicht durch die Kritik um seine ersten Schritte bringen, sondern ihm die Hand reichen, damit es gehen lerne.” The Chinese version cited here is a paraphrase. Some “pilot trials” end in failure, but such exploratory experiments themselves contain the possibility of tending toward success. This is also a key factor in considering “whether” and “to what extent” to grant leniency and tolerance. Third, environmental variability. Some mistakes or errors are caused by changes in the market environment, policy environment, or international environment, occurring in the process of “pilot trials” and characterized by contingency, suddenness, and uncontrollability. The “Three Distinctions” function to tolerate economic losses or adverse social impacts caused by these factors, especially when cadres actively take action to minimize losses or mitigate adverse effects after mistakes or errors occur.

“三个区分开来”，明确指引消解干部在进一步全面深化改革“无人区”中的种种顾虑，强调“把干部在推进改革中因缺乏经验、先行先试出现的失误和错误，同明知故犯的违纪违法行为区分开来”，注重包容“先试”中的“先错”。这包含：一是认知局限性。客观上，涉及“无人区”改革，部分干部出现失误错误并非态度不端或业务不精，而是“确实没有想到”、由客观上思维的有限性、局限性所决定。此类错误并非某一干部会犯，换作其他干部可能大概率也会犯，只是因为某干部先行推动了这项改革而极有可能先出错了。二是成功或然性。正如马克思所说：“人要学会走路，也要学会面对摔跤，而且只有经过摔跤，才能学会走路。”[18] 有的“先行先试”结果是失败的，但这种探索性试验本身存在趋于成功的可能性。这也是“是否”及“在多大程度”上给予宽容包容的重要考量因素。三是环境多变性。有些失误错误是由市场环境、政策环境、国际环境变化导致的，出现在“先行先试”的过程中，具有偶然性、突发性、不可控性。“三个区分开来”作用于包容这部分原因导致的经济损失或不良社会影响，特别是失误错误出现时积极采取行动尽力降低损失或减轻不良影响的。

(II) Implementing the “Three Distinctions” to Incentivize and Protect Cadres Who Are Adept at Gnawing on “Hard Bones” in Further Deepening Reform Comprehensively

（二）落实“三个区分开来”，激励和保护干部善啃进一步全面深化改革中的“硬骨头”

Reform is a revolution; it changes systems and mechanisms and touches vested interests, and it cannot be done without real and hard work. Reform requires us to be bold in our actions yet steady in our steps. Being bold means that no matter how difficult the reform, we must push it forward, dare to take responsibility, dare to gnaw on hard bones, and dare to wade through dangerous shoals. Being steady means that the direction must be precise and the pace must be stable, especially avoiding subversive mistakes. Xi Jinping pointed out that China’s reform has entered a deep-water zone; the easy and universally welcomed tasks have been completed, the tasty meat has been eaten, and what remains are the “hard bones” that are difficult to gnaw. The “hard bones” encountered in reform reflect characteristics such as entrenched interest barriers, intense multi-party conflicts, unclear existing institutional policies, and highly risky and challenging problem-solving. The “Decision” of the Third Plenary Session of the 20th Central Committee of the CPC emphasizes creating a fairer and more dynamic market environment, optimizing resource allocation efficiency and maximizing benefits, achieving both “vitality in liberalization” and “control in regulation.” [19]19 “Decision of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Path Modernization,” adopted at the Third Plenary Session of the 20th Central Committee, July 2024. “Vitality in liberalization” means making the market more effective, achieving market-determined factor prices, orderly and autonomous factor circulation, and efficient allocation of factor resources; “control in regulation” requires better leveraging the government’s macroeconomic regulation functions. Achieving both “vitality in liberalization” and “control in regulation” thus necessitates coordinating the relationship between an effective market and a proactive government. This relationship is replete with “binary paradoxes” such as vitality and order, manifesting the “hard bone” characteristics of further deepening reform comprehensively. In this regard, fully recognizing the complexity and difficulty of gnawing on “hard bones,” for cadres who strive to gnaw on reform’s “hard bones” but encounter flaws or cause losses during implementation, the “Three Distinctions” provide tolerance where appropriate based on motivation, attitude, objective conditions, and other factors. The “Three Distinctions” express “conditional” tolerance and leniency, promote accurate responsibility determination, enhance cadres’ ability to gnaw on “hard bones” in reform, and make them more adept at proactively taking responsibility in further deepening reform comprehensively.

改革是一场革命，改的是体制机制，动的是既得利益，不真刀真枪干是不行的。改革，就要求我们胆子要大、步子要稳。胆子要大，就是改革再难也要向前推进，敢于担当，敢于啃硬骨头，敢于涉险滩。步子要稳，就是方向一定要准，行驶一定要稳，尤其是不能犯颠覆性错误。习近平指出，中国的改革已进入深水区，容易的、皆大欢喜的已经完成了，好吃的肉都吃掉了，剩下的都是难啃的“硬骨头”。改革当中遇见的“硬骨头”，反映的是利益藩篱牢固、多方矛盾冲突强烈、现实制度政策不明、矛盾问题解决极具风险挑战等方面的特征。党的二十届三中全会《决定》强调，创造更加公平、更有活力的市场环境，实现资源配置效率最优化和效益最大化，既“放得活”又“管得住”。[19] 讲“放得活”，就是让市场更有效，实现要素价格市场决定、要素流通自主有序、要素资源高效配置；讲“管得住”，就是要求更好发挥政府宏观调控功能。既“放得活”又“管得住”，由此必须统筹有效市场和有为政府的关系。而这之间又充分兼有活力与秩序等“二元悖论”，显现进一步全面深化改革的“硬骨头”特征。就此而言，充分认识啃下“硬骨头”的复杂性艰难性，对干部竭力啃下改革“硬骨头”，但在实施过程中出现瑕疵、造成损失的，“三个区分开来”根据动机态度、客观条件等对该包容的予以包容。“三个区分开来”表达“有条件”的包容宽容，推进责任的准确认定，提升干部啃下“硬骨头”的改革能力，使其更加善于主动在进一步全面深化改革啃下“硬骨头”的担当作为。

Recognize the difficulty of “gnawing.” Further deepening reform comprehensively includes some reforms that are inherently difficult. In the process of vigorously advancing these reforms, cadres may sometimes have flaws at the operational level, but their original intention is to concentrate on overcoming reform difficulties and promoting high-quality development. The reasons for this may include having to “simplify” certain regulatory requirements to achieve breakthrough goals, or focusing attention on solving key reform bottlenecks and blockages while neglecting relevant established procedures and methods. Using the “Three Distinctions” well requires fully recognizing the difficulty of “gnawing” and tolerating corresponding mistakes and errors. Grasp the complexity of “gnawing.” Reform always involves projects with broad scope, numerous historical legacy issues, and extremely complex situations. In this process, it may not be due to cadres’ subjective lack of attention or competence deficiencies. For mistakes or errors caused by “unknown factors” in projects, accountability and blame should not be applied uniformly. Apply the “Three Distinctions” to accurately grasp the complexity of “gnawing,” strictly distinguishing it from intentional violations of discipline, persisting in wrongdoing despite explicit superior prohibitions, and seeking personal gain, and grant corresponding tolerance and leniency. Understand the slowness of “gnawing.” Reform is gradual. Simply using routine performance assessment requirements to measure, or determining that reform tasks have not been completed based on current progress and even pursuing accountability, will impose significant psychological shadows and burdens on cadres.

认识“啃”的艰难性。进一步全面深化改革包含着一些艰难性的改革。干部在奋力推动这些改革的过程中，有时会有一些实施操作层面的瑕疵，但其本意是聚力攻克改革难点、推动高质量发展。究其原因，有的是为了实现攻坚目标不得不“简化”相关规定性要求，有的是把注意力集中于解决改革难点堵点问题，疏忽了相关既定的程序和方式模式。用好“三个区分开来”，必须充分认识“啃”的艰难性，对相应的失误错误予以包容。把握“啃”的复杂性。改革，总是涉及相关项目牵扯面广、历史遗留问题多，情况极为复杂。这过程当中可能并非干部主观不上心或能力有缺欠。因项目“未知因素”导致失误错误的，不能“一刀切”地追责问责。运用“三个区分开来”，准确把握“啃”的复杂性，将其严格区别于明知故犯、上级明令禁止后依然我行我素、谋取私利等违纪违法情况，予以相应的包容宽容。理解“啃”的缓慢性。改革是渐进式的。简单用日常考核要求去衡量、依据现有进度就认定未完成相关改革任务、甚至追究责任，将会给干部带来较大的心理阴影和负担。

(III) Implementing the “Three Distinctions” to Incentivize and Protect Cadres in Dispelling the “Mental Shackles” in Further Deepening Reform Comprehensively

（三）落实“三个区分开来”，激励和保护干部消解进一步全面深化改革中的“禁锢症”

Thought and concepts are the precursors to action. The great discussion on “practice is the sole criterion for testing truth” initiated a wave of ideological emancipation among the entire Party and the entire people during the period of reform and opening up in the new era, promoting the continuous unification of thought within the Party amid ideological emancipation and the deepening of ideological emancipation amid unified thought. On the new journey of the New Era, the call to further deepen reform comprehensively is, to a certain extent, a clarion call for ideological emancipation in the New Era. The “Decision” of the Third Plenary Session of the 20th Central Committee of the CPC deeply emphasizes adhering to emancipating the mind, seeking truth from facts, keeping pace with the times, and being pragmatic and realistic, further liberating and developing social productive forces, and stimulating and enhancing social vitality. [20]20 Ibid.

思想和理念是行动的先导。“实践是检验真理的唯一标准”的大讨论，开启了新时期改革开放全党全民的思想解放热潮，推动了全党在解放思想中持续统一思想、在统一思想中深入解放思想。新时代新征程，进一步全面深化改革的号令，一定程度上是新时代的思想解放号角。党的二十届三中全会《决定》深入强调，坚持解放思想、实事求是、与时俱进、求真务实，进一步解放和发展社会生产力、激发和增强社会活力。[20]

Always adhere to the Party’s ideological line, maintaining both a strong determination that the path will not change and the will will not waver, unswervingly upholding socialism with Chinese characteristics, and possessing the sharpness and boldness to dare to innovate and bravely tackle difficulties, driving continuous new breakthroughs in reform. However, in practice, some cadres still harbor ideological shackles and barriers in advancing further deepening reform comprehensively, and dare not touch institutional obstacles. For example, some worry that supporting foreign medical and related industries in investing and starting businesses in China will disrupt China’s market order; some worry that developing new quality productive forces will to some extent impact traditional industries and increase unemployment; some still dare not vigorously reform the administrative management system to provide equalized public services to the masses and promote the construction of an urban-rural integration system, and so on.

始终坚持党的思想路线，既要有道不变、志不改的强大定力，坚持中国特色社会主义不动摇，又要有敢创新、勇攻坚的锐气胆魄，推动改革不断取得新突破。然而，实践中部分干部在推动进一步全面深化改革中，依然存在思想的桎梏和藩篱，也不敢触碰体制的障碍。比如，有的担心支持外国医疗和相关产业在我国投资创业，会扰乱我国的市场秩序；有的担心发展新质生产力一定程度上会冲击传统工业、增加失业率；有的还不敢大力改革行政管理体制为广大群众提供均等化公共服务、推动构建城乡融合体制机制，等等。

Promoting the “Three Distinctions” in the context of further deepening reform comprehensively to incentivize and protect cadres in continuously dissolving the “syndrome of confinement”: excelling at breaking through conceptual confinement. By appropriately tolerating and accommodating certain mistakes and errors that occur during the transformation and implementation of innovative concepts, and by facilitating the effective implementation of innovative concepts, cadres are encouraged to shed ideological shackles and change outdated mindsets. For example, “orderly expanding the opening up of China’s commodity markets, service markets, capital markets, and labor markets to the outside world” and “improving the convenience for foreign capital to conduct equity investment and venture capital in China” [21]21 Reference to the “Decision of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Style Modernization,” adopted at the Third Plenary Session of the 20th Central Committee in July 2024. emphasize further expanding opening up and promoting the construction of an open world economy. For mistakes and errors that should be tolerated when cadres advance this reform, the implementation of the “Three Distinctions” must be strengthened to incentivize and protect cadres in boldly advancing the transformation and application of new concepts, and to use the practical results of the transformation and implementation of new concepts to promote the ideological transformation of more cadres. Excelling at breaking through policy confinement. Some reforms are unconventional and require innovative policy support. For instance, “improving support policies for long-term capital to invest early, invest small, invest long-term, and invest in hard technology” [22]22 Ibid.. Cultivating and expanding long-term capital and patient capital is crucial for the development of new quality productive forces, yet it differs from previous policies. Effectively advancing this reform requires cadres to break free from the constraints of conventional policies. Implementing the “Three Distinctions” means daring to remove burdens for reformers and to back up those who do solid work, tolerating mistakes and errors made by cadres out of public spirit and without subjective intent when they create new ideas, concepts, and mindsets, and when they break old policies and construct new ones, thereby providing guarantees for policy innovation and reform and for breaking through policy confinement.

推动“三个区分开来”在进一步全面深化改革背景下激励和保护干部持续消解“禁锢症”：善于冲破理念上的禁锢。通过对创新理念转化落地过程中一些失误错误适恰的包容宽容、促进创新理念落地生效，以推动干部摆脱思想上的枷锁、改变旧观念。比如，“有序扩大我国商品市场、服务市场、资本市场、劳务市场等对外开放”“提高外资在华开展股权投资、风险投资便利性”[21] 等，强调进一步扩大开放、推动构建开放型世界经济。对干部在推进这一改革过程中出现的应当包容的失误和错误，要强化落实“三个区分开来”，激励和保护干部大胆推进新理念的转化运用，并以新理念转化落地的实践成效促进更多干部的思想转变。善于突破政策上的禁锢。有些改革属于超常规改革，要求创新政策予以支持。比如，“完善长期资本投早、投小、投长期、投硬科技的支持政策”[22]。培育壮大长期资本、耐心资本，对新质生产力的发展至关重要，但又与以往的政策不同。有力推进这项改革，就要求干部突破常规性政策的束缚。落实“三个区分开来”，敢为改革者卸包袱、为干事者撑腰杆，对干部缔造新的思想观念理念，在破除旧政策、建构新政策过程中出于公心、无主观故意所犯失误错误的包容，为政策创新改革、突破政策禁锢提供保障。

III. Striving to Promote the Effective Implementation of the “Three Distinctions” in Further Deepening Reform Comprehensively

三、着力推动“三个区分开来”在进一步全面深化改革中有效落实

Implementing reforms with the spirit of driving nails, ensuring that reform measures are put into practice and yield tangible results, is an inherent requirement for transforming the blueprint of reform into a beautiful reality. The 20th National Congress of the CPC pointed out: “Adhere to the combination of strict management and care, strengthen the comprehensive management and regular supervision of cadres, implement the ‘Three Distinctions’, and incentivize cadres to dare to take responsibility and actively act.” [23]23 Report to the 20th National Congress of the Communist Party of China, October 2022. The Third Plenary Session of the 20th Central Committee of the CPC further clarified: “Implement the ‘Three Distinctions’, incentivize cadres to forge ahead, start businesses, and do solid work.” [24]24 Decision of the Third Plenary Session of the 20th Central Committee, July 2024. Deepening the “implementation” of the “Three Distinctions” has become a major requirement for boosting further deepening reform comprehensively.

以钉钉子精神狠抓改革落实，推动改革措施落到实处、抓出实效，是将改革蓝图转化为美好现实的内在要求。党的二十大指出：“坚持严管和厚爱相结合，加强对干部全方位管理和经常性监督，落实‘三个区分开来’，激励干部敢于担当、积极作为。” [23] 党的二十届三中全会又明确“落实‘三个区分开来’，激励干部开拓进取、干事创业” [24]。深化“三个区分开来”的“落实”，已然成为助推进一步全面深化改革的重大要求。

However, in practice, the implementation of the “Three Distinctions” still has a significant gap from the requirements of the new journey and new missions of the New Era. Awareness is insufficient; some functional departments have concerns such as “fear of reopening old accounts” and “fear of being questioned.” Capabilities are mismatched; some express difficulty in accurately distinguishing cadres’ motives, attitudes, and the nature of errors. Regulations are incomplete; for example, some directly use the basic requirements of the “Three Distinctions” as “applicable circumstance clauses” without providing clear guidance for initiating their application. The atmosphere is not strong; for instance, involved cadres have worries such as “fear of causing more trouble” and “fear of affecting performance evaluations.” These are issues that need to be addressed and resolved. [25]25 The author’s summary of practical difficulties in implementing the “Three Distinctions.”

然而在实践当中落实“三个区分开来”与新时代新征程新使命的要求尚有明显距离。意识不到位，部分职能部门存有“怕翻旧账”“怕受质疑”等顾虑；能力不适配，有的表示难以准确甄别干部动机态度、错误性质等；法规不完善，如有的直接将“三个区分开来”的基本要求作为“适用情形条款”，未对启动适用提供较为清晰的指引；气氛不浓郁，如涉事干部存有“怕再多事”“怕误考评”等忧虑，是需要着力回应和破解的问题。[25]

(I) Emphasizing Political Consciousness, Unleashing the Strong Driving Force of the “Three Distinctions” in Further Deepening Reform Comprehensively

（一）注重政治自觉，激发“三个区分开来”在进一步全面深化改革中的强大动能

Implementing the “Three Distinctions,” “adhering to the combination of strict management and care,” and “incentivizing cadres to dare to take responsibility and actively act” are major political requirements that have been continuously issued since the New Era. This prominently expresses that “comprehensive and strict governance of the Party must emphasize political requirements,” deeply emphasizes that “Party building must be placed first,” “Party discipline and starting businesses are inherently unified,” and “strict management and supervision must be highly unified with encouraging responsibility and action.” To fully leverage the role of the “Three Distinctions” in further deepening reform comprehensively, it is first necessary to grasp it politically and strive to enhance the political awareness of Party members and cadres: Strengthen the overall leadership of the Party. Party committees (Party groups) at all levels must enhance their awareness of observing and handling problems from a political perspective, be both clear-cut and act appropriately, and adhere to forward-looking thinking, overall planning, strategic layout, and holistic advancement around the effective implementation of the “Three Distinctions.” Highlight the awareness of strict management and care. In practice, some cadres prefer to act as “peacemakers” and like to “muddle through,” deviating in their understanding of the dialectical relationship between strict management and supervision and incentivizing responsibility and action. To promote the precise and in-depth application of the “Three Distinctions,” it is necessary to deepen the awareness among cadres that “strict management must be reasonable, forceful, and measured, but not harsh or cruel; care must be gentle and subtle, but not lacking in strictness and seriousness.” Focus on constructing the political ecosystem. “Not being able to,” “not daring to,” and “not wanting to” distinguish are often used by some Party members and cadres in practice as “shields” or “catchphrases” for “insufficient distinction” or even “no distinction.” Secretaries of Party organizations at all levels, members of leading bodies in charge of specific areas, etc., must all conduct regular research, deployment, inspection, and rectification around the effective application of the “Three Distinctions,” such as conducting criticism and self-criticism on the insufficient implementation of the “Three Distinctions” at democratic life meetings, thereby nurturing a positive and uplifting political ecosystem.

落实“三个区分开来”，“坚持严管和厚爱相结合”“激励干部敢于担当、积极作为”，是新时代以来持续释放的重大政治要求。这突出表达了“全面从严治党，必须注重政治上的要求”，深入强调“把党的政治建设摆在首位”“党的纪律和干事创业是内在统一的”“把从严管理监督和鼓励担当作为高度统一起来”等。充分发挥“三个区分开来”在进一步全面深化改革中的作用，首先要从政治上把握、着力提升党员干部的政治意识：加强党的全面领导。各级党委（党组）要增强善于从政治上观察和处理问题的意识，既旗帜鲜明又行动得法，坚持围绕“三个区分开来”的落地见效开展前瞻性思考、全局性谋划、战略性布局、整体性推进。突出严管厚爱意识。实践中，有的干部爱做“和事佬”、喜欢“和稀泥”，对从严管理监督和激励担当作为辩证关系的把握偏颇偏失。推动“三个区分开来”精准、深入的运用，要对广大干部深化“严管要有理有力有节但不严苛严酷，厚爱要和风细雨但不失严格严肃”的意识。注重政治生态构造。“不会”“不敢”“不想”区分，是实践中部分党员干部时常用作“不充分区分”甚至“不区分”的“挡箭牌”“口头禅”。各级党组织的书记、班子分管成员等，都要紧紧围绕“三个区分开来”的有效应用开展经常性研究部署与检视整改，如在民生生活会上对“三个区分开来”落地不充分情况进行批评与自我批评，以浓郁积极向上的政治生态。

(II) Emphasizing Scientific Methods, Enhancing the Practical Effectiveness of the “Three Distinctions” in Further Deepening Reform Comprehensively

（二） 注重科学方法，提升“三个区分开来”在进一步全面深化改革中的实践效能

Mao Zedong once emphasized that without solving the problem of the bridge or the boat, crossing the river is just empty talk. Xi Jinping pointed out that the relationship between deployment and implementation must be handled well. The design of reform plans must grasp objective laws, pay attention to the coordination and matching of various reform measures, enhance the consistency of reform orientations, establish and improve a working mechanism with clear responsibilities, complete chains, and interlocking links, strengthen tracking and evaluation of effectiveness, and ensure that reform measures are implemented, detailed, and effective. [26]26 Xi Jinping’s speech on reform implementation, paraphrasing Mao Zedong’s famous metaphor about solving the problem of the bridge or boat to cross a river. To deeply implement the “Three Distinctions,” scientific methods must be grasped. Adhere to systematic thinking. Based on the organic unity of political effects, disciplinary and legal effects, and social effects, adhere to principles such as prioritizing the cause, seeking truth from facts, acting in accordance with discipline and law, and combining tolerance with correction, and conduct comprehensive analysis by integrating factors such as the motives and attitudes of the involved cadres and objective conditions. Adhere to procedural legality. Clarify procedural requirements such as clue assessment, investigation and verification, higher-level review, discussion and decision-making, promoting rectification, clarifying and rehabilitating names, applying results, and follow-up education, providing procedural guarantees for the standardized implementation of the “Three Distinctions.” Adhere to coordination and cooperation. In practice, some competent departments have not promptly set up the necessary “road signs,” and the “last mile” of institutional supply has become a “dead end.” Discipline inspection and supervision commissions lack a basis when tolerating and accommodating cadres’ mistakes and errors, making it difficult to advance the “Three Distinctions.” A large number of administrative powers lie with functional departments, which are more familiar with which situations require or can tolerate errors and correct them, making them important entities for establishing application scenarios of the “Three Distinctions.” The necessity for Party committees (Party groups), organizational departments, functional departments, and discipline inspection and supervision commissions to strengthen coordination and cooperation is very prominent.

毛泽东曾强调，不解决桥或船的问题，过河就是一句空话。习近平指出，要处理好部署和落实的关系。改革方案的设计必须把握客观规律，注重各项改革举措的协调配套，增强改革取向的一致性，建立健全责任明晰、链条完整、环环相扣的工作机制，强化跟踪问效，推动改革举措落实落细落到位。[26] 深入落实“三个区分开来”，必须把握好科学方法。坚持系统思维。立足政治效果、纪法效果和社会效果有机统一，坚持事业为上、实事求是、依纪依法、容纠并举等原则，结合涉事干部动机态度、客观条件等要素综合分析。坚持程序合法。明确线索研判、调查核实、上级把关、讨论决定、推动整改、澄清正名、结果运用、回访教育等程序性要求，为规范化落实“三个区分开来”提供程序保障。坚持协同配合。实践中，一些主管部门该设的“路标”没有及时跟进，制度供给“最后一公里”成了“断头路”，纪委监委在对干部的失误错误包容宽容时缺少依据，较难推进“三个区分开来”；大量事权在职能部门，对哪些情形需要或能够容错纠错比较了解，是确立“三个区分开来”应用场景的重要主体。党委（党组）、组织部门、职能部门与纪委监委强化协同配合的必要性十分突出。

(III) Emphasizing Institutional Guarantees, Enhancing the Carrier Potential of the “Three Distinctions” in Further Deepening Reform Comprehensively

（三）注重机制保障，增强“三个区分开来”在进一步全面深化改革中的载体势能

In order to effectively promote the implementation of “distinguishing the three types of cases,” mechanisms for error correction and for publicity and promotion have already been established in practice. However, some mechanisms are not yet complete, affecting the overall effectiveness of tolerance and error correction, and need to be established and improved as soon as possible. The first is a risk reporting mechanism. Drawing on and promoting the risk reporting practices for commercial activities in some localities, for special situations that may arise in reform and development—particularly in work such as building a high-level socialist market economy system, promoting high-level opening up, accelerating the achievement of high-level scientific and technological self-reliance and self-strengthening, and optimizing the business environment—relevant functional departments should be supported in establishing a pre-event risk reporting system. Matters that may conflict with existing policies should be placed on the table, and through the Party organization’s review and the discipline inspection and supervision agency’s filing, a clear operational path should be delineated. Filing matters recognized by relevant departments shall serve as an important reference and verification basis for tolerance and exemption from liability. The second is a clarification and name-rehabilitation mechanism. For cadres whose reputation has been harmed due to false accusations, malicious reports, or unfounded reports, the relevant departments shall proactively or upon application initiate a clarification and verification procedure. After verification confirms that the report, accusation, or complaint is unfounded and clarification is necessary, the department shall, together with the cadre’s unit Party organization, clarify the facts and restore the cadre’s reputation within a certain scope. At the same time, it shall seriously investigate and punish the acts of false accusation and framing, promptly clarifying and rehabilitating the cadre who has been subjected to unfounded reports, and eliminating their concerns. The third is a follow-up and education mechanism. Cadres who have made mistakes shall be tracked and followed up, and ideological and political work shall be carried out in a timely manner. The “red, yellow, green” classification management system for cadres’ clean governance status shall be improved, regularly updated, and dynamically adjusted. The grasp of cadres’ clean governance conditions shall be integrated into daily supervision work, forming a strong atmosphere that encourages taking on responsibilities and taking action, and advocates reform and innovation.

为了切实推动“三个区分开来”落实落地，实践中已建构错误纠正机制、宣传推广机制等，但也有一些机制尚未完备而影响容错纠错的整体效能、需要尽快建立健全。一是风险报备机制。总结推广部分地方商务活动风险报备做法，对改革发展中特别是构建高水平社会主义市场经济体制、推进高水平对外开放、加快实现高水平科技自立自强、优化营商环境等工作中可能存在的特殊情况，支持相关职能部门建立健全风险事前报备制度，把一些可能与现有政策冲突的事顶摆在台面上，以党组织把关、纪检监察机关备案的方式，划出明确操作路径。经有关部门认定的备案事项，作为容错免责的重要参考和核查依据。二是澄清正名机制。对被举报人受到错告、诬告或因受到不实举报而造成不良影响的干部，有关部门主动或依申请启动澄清证明程序，经核实认定、检举、控告失实且有必要澄清的，当会同所在单位党组织在一定范围内为干部澄清事实，恢复名誉，同时严肃查处诬告陷害行为，及时为受到不实反映的干部澄清正名、消除顾虑。三是回访教育机制。对犯过错误的干部进行跟踪回访，及时做好思想政治工作。完善干部廉政现状“红黄绿”分类管理制度、定期更新、动态调整，把对干部廉政状况的把握寓于日常监督工作中，形成鼓励担当作为、崇尚改革创新的浓郁氛围。

(IV) Emphasize case guidance, enrich the application function of “distinguishing the three types of cases” in further deepening comprehensive reform

（四）注重案例指引，丰富“三个区分开来”在进一步全面深化改革中的应用功能

In 2022, the Central Commission for Discipline Inspection and the National Supervisory Commission released the third batch of guiding cases for discipline enforcement and law enforcement (IV) “The Case of Lin Mou Being Granted Tolerance and Exemption from Liability,” pointing out that the case’s party, Lin Mou, was involved in a situation where “it was clearly stipulated that for engineering projects not legally required to be subject to public bidding, after the applicants passed the qualification review, the construction unit was determined by an open lottery method.” The relevant discipline inspection and supervision commission, “considering the objective circumstances such as the incomplete institutional norms for the ‘dual innovation’ work in District B, the tight schedule and heavy tasks of the back-alley street renovation project, Lin Mou’s previous lack of responsibility for finance and urban construction fields, and the absence of clear objections from relevant competent business departments, coupled with Lin Mou’s subjective intention to rapidly advance the work and better complete the ‘dual innovation’ tasks, and the fact that no situation of Lin Mou seeking personal gain was found,” applied “distinguishing the three types of cases” to grant tolerance and exemption from liability.[27]27 Central Commission for Discipline Inspection and National Supervisory Commission, “Third Batch of Guiding Cases for Discipline Enforcement and Law Enforcement (IV): The Case of Lin Mou Being Granted Tolerance and Exemption from Liability,” 2022. At the same time, the Central Commission for Discipline Inspection and the National Supervisory Commission provided guiding opinions around “precisely grasping the relationship between accountability and tolerance and error correction,” “standardizing the work procedures for tolerance and error correction,” and “enhancing the comprehensive effect of tolerance and error correction work.” These opinions are authoritative and universally applicable, providing “teaching plans” and templates for the standardized application of “distinguishing the three types of cases.” In practice, many localities have explored the use of “distinguishing the three types of cases,” forming numerous cases, some of which have even been compiled and organized. However, the overall extraction of “key points for discipline enforcement and law enforcement” and “guiding significance” is still insufficient, and the function of guiding cases for discipline enforcement and law enforcement needs to be further unleashed. In particular, for key and difficult issues in discipline enforcement and law enforcement practice, such as inconsistent understanding and interpretation, imprecise determination of nature, inappropriate handling and disposition, and non-standard procedures and formalities, it is necessary to further precisely extract and excavate core viewpoints with guiding significance. For example, for issues involving multiple factors and multiple behaviors intertwined, such as subjective and objective factors, violations of discipline and law, how to scientifically and reasonably determine responsibility, etc. At the same time, guiding cases should be used to stimulate the confidence and belief of cadres in starting businesses and taking action, and to point out the direction for their bold exploration and action.

2022年，中央纪委国家监委发布第三批执纪执法指导性案例（四）“对林某予以容错免责案”，指出案件当事人林某对“明确规定对于不属于依法必须招标的工程项目，在报名单位通过资格审核后，以公开抽签方式确定施工单位”。相关纪委监委“考虑到B区‘双创’工作有关制度规范尚不健全、背街小巷改造项目工期紧任务重、林某此前并不分管财政和城建等领域、有关业务主管部门未提出明确反对意见等客观情况，加之林某在主观上是为了快速推进工作，更好完成‘双创’任务，且未发现林某有借机谋取私利的情形”，对其适用“三个区分开来”予以容错免责。[27] 同时，中央纪委国家监委围绕“精准把握追责问责与容错纠错的关系”“规范容错纠错工作程序”“提升容错纠错工作综合效果”、提出了指导意见，具有权威性和普适性，为“三个区分开来”的规范化运用提供“教案”和模版。实践中，多地探索运用“三个区分开来”，形成了不少案例，有的甚至将其汇编整理，但在整体性提炼“执纪执法要点”和“指导意义”方面还不够充分，执纪执法指导性案例功能需要进一步释放。特别是针对执纪执法实践中存在的认识理解不统一、性质认定不精准、处理处置不恰当、程序手续不规范等重点难点问题，需要进一步精准提炼和挖掘充实具有指导意义的核心观点。比如，对一些主观客观、违规违纪等多元因素、多种行为交织在一起的问题，如何科学合理地进行责任判定，等等。同时，要用好指导性案例激发广大干部干事创业的信心信念，并为其指明敢闯敢试的行动方向。

[This article is a phased result of the Shanghai Municipal Philosophy and Social Science Planning Project “Research on the Path Innovation for Implementing ‘Distinguishing the Three Types of Cases’ in the Context of Further Deepening Comprehensive Reform” (Project No. 2024VQH039) and the National Social Science Fund Project “Research on the Enlightenment of the Construction of a National Law Enforcement Guarantee System for the Enhancement of the Execution of Intra-Party Regulations” (Project No. 24CDJ074)]

【本文为上海市哲学社会科学规划课题《进一步全面深化改革背景下落实“三个区分开来”的路径创新研究》（项目编号：2024VQH039）、国家社科基金项目《国家法律实施保障体系建设对党内法规执行力提升的启示研究》（项目编号：24CDJ074）的阶段性成果】

(The author is an Associate Professor in the Department of Public Administration Teaching and Research, Shanghai Party Institute of the CPC)

（作者为中共上海市委党校公共管理教研部副教授）

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