In order to conscientiously implement the policy requirements of the central government, provincial and municipal committees on promoting the reform of public institutions by classification and strict institutional establishment management of public institutions, actively and steadily promote the reform of classification, and carry out the work of "three determinations" of public welfare institutions in an orderly manner. , Make good use of organizational staffing resources. Starting from early March, it will take about three months for the municipal staffing office to organize efforts to carry out major research activities on the classification reform of public institutions and organizational staffing work. The survey adopted a comprehensive survey, systematic visits, on-site information review, face-to-face communication with employees, mutual comments at symposiums, and outings to study and study, etc., to examine nine aspects of business development, duty performance, and personnel structure of 236 municipal institutions. Conduct in-depth research to find out the crux of the problem, connect opinions and suggestions, and propose ideas and countermeasures. The investigation report is now as follows:

1. Current status of municipal public institutions

So far, there are 236 public institutions of various types under the municipal government. According to the unit organization, there are county-level institutions. There are 68 public institutions, 26 deputy county-level public institutions, and 142 department-level public institutions; according to the funding form, there are 198 fully-allocated public institutions, 4 differential-allocated public institutions, and 34 self-financed public institutions; According to management methods: there are 97 public institutions managed with reference to the Civil Servant Law and 139 non-public public institutions. Judging from the distribution of institutions, there are 16 directly affiliated public institutions (4 directly under the party committee and 12 directly under the government), 32 agriculture, forestry, water and animal husbandry institutions, 16 education institutions, 13 health and family planning institutions, and 12 cultural institutions. There are 12 public institutions, civil affairs and social welfare institutions, and 119 other institutions distributed in more than 40 industry departments and group organizations. According to the number of employees, there are 5 units with more than 100 employees; 13 with 50 to 100 employees, 23 with 20 to 50 employees, 50 with 10 to 20 employees, 57 with 5 to 10 employees, and 88 with less than 5 employees. indivual.

The 236 public institutions under the municipal government have an approved public establishment of 4,158 people (the base number in 2019 is 4,926), of which 3,605 are financed and 553 are self-financed. Judging from the staff distribution, the approved staff of public institutions affiliated to the education and health and family planning departments are 885 and 384 respectively, accounting for 30.4% of the total staff of municipal public institutions; the approved public institutions of the agriculture, forestry, water and animal husbandry system have an approved staff of 975, Accounting for 23.4% of the total; public institutions serving industries such as industry, information technology, and transportation have an approved establishment of 352 people, accounting for 8.4%; public institutions serving tourism development, social sports, and public culture have an approved establishment of 210, accounting for 5.1% , the public institutions affiliated to the civil affairs, Disabled Persons' Federation and other social welfare departments have approved a public establishment of 102 people, accounting for 2.4%.

There are currently 3,980 officially employed personnel in municipal institutions. According to the form of funding, 3,353 people have financial allocations (4,557 at the end of 2019), and 627 are self-financed; according to job categories, there are There are 1,299 management personnel, 1,794 professional and technical personnel, and 888 logistics service personnel. Managerial personnel, professional and technical personnel, and logistics service personnel of non-publicly managed institutions accounted for 16.8%, 60.5%, and 22.7% respectively. In addition to units affiliated to the Education and Health and Family Planning Commission systems, managers, professional and technical personnel, and work and service technicians from other system institutions accounted for 23.6%, 45.4%, and 31% respectively. At present, municipal institutions employ temporary personnel to varying degrees, totaling 480 people.

Since the issuance of the "Guiding Opinions of the Central Committee of the Communist Party of China and the State Council on Promoting the Reform of Public Institutions by Classification" (Zhongfa [2019] No. 5) in 2019, we have always insisted on strictly controlling the establishment of institutions as a way to promote As for the basic work of the classified reform of public institutions, we must strictly implement the relevant requirements of "Two Only Reduce, Not Increase" and focus on strictly controlling the organization, revitalizing the establishment, and steadily promoting the reform, so as to effectively lay a solid foundation for the classified reform of public institutions. In terms of institutional management, we will implement "dismantling, merging, and reforming", canceling the Municipal Enterprise Science and Technology Innovation Guidance Service Center, the Municipal Reception Office and other units whose functions have disappeared, and integrating the Municipal Agricultural Broadcasting School, the Technical School, the Municipal New Rural Cooperative School, The Municipal Housing and Urban-Rural Development Office, the Housing Property Rights Trading Center, the Real Estate Information Center and other units have changed the Zhangye Highway Engineering Bureau, Zhangye Hotel, Zhangye Corn Seed Farm and other units to corporate management, and selected three municipally-controlled production companies of the Ganlan Hydropower Design Institute Business institutions have carried out pilot projects such as enterprise transformation and restructuring, and the number of institutions has stabilized but decreased. The current number of institutions has decreased by 7 compared with 2019.

In terms of staffing management, we implemented reduction, freezing and reduction, and recovered 391 employees from canceled and reorganized units. We froze the staffing staffing of the Municipal Academy of Agricultural Sciences, Academy of Forestry and other units, formulated a staffing control plan, and gradually reduced and recovered the staff. Establishments that have been idle for a long time and vacated by natural attrition; strictly manage the establishment of self-financing and self-supporting units, write off empty establishments of self-financed and self-supporting units, and implement the method of "reducing one person and verifying one reduction". In recent years, the city's water conservancy and hydropower has been reduced There are 123 self-supporting enterprises in 6 units including the Engineering Bureau. We intensified staffing control and allocated 224 employees to municipal public institutions, achieving a balance between surplus and shortage, increase and decrease, and effectively ensuring the staffing needs for the central work of the Municipal Party Committee and Government. In terms of promoting industry reform, the management system has been further streamlined by carrying out industry system reforms such as cultural system reform, public resource transactions, inspection, testing and certification agencies, real estate registration management and talent training. At the same time, in accordance with the provincial and municipal deployment requirements, the classification work of public institutions has been carefully carried out. Currently, 236 municipal units have been classified into categories, including 160 in the first category of public welfare, 11 in the second category of public welfare, 7 in the administrative category, and 8 in the production and operation category. , 44 have not yet been clearly classified, and 6 such as societies and associations are not included in the classification.

2. Main problems existing in municipal public institutions

(1) The problem of political indifference is relatively common. Among the 236 public institutions directly under the municipal government, except for education, health, culture, scientific research institutes and units with independent legal persons, office spaces and many projects, most industry departments generally have no distinction between political affairs and clear distinction between the competent departments and subordinate public institutions. The problem of distinguishing between darkness and darkness. Some public institutions are completely dependent on the competent departments and basically operate as internal agencies of the competent departments. Some staff of public institutions have been assigned to work in internal agencies for a long time. Some are directly assigned to other positions after being selected for the establishment positions of public institutions. Some competent departments interfere too much in subordinate public institutions, and public institutions are departmentalized and Administrative, agency personnel use it more arbitrarily. In particular, there are currently 88 micro-public institutions with less than 5 employees in the municipal public institutions, most of which are dependent on the competent departments. Problems of political indifference and mixed use of personnel are common.

(2) The responsibilities and tasks of some units are not clear. Some units have not been adjusted since their establishment in the 1970s and 1980s, and their organizational structures still follow the model of the planned economy era, such as the Municipal Agricultural Bureau Logistics Service Management Station and the Municipal Water Affairs Bureau Logistics Affairs Center. Some institutions have unsaturated responsibilities and tasks, and insufficient integration in the industry system reform, such as the Municipal Family Planning Technical Guidance Station, Medication Management Station, and Reproductive Health Service Center, which still operate according to the pre-integration model. Some institutions have been established over a long period of time, and their current responsibilities are no longer consistent with the responsibilities or names when they were first established, such as the Municipal Education Bureau’s School-run Industrial Management Office, the Municipal Agricultural Machinery Supervision Office, etc.; some institutions are due to phased work There was no timely adjustment after the task was completed, such as the Municipal World Bank Loan Comprehensive Livestock Development Project Office, the Municipal Road Traffic Accident Social Assistance Fund Management Center, etc. Some institutions have overlapping responsibilities within the industry and their roles are not fully played, such as the Painting and Calligraphy Institute affiliated to the Municipal Culture, Radio and Television Bureau, the Municipal Cultural Center, and the Municipal Publicity and Culture Center.

(3) The contradiction between insufficient establishment stock and rigid demand of public institutions is prominent. The stock of staffing resources in public institutions is insufficient, the problem of "easy to provide but hard to collect" is difficult to solve, and it is difficult to meet the rigid demand for staffing in education, health and other public welfare undertakings and key tasks. Leaders of some departments regard the institutional resources of subordinate institutions as the private resources of the department, one-sidedly emphasize the interests of the department, and regard the establishment of more institutions and occupying more of the institution as the main way to implement work. Due to objective factors such as many difficulties, correspondence between upper and lower agencies, and business assessment, there is a greater demand for the establishment of additional agencies, increased staffing, and improvement of agency specifications. However, the attitude is negative and the methods are insufficient in terms of organizational integration, revitalizing staffing resources, and improving talent structure. many.

(4) The personnel structure of public institutions is unreasonable. Among the public institutions managed by the municipal government and not under public participation (excluding units affiliated with the Education and Health and Family Planning Commission systems), the proportion of service personnel is too high, and the proportion of professional and technical personnel is less than half. Taking the Municipal Academy of Agricultural Sciences, the Academy of Forestry Sciences and the Municipal Utilities Management Bureau as examples, the three units currently have 107, 69 and 59 staff members respectively, with workers accounting for 32.7%, 52.9% and 59.3% respectively. If the compatibility of professional and technical work with the major and position studied is taken into account, the proportion will be reduced accordingly.

The structure of personnel positions is unreasonable, resulting in a large number of personnel in public institutions, but a shortage of professional and technical personnel, especially senior professional and technical personnel, forming a vicious cycle of "some people have nothing to do, and others have nothing to do". There is a serious loss of high-level talent in scientific research institutes such as the Municipal Water Conservancy Institute and the Academy of Agricultural Sciences. The units account for a large number of idle personnel. The existing personnel are not well qualified for the work, and it is difficult for the talents who are really needed to come in. They can only use natural attrition. Gradually improve the personnel structure. At the same time, due to the lack of planning in personnel recruitment in the past, the personnel recruitment period of some public institutions was relatively concentrated, resulting in the aging of the age structure of some units. In years with large staff reductions, coupled with factors such as illness and pregnancy and leaving work, it is difficult to operate normally.

(5) Self-financing public institutions have narrow development space. There are currently 34 self-financing public institutions under the municipal government. Most of them are currently supported by two lines of revenue and expenditure or project operations, and are not self-financing in the strict sense. There are various reasons for this situation, some are policy factors, such as the Municipal Real Estate Registration Center, some are policy changes that lead to the cancellation of operating fee items, such as the Earthquake Safety Assessment Institute, and some are business transfers, such as the Municipal Safety Inspection, Research and Training center. However, relatively few actually carry out self-sufficient production and operation activities. Many units have few equipment, poor asset quality, no personnel, capital and qualification advantages, lack of market competitiveness, and difficulty in survival. Some units can only rely on the competent departments to take care of some small projects within the system. If they are separated from the competent departments and have no ability to develop markets, it will be more difficult to promote the reform of enterprise transformation.

(6) Some public welfare and technical service-oriented institutions have vague responsibilities, tasks and role positioning after referring to civil servant management. Some public institutions, especially those in the forestry and animal husbandry systems, are public welfare and technical service institutions. However, due to various reasons, after they were changed to manage public institutions with reference to the Civil Servant Law, the responsibilities, tasks and roles of the units were blurred. Those who were originally engaged in technical services All personnel have been converted into administrative personnel, and all professional and technical personnel and staff have become section members, taking on the administrative guidance function and turning into appendages of the agency in disguise. The phenomenon of overstaffing is common.

3. Countermeasures and suggestions for promoting the classification reform and organizational establishment management of municipal public institutions

In view of the many problems existing in the organizational establishment of municipal public institutions, we actively learn from the advanced experience inside and outside the province , combined with the actual situation of our city, the following countermeasures and suggestions are put forward:

1. Focus on standardizing responsibilities and tasks, and effectively solve the problem of political indiscriminateness. The first is to carry out the "Three Decisions" of public institutions and clarify the functions and responsibilities of public institutions. Starting from standardizing the institutional names, affiliations, responsibilities and tasks, institutional specifications, internal organizations, staffing, staffing structure, leadership positions and funding forms of public institutions, we will re-clarify and improve the "three determinations" of public welfare institutions, and will Public institutions are separated from administrative departments to solve the problem of political inseparability and unclear functional responsibilities between public institutions and competent departments. The second is to explore and carry out performance evaluation and assessment of public institutions. Learn from other places' practices and explore the implementation of performance appraisal in municipal institutions. According to the functions and attributes of public institutions as well as the characteristics of the departments and industries to which they belong, set up a system of comprehensiveness and personality indicators and public evaluation, so that the society, service objects, professionals, and media public opinion can comprehensively evaluate the public institutions, scientifically determine the evaluation results, and evaluate the public institutions. The balance between good and bad is linked to financial supply and talent allocation. Through the performance appraisal of public institutions, the management of public institutions by the competent departments must shift from micro-specific affairs management to macro-comprehensive management, and from direct management based on administrative orders and prescriptive plans to indirect management based on the use of legal and economic means. Management has forced public institutions to return to their main business. The third is to implement an information disclosure system for personnel and positions. Based on the real-name database for institutional preparation, strengthen close cooperation with organizations, human resources and social security and other departments, and establish an information disclosure system for public institution personnel and job assignments. Provide supervision.

2. Take mergers and acquisitions as the starting point to make full use of organizational resources. Combined with the reform of the classification of public institutions, in line with the principles of streamlining, optimization and efficiency, we will increase the investigation and sorting out of the performance of public institutions, clean up and standardize public institutions through dissolution, mergers and transfers, etc., streamline institutions, reduce staffing, and make full use of institutions. Prepare resources.

Focusing on the education, culture, health, agriculture, forestry, water and animal husbandry, transportation and other systems, we will integrate and merge public institutions that are unreasonably set up, too small in scale, have shrunken functions or seriously lack tasks, have similar responsibilities and tasks, or have duplicated settings, and significantly Reduce the number of micro-organizations, integrate and merge more institutions, appropriately improve the specifications of institutions, and gradually develop in the direction of "large departments" and "large units". At the same time, the same or similar responsibilities that are dispersed among multiple units are integrated and centralized to improve the efficiency of establishment and personnel utilization.

3. Innovate work ideas and explore the establishment of a turnover library system for public institutions. At present, there are a certain number of vacant positions in municipal public institutions, but they are scattered among various public institutions. If they are forced to take them back one by one through administrative means, there will be big noise, many contradictions, high costs, and the effect may not be good. How to make things easier, reduce complexity, fully revitalize idle resources and ensure urgently needed public welfare services without causing major fluctuations? We draw on the experience of other places and recommend exploring the establishment of a turnover library system for public institutions. The core content of this system is to draw lessons from the basic principles of the banking industry and financial deposits and loans, and by separating establishment ownership and use rights, without changing the establishment number and ownership of each public institution, the long-term inability to use the benefits will be The empty staff is centralized to establish a "circulation warehouse" (equivalent to a deposit), and the recovered staff is used as the basis (basic fund); in order to ensure that the total amount is controllable, only a certain proportion of the empty staff of municipal institutions is determined as the size of the turnover warehouse, and To provide targeted and quantitative investment (equivalent to loans) to urgently needed industries. The main idea is to rely on the refined management of the agency's staffing data platform to achieve "secondary allocation and primary use" of idle staffing resources by coordinating idle staffing without adjusting staffing numbers, thereby increasing education, health, and people's livelihood. Supply of personnel for industries that are in urgent need.

4. Focus on stimulating vitality and actively carry out the construction of the corporate governance structure of public institutions. In view of the problems commonly reported by current public institutions, especially public hospitals, scientific research institutes and other public institutions with a large number of personnel, such as unreasonable personnel structure and lack of employment autonomy, we can learn from the experience of Shandong Province in promoting the construction of legal person governance structures in public hospitals and scientific research institutes. Practices, formulate and issue implementation opinions on further promoting the pilot work of establishing legal person governance structures in public institutions, and coordinate relevant departments to improve supporting policies that give pilot units autonomy in organizational establishment management, personnel management, financial management, and income distribution. Steadily promote the separation of political affairs and management from management, giving public institutions more autonomy in employment and stimulating development vitality. Actively explore and implement the registration system management of total personnel control in public hospitals. Each public hospital will propose the total personnel control amount of its unit based on business level, type characteristics, number of beds, outpatient volume, etc., and implement registration management. Personnel within the original establishment will continue to implement real-name management, with no entry or exit. New personnel will be subject to a registration system, and the vacant establishment will be gradually recovered.

5. Determine the time limit requirements and fully complete the classification work of public institutions. Comprehensively consider the next step of reform of unclassified public institutions, participation in scientific development performance assessment and other factors, further strengthen the exchange and information communication of municipal, county and district public institutions’ classification work, and strive to unify the classification standards of similar public institutions across the city and facilitate operation and implementation. Comprehensively complete the classification and approval work of public institutions. Government-affiliated public institutions that have administrative functions that have not yet been classified will be classified as public welfare institutions. After the specific policies for the reform of administrative public institutions in the province are promulgated, if they really need to be included in the administrative public institutions to participate in the reform, they can be adjusted to administrative public institutions. unit. Eight units, including the Municipal Water Conservancy and Hydropower Engineering Bureau and the Municipal Transportation Employees Training Center, are divided into production and operation institutions. We will further strengthen communication and docking with functional departments such as finance, human resources and social security, and the competent departments of reform-related units. The competent departments will take the lead in coming up with specific reform plans for each reform-related unit, and actively and steadily promote enterprise transformation and restructuring.

IV. Several key tasks to be promoted in the near future

1. Comprehensively complete the classification of public institutions. It is planned to organize a meeting in the near future to hear the progress of the classification reform work of various counties, districts and public institutions, study and deploy the next step of work, and comprehensively complete the classification work as soon as possible.

2. Begin to formulate specific opinions and supporting documents for performance appraisal of public institutions, submit them to relevant meetings of the Municipal Party Committee and Municipal Government for review and approval, and explore pilot work in cities, counties and districts, and gradually roll it out comprehensively.

3. Begin to formulate implementation opinions on further promoting the pilot work on the construction of legal person governance structures in public institutions, and promote pilot work in municipal, county and district public hospitals and scientific research institutes.

Explore the implementation of business preparation and registration management in the Municipal Hospital of Traditional Chinese Medicine and the Municipal Second People's Hospital.

4. Start drafting specific supporting policies on exploring the establishment of a turnover library system for public institutions, and submit them to relevant meetings for review and approval before organization and implementation.

5. Combined with the classification work of public institutions, put forward specific opinions on government procurement of services in qualified second-class public welfare institutions.