The Standardization of Party Leadership over Legislative Work: Theoretical Interpretation, Practical Challenges, and Optimization Pathways

Since entering the New Era, the rule of law has been assigned a more prominent role in the grand blueprint of the Party’s governance of the country. General Secretary Xi Jinping has clearly pointed out that the relationship between the Party and the rule of law is the core issue in the construction of the rule of law.[1]1 This refers to the core issue in the relationship between the Party and the rule of law, as articulated by Xi Jinping, emphasizing that the Party’s leadership is the most essential feature of socialism with Chinese characteristics and the fundamental guarantee for the rule of law. Law, as the baseline for governing the country, is the cornerstone of China’s governance system. Legislation is the foundation of the edifice of the rule of law; Party leadership over legislation is a prerequisite for comprehensively advancing law-based governance and a key step in the practice of the rule of law. In recent years, from the Fourth Plenary Session of the 18th Central Committee to the 20th National Congress of the CPC, to the 2023 revision of the *Legislation Law of the People’s Republic of China*, and then to the Third Plenary Session of the 20th Central Committee, the leading position of the Party in legislative work has been clearly emphasized. These measures have not only further consolidated the Party’s leading position but also provided solid institutional guarantees for China’s rule-of-law construction.

进入新时代以来，法治在党治国理政的宏伟蓝图中被赋予了更加显著的作用。习近平总书记明确指出，党和法治的关系是法治建设的核心议题。[1]法律，作为治国理政的基准线，是中国治理体系的基石。立法则是法治大厦的基石，党领导立法是全面推进依法治国的先决条件，也是法治实践中的关键步骤。近年来，从党的十八届四中全会到党的二十大，到2023年《中华人民共和国立法法》的修订，再到党的二十届三中全会，都明确强调了党在立法工作中的领导地位，这些举措不仅进一步巩固了党的领导地位，也为中国的法治建设提供了坚实的制度保障。

However, on the path of rule-of-law construction, we still face many challenges, and the task remains arduous. Strengthening the standardization of Party leadership over legislative work is both an indispensable external driving force for the construction of the rule-of-law system and an inherent logical requirement for reinforcing the Party’s all-round leadership structure. General Secretary Xi Jinping has clearly stated on this matter: “Our Party must, on the grand theme of leading the country through legislation, establish corresponding systems, institutions, and mechanisms that have rules to follow and are effective in practice.”[2]2 This is a quotation from Xi Jinping, emphasizing the need for institutionalized and systematic mechanisms for the Party to lead the country through legislation. At the present moment, when efforts are being made to advance the standardization of Party leadership, the Party’s leadership over legislative work has transcended mere principled expressions and must be transformed into a system of concrete, operable behavioral norms in legislative practice. This means that deeply integrating the principle of Party leadership into every link of the legislative process, making it a behavioral norm that legislative bodies must strictly follow and implement when formulating laws, is the core essence of promoting the standardization of Party leadership over legislative work.

然而，在法治建设的道路上，我们仍然面临诸多挑战，依然任重道远。加强党领导立法工作的规范化建设既是法治体系构建不可或缺的外部驱动力，也是强化党的全方位领导格局的内在逻辑要求。习近平总书记对此明确指出：“我们党必须在通过立法来领导国家这一宏大主题上，建立起相应的体制、制度和机制，有章可循，行之有效。”[2]在致力推进党的领导的规范化建设的当下，党对立法工作的领导已超越单纯的原则性表述，需转化为立法实践中具体、可操作的行为准则体系。这意味着，将党的领导原则深度融入立法流程的每一个环节，使之成为立法主体在制定法律时必须严格遵循与执行的行为规范，是推动党领导立法工作规范化建设的核心要义。

I. Theoretical Interpretation of the Standardization of Party Leadership over Legislative Work

一、党领导立法工作规范化的理论阐释

Party leadership over legislation, as an important component of the socialist rule-of-law system with Chinese characteristics, concerns the overall situation and long-term development of the country’s legislative work. Its quality and efficiency directly affect the effectiveness of rule-of-law construction. From the perspective of standardization, analyzing the jurisprudential logic behind Party leadership over legislation, expounding the necessity of standardizing Party leadership over legislative work, and studying the important role of Party leadership over legislative work in advancing the modernization of the national governance system and governance capacity can provide us with scientific theoretical guidance and practical reference for studying the standardization of Party leadership over legislative work. This can help legislative bodies and relevant Party departments adhere to the principles of the rule of law, respect the laws of legislation, and safeguard the authority of law during the legislative process, thereby further promoting the implementation of law and maintaining the unity of the rule of law.

党领导立法作为中国特色社会主义法治体系的重要组成部分，涉及国家立法工作的全局乃至长远发展，其质量和效率直接关系到法治建设的成效。从规范化的视角出发，分析党领导立法背后的法理逻辑，阐述党领导立法工作规范化的必要性，研究党领导立法工作对于推进国家治理体系和治理能力现代化的重要作用，可以为我们研究党领导立法工作规范化提供科学的理论指导和实践参考，帮助立法机关和党的相关部门在立法过程中遵循法治原则、尊重立法规律、保障法律权威，从而更进一步推动法律实施，维护法治统一。

(I) Jurisprudential Analysis of the Standardization of Party Leadership over Legislative Work

（一）党领导立法工作规范化的法理分析

Since reform and opening up, the construction of China’s legal system has been both challenging and fruitful, profoundly shaping the close, mutually reinforcing relationship and interactive mechanism between the ruling Party’s policies and legislation. In this process, the Party’s policies, especially major policies formulated by the Party Central Committee, have become an indispensable cornerstone and soul for the formulation of the constitution and laws. This means that, on the one hand, legislative activities must always closely revolve around the Party’s policies, taking the spirit of the Party’s policies as the guideline for legislation. The Party’s policies are the precursor and guide for legislation, providing clear direction and a principled framework for legislation, ensuring the scientificity and rationality of the legal system. At the same time, the legislative process is also an important link in transforming the Party’s policy propositions into the will of the state through statutory procedures, enabling the Party’s policies to be effectively implemented and widely recognized throughout society. On the other hand, those Party policies that have been tested in practice and proven to be mature, correct, and necessary for legal codification are timely elevated to national laws through the legislative process, thereby achieving the institutionalization and standardization of policies. The Party’s major decisions play a macro-guiding role in principle and a normative guiding role in rules.[3]3 This refers to the guiding role of the Party’s major decisions, which provide both macro-level principles and specific normative guidance for legislation.

改革开放以来，我国法律体系的建设历程既充满挑战又硕果累累，深刻塑造了执政党政策与立法之间相辅相成、相互促进的紧密联系和互动机制。在这一历程中，党的政策，尤其是由党中央制定的重大政策，成了宪法和法律制定不可或缺的基石与灵魂。这就意味着，一方面，立法活动必须始终紧密围绕党的政策展开，将党的政策精神作为立法的遵循。党的政策是立法的先导和指引，为立法提供了明确的方向和原则框架，确保了法律制度的科学性和合理性；同时，立法过程也是将党的政策主张通过法定程序转化为国家意志的重要环节，使党的政策得以在全社会范围内得到有效实施和广泛认同。另一方面，那些经过实践检验，证明是成熟、正确且具备法律化必要性的党的政策，会被适时地通过立法程序上升为国家法律，从而实现政策的制度化和规范化。党的重大决策，扮演了原则性的宏观指导角色，发挥了规则性的指引作用。[3]

Delving deeply into the broad fields of the duties and responsibilities of the Party and the state, it is not difficult to find that their scope of action is not limited to a single dimension but skillfully integrates the Party’s leadership wisdom with the state’s rule-of-law framework, exhibiting a diverse yet unified governance model. Specifically, in terms of form of expression, the working methods of the Party and the state encompass both the Party’s unique strategies and pathways and the formal institutions and norms at the state level. Here, the Party’s form refers to the Party’s policies and guidelines, which serve as action guides, steering the direction of social development; while the state’s form is embodied in laws and regulations, which are the cornerstone of social order, ensuring the stable operation of the state apparatus. Comrade Peng Zhen[4]4 Peng Zhen (1902–1997) was a senior leader of the Chinese Communist Party, who played a key role in the development of China’s legal system, particularly in the post-Mao era, and served as Chairman of the National People’s Congress. once provided a penetrating exposition of the dynamic relationship between the two, especially regarding the process of transforming the Party’s form into the state’s form, proposing two crucial pathways. First, the Party’s policies do not exist in isolation; they need to be recognized and transformed by the state apparatus into state policies with universal binding force. This process is a key step in elevating the Party’s will to the will of the state. Second, for those policies that have withstood the test of practice and proven to be effective, they should be fixed in the form of law through the legislative process, endowing them with greater stability and authority. This transformation process, on the one hand, is a profound manifestation of the Party’s leadership style, requiring the Party, in leading the country and society, not only to propose scientific policies but also to be adept at transforming these policies into decisions and actions at the state level, thereby ensuring the Party’s leading position remains unshaken while enhancing the policy’s execution and influence. On the other hand, it also points out the direction and method for the Party to improve legislative work, that is, the Party should actively act to transform those correct policies that conform to the laws of social development and reflect the interests and demands of the people into laws through statutory procedures, providing a solid legal guarantee for the long-term stability and security of the country. Furthermore, Comrade Peng Zhen, from the perspective of Party leadership and acting in accordance with the law, concluded: “The Party leads the people in making the constitution and laws, and the Party also leads the people in abiding by and implementing the constitution and laws.”[5]5 This is a well-known statement by Peng Zhen, summarizing the Party’s dual role in both making and ensuring compliance with the law. These important expositions highly summarize the jurisprudential basis for Party leadership over legislation.

深入探讨党和国家职责的广阔领域，我们不难发现，其行动范畴不仅局限于单一维度，而且巧妙融合了党的领导智慧和国家的法治框架，展现出一种多元而统一的治理模式。具体而言，党和国家的工作方式，在表现形式上，既蕴含了党的独特策略与路径，也囊括了国家层面的正式制度与规范。这里，党的形式，即指党的政策与方针，它们作为行动指南，引领着社会发展的方向；而国家的形式，则集中体现为法律法规，它们是社会秩序的基石，确保了国家机器的平稳运行。彭真同志曾对这两者之间的动态关系进行了精辟的阐述，特别是关于党的形式如何向国家形式转化的过程，他提出了两条至关重要的路径。首先，党的政策并非孤立存在，而是需要通过国家机器的认可与转化，成为具有普遍约束力的国家政策，这一过程是党的意志上升为国家意志的关键步骤。其次，对于那些在实践中经受住考验、被证明为行之有效的政策，应当通过立法程序，将其以法律的形式固定下来，使之具有更加强大的稳定性和权威性。这一转化过程，一方面是对党的领导方式的深刻体现，要求党在领导国家和社会的过程中，不仅要提出科学的政策，更要善于将这些政策转化为国家层面的决策与行动，从而确保党的领导地位不动摇，同时增强政策的执行力和影响力。另一方面，也指明了党改善立法工作的方向和方法，即党应当积极作为，将那些符合社会发展规律、反映人民利益诉求的正确政策，通过法定程序转化为法律，为国家的长治久安提供坚实的法律保障。进而，彭真同志从党的领导与依法办事的角度，总结说:“党领导人民制定宪法和法律，党也领导人民遵守、执行宪法和法律。”[4]这些重要论述，高度概括了党领导立法的法理依据。

(II) Analysis of the Necessity of Standardizing Party Leadership over Legislative Work

（二）党领导立法工作规范化的必要性分析

The standardization of Party leadership over legislative work is not only a profound grasp of the laws governing the Party’s exercise of power but also a scientific adherence to the laws governing the construction of the national rule of law. It concerns whether the Party’s ruling position is stable, whether the quality of legislation is high, and the progress of modernizing the national governance system and governance capacity.

党领导立法工作规范化不仅是对党执政规律的深刻把握，更是对国家法治建设规律的科学遵循。它关系到党的执政地位是否稳固，关系到立法质量的高低，关系到国家治理体系和治理能力现代化的进程。

1. Consolidating the Party’s Ruling Position

1.巩固党的执政地位

The standardization of Party leadership over legislative work is an inevitable requirement for upholding the organic unity of Party leadership, the people being the masters of the country, and law-based governance. It is of great significance for consolidating the Party’s ruling position, developing socialist democratic politics, and advancing the comprehensive rule of law. In the cause of socialism with Chinese characteristics, Party leadership is the core and key. Party leadership over legislative work is the fundamental guarantee for ensuring that legislative work always advances in the correct direction. Through legislative activities, the Party transforms its own propositions and policies into the will of the state and common norms of conduct for the people, thereby consolidating and expanding the Party’s ruling foundation. The people being the masters of the country is the essence and core of socialist democratic politics. The standardization of Party leadership over legislative work means fully respecting the principal position of the people in the legislative process, extensively soliciting the opinions of the people, and ensuring that the content of legislation reflects the will of the people and safeguards their interests. This can not only enhance the people’s sense of identification with the law and their consciousness in abiding by the law but also protect the people’s rights and interests through legal means, realizing that the people are the masters of the country. Law-based governance is the basic strategy by which the Party leads the people in governing the country. The standardization of Party leadership over legislative work is a concrete manifestation of the strategy of law-based governance in the legislative field. Through standardized legislation, the internal unity and coordination of the legal system can be ensured, and the authority and enforceability of the law can be enhanced. At the same time, standardized legislation can also provide clear legal bases and institutional guarantees for various links such as law enforcement, judicature, and law-abiding, promoting the in-depth implementation of the comprehensive strategy of law-based governance.

党领导立法工作规范化是坚持党的领导、人民当家作主、依法治国有机统一的必然要求，对于巩固党的执政地位、发展社会主义民主政治、推进全面依法治国具有重要意义。在中国特色社会主义事业中，党的领导是核心和关键。党领导立法工作，是确保立法工作始终沿着正确方向前进的根本保证。通过立法活动，党将自身的主张和政策转化为国家意志和人民共同行为准则，从而巩固和扩大党的执政基础。人民当家作主是社会主义民主政治的本质和核心。党领导立法工作规范化，意味着在立法过程中充分尊重人民的主体地位，广泛听取人民意见，确保立法内容反映人民意志、维护人民利益。这不仅能够增强人民对法律的认同感和遵守法律的自觉性，还能够通过法律手段保障人民权益，实现人民当家作主。依法治国是党领导人民治理国家的基本方略。党领导立法工作规范化，是依法治国方略在立法领域的具体体现。通过规范化立法，可以确保法律体系的内在统一和协调，提高法律的权威性和执行力。同时，规范化立法还能够为执法、司法、守法等各个环节提供明确的法律依据和制度保障，推动全面依法治国战略的深入实施。

2. Improving the Quality of Legislation

2.提升立法质量

The standardization of Party leadership over legislative work plays an important role in improving legislative quality and ensuring the scientific, democratic, and constitutional nature of legislation; it is an important guarantee for continuously perfecting and advancing the system of socialist rule of law with Chinese characteristics. The standardization of Party leadership over legislative work helps to enhance the scientific nature of legislation. Under the guidance of the principle of democratic centralism and scientific decision-making, the Party can coordinate and balance the interests of all sides, ensuring that legislative work conforms to the laws of economic and social development and the fundamental interests of the people. At the same time, by introducing systems such as expert consultation and public hearings, it is possible to widely absorb opinions and suggestions from all sides, improving the professionalism and targeted nature of legislation. Standardized legislation emphasizes openness, transparency, and public participation in the legislative process. The standardization of Party leadership over legislative work means that during the legislative process, the people's rights to be informed, to participate, to express themselves, and to supervise must be fully guaranteed. By making legislative information public, soliciting public opinions, and conducting legislative consultation, wisdom from all sides can be gathered and social consensus formed, ensuring that legislative content is closer to people's livelihoods and reflects public opinion, thereby enhancing the democratic nature and public credibility of legislation.[5]5 This is a well-known statement by Peng Zhen, summarizing the Party’s dual role in both making and ensuring compliance with the law. The standardization of Party leadership over legislative work also helps to ensure the constitutionality of legislation. During the legislative process, the Party consistently upholds the principle of the supremacy of the Constitution and the law, ensuring that legislative activities are conducted within the scope stipulated by the Constitution and the law. At the same time, by strengthening the construction of legislative oversight and review mechanisms, unconstitutional and illegal issues in legislation can be promptly discovered and corrected, safeguarding the unity and dignity of the national rule of law.

党领导立法工作规范化对于提升立法质量，确保立法科学性、民主性、合宪性具有重要作用，是推动中国特色社会主义法治体系不断完善和发展的重要保障。党领导立法工作规范化，有助于提升立法的科学性。在民主集中制和科学决策原则的指导下，党能够统筹协调各方利益，确保立法工作符合经济社会发展规律和人民群众的根本利益。同时，通过引入专家咨询、社会听证等制度，可以广泛吸纳各方面意见和建议，提高立法的专业性和针对性。规范化立法强调立法过程的公开透明和公众参与。党领导立法工作规范化，意味着在立法过程中要充分保障人民群众的知情权、参与权、表达权和监督权。通过公开立法信息、听取公众意见、开展立法协商等方式，汇聚各方智慧，形成社会共识，可以确保立法内容更加贴近民生、反映民意，增强立法的民主性和公信力。[5]党领导立法工作规范化，还有助于确保立法的合宪性。在立法过程中，党始终坚持宪法和法律至上原则，确保立法活动在宪法和法律规定的范围内进行。同时，通过加强立法监督和审查机制建设，可以及时发现和纠正立法中的违宪违法问题，维护国家法治的统一和尊严。

3. Promoting the Modernization of the National Governance System and Governance Capacity

3.促进国家治理体系和治理能力现代化

The standardization of Party leadership over legislative work is of great significance and function for advancing the modernization of the national governance system and governance capacity; it is an important guarantee for continuously pushing forward the cause of socialism with Chinese characteristics. The standardization of Party leadership over legislative work helps to build a scientific, complete, and internally unified socialist legal system with Chinese characteristics. This legal system is an important component of the national governance system, providing a solid legal foundation for national governance. Through standardized legislation, the structure and content of the legal system can be continuously perfected and optimized, improving its scientific nature and applicability, thereby providing strong support for advancing the modernization of the national governance system and governance capacity. Standardized legislation can also raise the level of law-based governance in national governance. Within the framework of the rule of law, all parties—government, market, society, and others—can act in accordance with the law and operate according to regulations, forming a stable and predictable social environment. At the same time, by strengthening the standardized construction of all links—law enforcement, judiciary, and law-abiding—the effective implementation and enforcement of laws can be ensured, improving the efficiency and effectiveness of national governance. The standardization of Party leadership over legislation can also drive reform and innovation in the national governance system and governance capacity. During the legislative process, international advanced experience and practices can be actively drawn upon and localized and innovated in light of China's national conditions. At the same time, by using legislative means to solve key and difficult issues in economic and social development and comprehensive deepening of reform, new momentum and vitality can be injected into the modernization of the national governance system and governance capacity.

党领导立法工作规范化对于推进国家治理体系和治理能力现代化具有重要意义和作用，是推动中国特色社会主义事业不断向前发展的重要保障。党领导立法工作规范化，有助于构建科学完备、内在统一的中国特色社会主义法律体系。这一法律体系是国家治理体系的重要组成部分，为国家治理提供了坚实的法律基础。通过规范化立法，可以不断完善和优化法律体系的结构和内容，提高法律体系的科学性和适用性，为推进国家治理体系和治理能力现代化提供有力支撑。规范化立法还能够提升国家治理的法治化水平。在法治框架下，政府、市场、社会等各方主体都能够依法行事、依规运行，形成稳定可预期的社会环境。同时，通过加强执法、司法、守法等各个环节的规范化建设，可以确保法律得到有效实施和执行，提高国家治理的效率和效果。党领导立法规范化还能够推动国家治理体系和治理能力的改革创新。在立法过程中，可以积极借鉴国际先进经验和做法，结合中国国情进行本土化创新。同时，通过立法手段推动经济社会发展和全面深化改革中的重点难点问题解决，可以为国家治理体系和治理能力现代化注入新的动力和活力。

II. Practical Analysis of the Standardization of Party Leadership over Legislative Work

二、党领导立法工作规范化的实践探析

The Party's leadership over state power manifests as a kind of strategic guidance that takes a broad and long-term view and commands the overall situation; its core focus is on macro-level leadership such as grasping the direction of development, planning the overall development situation, and formulating macro policies. The report of the 20th National Congress of the CPC clearly emphasized "improving the Party's ability to set the direction, plan the overall situation, formulate policies, and promote reform."[6]6 The 20th National Congress of the CPC was held in October 2022. The report is a key political document outlining the Party's priorities for the following five years. When General Secretary Xi Jinping elaborated on the Party's leadership over the construction of the rule of law, he pointed out that the Party's leadership is about "managing the direction, managing policies, managing principles, and managing cadres, not handling specific affairs, and not overstepping its authority to do others' work."[7]7 This quotation is from Xi Jinping's remarks on the Party's role in rule-of-law construction, emphasizing strategic oversight rather than operational interference. In the legislative field, the "macro-leadership" model advocated by the Party means that the Party, from a strategic vantage point, points out the direction for legislative work, plans the blueprint, formulates the policy framework, and focuses on decision-making on major legislative matters. Specifically, this leadership model uses the Party organizations and the vast number of Party members within state organs as bridges and ties, skillfully combining the Party's will with the national legislative process, ensuring that the Party's policy propositions can be smoothly transformed into the authority and enforceability of national laws. This process not only reflects the Party's political leadership, ideological guidance, and organizational guarantee over legislative work but also ensures that legislative activities always proceed steadily along the track of socialist rule of law. At the practical operational level, the Party's leadership over legislative work is more often expressed as a kind of strategic guidance and oversight, rather than micro-management of legislative details. The Party, by proposing forward-looking and strategic legislative suggestions, approving legislative plans and work schedules, and conducting principled review and approval of major legislative bills submitted by legislative bodies, ensures that legislative work both conforms to the Party's line, principles, and policies and meets the needs of national and social development. This leadership method ensures both the independence and professionalism of legislative work and the scientific and democratic nature of legislative outcomes; it is an important feature of the Party's leadership over legislative work in the New Era.

党对国家政权的领导展现为一种高瞻远瞩、统揽全局的战略性引领，其核心聚焦于把握发展方向、谋划发展大局、制定宏观政策等宏观层面的领导。党的二十大报告明确强调“提高党把方向、谋大局、定政策、促改革能力”[6]。习近平总书记在阐述党对法治建设领导时，指出党的领导是“管方向、管政策、管原则、管干部，不是包办具体事务，不要越俎代庖”[7]。在立法领域，党所倡导的“宏观领导”模式，意味着党高屋建瓴为立法工作指明方向、规划蓝图、制定政策框架，并聚焦于重大立法事项的决策。具体而言，这一领导模式通过国家政权机关中的党组织和广大党员作为桥梁和纽带，巧妙地将党的意志与国家立法程序相结合，确保党的政策主张能够顺畅地转化为国家法律的权威性和执行力。这一过程，不仅体现了党对立法工作的政治领导、思想引领和组织保障，也确保了立法活动始终沿着社会主义法治轨道稳健前行。在实际操作层面，党对立法工作的领导更多表现为一种战略性的指导和监督，而非对立法细节的微观管理。党通过提出具有前瞻性和战略性的立法建议，审定立法规划及工作计划，对立法机关提交的重大立法议案进行原则性审议和批准，从而确保立法工作既符合党的路线方针政策，又适应国家和社会发展需要。这种领导方式既保证了立法工作的独立性和专业性，又确保了立法成果的科学性和民主性，是新时代党领导立法工作的重要特征。

The fundamental orientation of legislative work originates from the Party's policies; legislative bodies must follow and embody the Party's will when formulating laws.[8]8 The Twelfth Amendment to the Criminal Law of the People's Republic of China was adopted in 2023 to strengthen penalties for bribery, reflecting the Party's anti-corruption campaign. In China, the Party's policies have guiding significance for all legislative work. Taking the implementation of the Twelfth Amendment to the Criminal Law as an example, in order to increase the intensity of punishment for bribery crimes, the Party put forward the policy requirement of strictly punishing bribery. After deliberation and adoption by the National People's Congress, the Twelfth Amendment to the Criminal Law was formally implemented, elevating this policy requirement of the Party into a legal provision. This amendment clarified seven types of bribery acts that should be given heavier punishment, adjusted and increased the penalty for the crime of bribery by a unit, and made corresponding adjustments to the penalties for other bribery crimes. This revision of the law not only provided a clearer and more powerful legal basis for judicial practice but also further demonstrated the Party's determination and intensity in the fight against corruption.

立法工作的根本导向来源于党的政策，立法机关在制定法律时必须遵循并体现党的意志。[8]在我国，党的政策对各项立法工作具有指导性意义。以刑法修正案（十二）的实施为例，为了加大对行贿犯罪的惩治力度，党提出了从严惩治行贿的政策要求后，通过全国人民代表大会的审议和通过，刑法修正案（十二）正式实施，将党的这一政策要求上升为法律规定。该修正案明确了七类行贿行为要从重处罚，调整提高了单位行贿罪的刑罚，并对其他贿赂犯罪的刑罚作出了相应调整。这一法律的修订不仅为司法实践提供了更加明确和有力的法律依据，也进一步彰显了党在反腐败斗争中的决心和力度。

Through the above case, we can see that the process of the Party's policies being elevated into national laws is a complex but necessary one. In this process, the Party guides the direction of social development by formulating policies, and transforms policies into legally binding provisions through the legislative procedure. This transformation not only ensures that the Party's policies can be effectively implemented and enforced but also provides a solid rule-of-law guarantee for social stability and development. At the same time, this process also reflects the Party's emphasis on and leadership role in the construction of the rule of law.

通过上述案例，我们可以看到党的政策上升为国家法律的过程是一个复杂但必要的过程。这一过程中，党通过制定政策来引领社会发展方向，并通过立法程序将政策转化为具有法律效力的规定。这一转化不仅确保了党的政策能够得到有效贯彻和执行，也为社会的稳定和发展提供了坚实的法治保障。同时，这一过程也体现了党对法治建设的重视和领导作用。

III. Current Major Difficulties in the Standardization of Party Leadership over Legislative Work

三、当前党领导立法工作规范化的主要难题

As an important component of the national governance system, the standardization level of Party leadership over legislative work is directly related to the degree of modernization of the national governance system and governance capacity. Currently, although the Party has accumulated a great deal of experience in the practice of leading legislative work, standardization still urgently needs to be strengthened. By confronting the relevant difficulties existing in the Party's leadership over legislative work, in order to respond to the needs of social development, a problem-oriented approach can be provided for subsequently perfecting the path of standardizing Party leadership over legislative work.

党领导立法工作作为国家治理体系的重要组成部分，其规范化水平直接关系到国家治理体系和治理能力的现代化程度。当前，党在领导立法工作实践方面虽然积累了大量经验，但规范性仍亟待加强。正视党领导立法工作中存在的相关难题，以期回应社会发展需求，可以为后续完善党领导立法工作规范化路径提供问题导向。

(I) The Leadership Procedures in the Legislative Preparation Stage Need Improvement

（一）立法准备阶段的领导程序有待改进

When the Party leads legislative work, it needs clear and standardized mechanisms to ensure its effectiveness. The primary method is from the Party's perspective, that is, in the preliminary stages of legislative planning and legislative proposals, although the formal legislative procedure has not yet been entered, the Party's guiding principles and work procedures must strictly follow intra-Party regulations. However, judging from the current relevant regulations on the Party's leadership over legislative work, the Party's leadership over legislative work seems to remain at a relatively abstract level of "guidelines and slogans." Although in some relevant regulations, the importance of the Party's leadership over legislative work is repeatedly emphasized, at the practical operational level, there is a lack of detailed guidance and provisions on how to specifically implement this leadership through intra-Party procedures. This situation of lacking specific guidance and provisions may lead to the awkward situation of "disconnect between guidance and operation" in practice. Therefore, constructing and perfecting the specific procedures and provisions for standardizing Party leadership over legislative work has become an urgent issue to be resolved, as specifically reflected in the following legislative process.

党在领导立法工作时，需要明确且规范的机制来确保其有效性。首要的方式是从党的角度出发，即在立法规划和立法建议的初步阶段，尽管尚未正式进入立法程序，但党的指导原则和工作流程必须严格遵循党内规定。然而，从当前党领导立法工作的相关规定来看，党领导立法的工作似乎仍停留在较为抽象的“方针和口号”层面。尽管在一些相关规定中，党领导立法工作的重要性被反复强调，但在实际操作层面，关于如何通过党内程序来具体实施这一领导却缺乏详尽的指导和规定。这种缺乏具体指导和规定的情况，在实践中可能导致“指导与操作脱节”的尴尬局面。因此，构建和完善党领导立法工作规范化的具体程序和规定，成为当前亟待解决的问题，具体体现在以下的立法过程中。

1. There Are Few Procedural Provisions for Making Legislative Proposals

1.提出立法建议鲜有程序规定

Regarding the standardization of the Party’s legislative proposals, current intra-Party regulations have not yet elaborated in detail how to define the form of legislative proposals within Party organizations. The specific form of legislative proposals—whether they should consist of the content of a leader’s speech, or whether they need to be accompanied by a clear decision-making and filing process—remains unclear. Furthermore, whether the expression of a legislative proposal requires a formal intra-Party document to have legal effect, or whether an oral form is also acceptable, likewise lacks a unified standard.

关于党提出立法建议的规范化问题，目前党内法规尚未详细阐述在党组织内部如何界定立法建议的形式。立法建议的具体表现形式，是否应为领导人的讲话内容，或需要伴随明确的决策和备案流程，这一点尚不明确。此外，立法建议的表达是否需要通过正式的党内文件才具有法律效力，或是口头形式也可，这同样缺乏统一标准。

In practice, due to the lack of unified guidance, different localities, when handling legislative proposals, often rely solely on a leader’s speech or written instructions. Although legislative proposals put forward by Party committees have significant practical importance, their forms are diverse. For example, when a policy line is issued, whether the carrier should be a regulation, an opinion, or another type of document, and the hierarchy of effectiveness among these documents, are issues worth exploring. At the same time, although the minutes of Party organization meetings are substantive in content, they lack formal standardization. Whether they can serve as a carrier for legislative proposals is also a question that needs clarification. If these issues are not properly resolved, the proposal and implementation of legislative proposals may become mere formalities in practice, making it difficult to achieve the expected results.

在实践中，由于缺乏统一指导，不同地区在处理立法建议时，往往仅凭领导人的讲话或批示。尽管党委提出的立法建议在现实中具有重要意义，但其形式多样，如方针政策的出台，其载体应选择规范、意见还是其他文件类型以及这些文件间的效力等级，都是值得探讨的问题。同时，党组织会议中的纪要虽然内容上具有实质性，但形式上的规范性不足，是否能作为立法建议的载体，也是需要明确的问题。若这些问题得不到妥善解决，立法建议的提出和执行在实践中可能会流于形式，难以达到预期效果。

2. The Review of Legislative Plans Lacks Procedural Regulation

2.审定立法规划缺乏程序规制

The review of legislative plans, as one of the core tasks of the Party’s internal decision-making, currently lacks systematic and standardized procedural regulation when exercising the power of review and decision. The approval process for legislative proposals is diverse, mainly covering two models: first, the Party Leadership Group of the Standing Committee of the People’s Congress submits the proposal directly to the Party committee for comprehensive review; second, the legislative body first approves the proposal and then reports it to the Party committee for the record and completes the relevant application procedures retroactively. However, in practical operation, there are significant differences in the specific practices of legislative plan review across localities, mainly due to the varying actual conditions and degrees of complexity faced by local legislation. In recent years, with the continuous deepening of the construction of the intra-Party regulations system, local Party committees have increasingly emphasized strengthening the construction of the intra-Party regulations workforce. Nevertheless, it is worth noting that there are still certain differences between intra-Party regulations and national laws and local regulations in terms of content, purpose, and formulation procedures. This requires that, in the process of reviewing and approving legislative plans, we must both ensure that the Party’s leadership and policies are fully reflected and follow the basic spirit and principles of the law. In particular, as cities divided into districts have obtained legislative power, the responsibility of local Party committees at all levels in leading local legislation at the same level is increasingly heavy. Therefore, strengthening the construction of the Party committee’s legal capacity and enhancing the professional and standardized level of the Party committee in reviewing and approving legislative plans has become an important task for the current period and the period to come.

立法规划的审查，作为党的内部决策核心工作之一，当前在行使审查决定权时，尚缺乏系统化和标准化的程序规制。立法预案的通过流程多样，主要涵盖两种模式：一是由人大常委会党组直接提交党委进行全面审查；二是由立法机构先行通过预案，随后向党委报备并补办相关报请手续。然而，在实践操作中，各地方在立法规划审查的具体做法上差异显著，这主要是由于各地方立法面临的实际情况和复杂程度不尽相同。近年来，随着党内法规体系建设的不断深化，地方党委对加强党内法规工作队伍建设的重视程度也日益提升。然而，值得注意的是，党内法规与国家法律及地方性法规在内容、目的和制定程序上仍存在一定差异，这要求我们在立法规划审定过程中，既要确保党的领导和方针得到充分体现，又要遵循法律的基本精神和原则。特别是随着设区的市获得立法权，地方各级党委在领导同级地方立法方面所承担的责任日益加重。因此，加强党委法治力量建设，提升党委在立法规划审定中的专业化、规范化水平，已成为当前和今后一段时期的重要任务。

(II) The Coordination Mechanism between the Party and the Legislative Body Is Imperfect

（二）党与立法机关的协同机制不完善

At the key nodes of the legislative process, especially after the legislative procedure is initiated, the participating subjects expand from within the Party to a tripartite close cooperation among the Party committee, the Party Leadership Group of the Standing Committee of the People’s Congress, and the People’s Congress. This change requires an efficient linkage mechanism to ensure the coordinated work of all parties.

在立法流程的关键节点，特别是立法程序启动之后，参与主体从党内部扩展至党委、人大常委会党组与人大之间的三方紧密合作。这种变化要求一套高效的衔接机制来确保各方协同工作。

In China’s institutional practice, Party committees and legislative bodies often rely on long-standing cooperative conventions and order to maintain the smooth progress of work. However, at the level of legal norms, there is neither a clear definition of the Party committee’s role in the legislative process nor a clear delineation of the functional boundaries of the legislative body. This leads to the situation where, when the Party Leadership Group of the Standing Committee of the People’s Congress handles the specific details of requests for instructions and reports, it may face difficulties due to the lack of specific legal guidance, thereby affecting the sorting and management of regulatory documents.

在我国的制度实践中，党委与立法机关往往依赖于长期的合作惯例和秩序来维持工作的顺畅进行。然而，在法律规范的层面上，既缺乏对党委在立法过程中角色的明确定义，也缺乏对立法机关职能边界的清晰界定。这导致在人大常委会党组处理请示报告相关细节时，可能会因缺乏具体法律指导而面临困难，进而影响到法规文件的整理和管理。

Specifically, at the operational level of requests for instructions and reports—such as key elements like content, timing, and method—which matters must be reported, when to report, what form to adopt, and how the requests for instructions and reports of the Party Leadership Group of the Standing Committee of the People’s Congress should be linked with the decisions of the legislative body—all lack detailed legal procedures for regulation. This lack of legal procedures may not only lead to low work efficiency but may also erode the People’s Congress’s leading role in legislation, thereby affecting the scientific and democratic nature of legislative decision-making.

具体到请示报告的实际操作层面，如内容、时机、方式等关键要素，哪些事项必须请示报告、何时进行报告、采用何种形式以及人大常委会党组的请示报告如何与立法机关的决策相互衔接等，都缺乏详细的法律程序进行规范。这种法律程序的缺失，不仅可能导致工作效率低下，更可能侵蚀人大立法的主导权，进而影响立法决策的科学性和民主性。

Furthermore, the Party Leadership Group of the Standing Committee of the People’s Congress, as a bridge between the Party and the legislative body, makes the relationship among the three parties more complex due to its role positioning. The legislative body (the People’s Congress and its Standing Committee), the Party Leadership Group of the Standing Committee of the People’s Congress, and the central or local Party organizations differ in their sources of power and modes of operation, leading to possible blurred areas of authority in actual practice. For example, in intra-Party procedures, collective leadership and collective decision-making are characteristics of Party leadership. However, when the Party Leadership Group of the Standing Committee of the People’s Congress forms a collective opinion and reports it to the Party committee, details such as the Party committee’s decision-making form and how the Party committee’s opinion is effectively conveyed to the Party Leadership Group of the Standing Committee of the People’s Congress lack clear operational guidelines and constraint mechanisms. This imperfection in the mechanism may affect the Party’s effective leadership over legislative work, thereby affecting the quality and efficiency of legislative work.

此外，人大常委会党组作为党与立法机关之间的桥梁，其角色定位使得三者之间的关系更加复杂。立法机关（人大及其常委会）、人大常委会党组以及中央或地方的党组织，在权力来源和运作方式上存在差异，导致在实际操作中可能出现职权范围的模糊地带。例如，在党内程序中，集体领导和集体决策是党的领导特色，但人大常委会党组在形成集体意见并报请党委时，党委的决策形式以及党委意见如何有效传达给人大常委会党组等细节，都缺乏明确的操作指引和约束机制。这种机制的不完善，可能会影响到党对立法工作的有效领导，进而影响到立法工作的质量和效率。

(III) The Party Committee’s Guarantee Mechanism for the Legislative Body’s Legislative Power Is Insufficient

（三）党委对于立法机关的立法权保障机制不足

Although in various policy documents and guiding principles, the Party’s role is clearly defined as supporting and ensuring the People’s Congress and its Standing Committee’s leading position in the legislative process, at the practical operational level, there is a lack of a systematic and clear set of procedural safeguards for the legislative body’s power to lead legislation. This deficiency makes the Party appear powerless when defending and strengthening the People’s Congress’s legislative power, lacking specific action guidelines and strategic support, thereby weakening its due guarantee strength. More complexly, regarding the division of decision-making power over major matters, there are obvious differences and blurred areas between the Party’s and the People’s Congress’s provisions. This inconsistency leads to situations in practice where matters that should be decided by the People’s Congress are often first decided by the Party committee and then transferred to the government for implementation. This phenomenon of “joint issuance of documents by the Party and government” [n] not only weakens the legislative authority of the People’s Congress but may also cause confusion in the decision-making process and unclear responsibilities.

尽管在各类政策文件和指导原则中，党的角色被明确为支持和保障人大及其常委会在立法过程中的主导地位，但在实际运作层面，对于立法机关主导立法的权力，却缺乏一套系统而明确的程序性保障措施。这种缺失使得党在捍卫和强化人大立法权时显得力不从心，缺乏具体的行动指南和策略支持，从而削弱了其应有的保障力度。更为复杂的是，在涉及重大事项决策权的划分上，党与人大的规定之间存在明显的差异和模糊地带。这种不一致性导致在实践中，一些本应由人大进行决策的事项，往往被党委先行决策，并随后转交给政府执行。这种“党政联合发文”的现象不仅削弱了人大的立法权威，也可能引发决策过程中的混乱和权责不清的问题。

IV. Paths to Enhance the Standardization of Party Leadership over Legislative Work

四、党领导立法工作规范化的提升路径

Legislation is an important political activity of the state. It is the process of transforming the Party’s propositions and the people’s will into the will of the state through legal procedures, and it concerns the overall development of the Party’s and the state’s undertakings. Under the new historical conditions, in-depth research on the paths to realize the standardization of Party leadership over legislative work has significant practical and theoretical importance for implementing Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, especially Xi Jinping Thought on the Rule of Law, for practicing the major concept of whole-process people’s democracy, and for implementing the major decisions and deployments of the Party Central Committee.

立法是国家的重要政治活动，是把党的主张和人民的意志通过法定程序转化为国家意志的过程，关系党和国家事业发展全局。在新的历史条件下，深入研究党领导立法工作规范化的实现路径，对于贯彻落实习近平新时代中国特色社会主义思想特别是习近平法治思想、践行全过程人民民主重大理念、落实党中央重大决策部署，具有重大的现实意义和理论意义。

(I) Improve the Leadership Procedures in the Legislative Preparation Stage

（一）健全立法准备阶段的领导程序

Establish a rigorous process for legislative proposals. To ensure that the Party’s policies can be effectively transformed into national laws, the procedures for proposing and reviewing legislative proposals need to be clarified. The Party’s leadership over legislation means that the Party organization collectively leads legislation, not that individual leading cadres of the Party personally lead legislation. [9]9 The original text’s footnote marker “[9]” is retained as a citation reference; no additional note is required for this marker. The Party’s legislative proposals should not be based solely on the opinions of individual leaders but should undergo in-depth investigation and collective discussion to form written documents submitted to the legislative body. The formulation of laws requires long-term social practice; therefore, the Party should seize the right moment and be cautious in proposing legislative proposals. The legislative body usually attaches importance to the Party’s proposals, so the Party needs to be even more prudent when making proposals, ensuring the accuracy and objectivity of the proposals.

确立立法建议的严谨流程。为确保党的政策能有效转化为国家法律，需明确立法建议的提出和审议程序。党领导立法是党组织集体领导立法，而不是党的领导干部个人领导立法。[9]党的立法建议不应仅基于个别领导的意见，而应经过深入调研和集体讨论，形成书面文件提交立法机关。法律的制定需有长期的社会实践，因而，党应把握时机，慎重提出立法建议。立法机关对党的建议通常给予重视，因此党在提出建议时需更为审慎，确保建议的准确性和客观性。

Strictly standardize the review process for legislative plans and programs. Legislative plans and programs are regarded as the “overall guide” and “specific task list” for legislative activities. Formulating and effectively implementing legislative plans is a key link in strengthening the Party’s comprehensive and centralized leadership over legislative work and an important lever for giving play to the People’s Congress and its Standing Committee’s leading role in legislative work. Legislative plans and programs are formulated by the People’s Congress based on legislative needs in a specific period. The Party committee’s review of the legislative plan has a substantive impact and may determine whether a bill is enacted or not. However, this process currently lacks clear institutional constraints. Therefore, standardizing this intra-Party procedure is crucial, as it is the primary and key link in the legislative process.

严格规范立法规划与计划的审议过程。立法规划与计划被视为立法活动的“全局性指南”“具体任务清单”。制定并有效执行立法规划，是强化党对立法工作全面集中领导的关键环节，是发挥人大及其常委会在立法工作中主导作用的重要抓手。立法规划和计划是人大基于特定时期的立法需求制定的，党委对立法规划的审议具有实质性影响，可能决定法案的制定与否。然而，此过程目前缺乏明确的制度约束。因此，规范这一党内程序至关重要，因为它是立法过程的首要且关键的环节。

(II) Improve the Linkage and Coordination Mechanism between the Party Committee and the Legislative Body

（二）健全党委与立法机关的衔接协调机制

The mechanism for coordination and linkage between Party committees and legislative organs in legislative work has at its core the system of requesting instructions and submitting reports. When the legislative procedure is formally initiated and the legislative tasks of the People’s Congress are closely coordinated with the work needs of the Party committee, this system becomes particularly important. Specifically, the decision-making power over major matters in the legislative process, as well as bills before they are submitted to the People’s Congress for deliberation, must undergo the approval procedure of the Party committee. Once the Party committee completes its approval, its feedback opinions are conveyed by the leading Party members’ group (Party group) of the Standing Committee of the People’s Congress to the legislative organ. Therefore, based on this system, constructing a set of new procedures specifically applicable to Party leadership over legislation is not only a practical necessity but also an important measure for advancing the modernization of the national governance system and governance capacity. Such procedures will ensure that the Party’s leading position in legislative work is fully manifested, while also promoting the efficient and orderly conduct of legislative work. [10]10 The “system of requesting instructions and submitting reports” (请示报告制度) is a key mechanism within the Chinese Communist Party’s organizational discipline, requiring lower-level Party organizations to seek approval from higher-level Party committees on major matters and to report on their work.

党委与立法机关在立法工作中的衔接协同机制，其核心在于请示报告制度。当立法程序正式启动，人大的立法任务与党委的工作需要紧密配合时，这一制度显得尤为重要。具体而言，对于立法过程中的重大事项决策权以及法案在提交人大审议前，都需要经过党委的审批程序。一旦党委完成审批，其反馈意见将由人大常委会党组负责传达给立法机关。因此，基于这一制度，构建一套专门适用于党领导立法的新程序，不仅具有现实必要性，更是推进国家治理体系和治理能力现代化的重要举措。这样的程序将确保党在立法工作中的领导地位得到充分体现，同时也将促进立法工作的高效、有序进行。[10]

First, clarify the responsibilities of the leading Party members’ group of the Standing Committee of the People’s Congress. The leading Party members’ group of the Standing Committee of the People’s Congress must resolutely implement the Party’s line, principles, and policies, ensuring that the Party’s will is fully reflected in legislative work. This includes promoting the transformation of the Party’s decisions and deployments into national laws and regulations through legislative activities, as well as supervising the implementation of laws and regulations to ensure their effective observance. The leading Party members’ group of the Standing Committee of the People’s Congress must organize research on legislative plans and annual legislative plans, determine legislative priorities and directions, and conduct research and decision-making on major legislative projects. At the same time, it must conduct preliminary deliberations on draft laws and regulations submitted to the People’s Congress and its Standing Committee for review, putting forward opinions and suggestions. The leading Party members’ group of the Standing Committee of the People’s Congress must strengthen its own construction, improving the political quality and professional competence of its members. Through organizing study, exchange seminars, and other means, it must continuously enhance the legislative capability and performance capacity of its members. The leading Party members’ group must strengthen contact and communication with the various special committees and working committees of the People’s Congress, coordinate relations among all parties, and form a joint working force. At the same time, it must actively listen to opinions and suggestions on legislative work from all sides, ensuring that legislative work better conforms to reality and is closer to the masses.

第一，明确人大常委会党组的职责。人大常委会党组要坚决贯彻党的路线、方针、政策，确保党的意志在立法工作中得到充分体现。这包括通过立法活动推动党的决策部署转化为国家法律法规以及监督法律法规的实施情况，确保法律法规得到有效遵守。人大常委会党组要组织研究立法规划和年度立法计划，确定立法重点和方向，对重大立法项目进行研究和决策。同时，要对提交给人大及其常委会审议的法律法规案进行初步审议，提出意见和建议。人大常委会党组要加强自身建设，提高党组成员的政治素质和业务能力。通过组织学习、交流研讨等方式，不断提高党组成员的立法水平和履职能力。党组要加强与人大各专门委员会、工作委员会之间的联系与沟通，协调各方关系，形成工作合力。同时，要积极听取各方面对立法工作的意见和建议，确保立法工作更加符合实际、更加贴近群众。

Second, improve the system of requesting instructions and submitting reports. The leading Party members’ group of the Standing Committee of the People’s Congress is the subject of requesting instructions and submitting reports, and it is necessary to clarify which members of the leading Party members’ group are authorized to request instructions and submit reports on behalf of the group. At the same time, the responsibilities for requesting instructions and submitting reports of People’s Congresses at all levels, their Standing Committees, and various special committees must be clarified. The content of requests for instructions and reports should be specific and clear, including the background, purpose, significance, main content of the legislative project, and the issues requiring instructions. Overly cumbersome or overly simplistic requests for instructions and reports should be avoided to ensure their quality. The procedures for requesting instructions and submitting reports should be standardized and orderly, including the stages of proposing, deliberating, approving, and executing the requests and reports. Systems for registering and archiving requests for instructions and reports should be established and improved to ensure orderly management. The implementation of requests for instructions and reports must be supervised and assessed to ensure their timely and effective fulfillment. For those who fail to request instructions and submit reports in accordance with regulations, accountability and responsibility must be pursued to ensure the seriousness and authority of the system.

第二，完善请示报告制度。人大常委会党组是请示报告的主体，需要明确哪些党组成员有权代表党组进行请示报告。同时，要明确各级人大及其常委会、各专门委员会等单位的请示报告责任。请示报告的内容应当具体、明确，包括立法项目的背景、目的、意义、主要内容以及需要请示的问题等。要避免请示报告过于烦琐或过于简单，确保请示报告的质量。请示报告的程序应当规范、有序，包括请示报告的提出、审议、批准以及执行等环节。要建立健全请示报告的登记、归档等制度，确保请示报告的有序管理。要对请示报告的执行情况进行监督和考核，确保请示报告得到及时、有效的落实。对于不按照规定进行请示报告的，应当进行问责和追责，确保请示报告制度的严肃性和权威性。

Third, the scope of matters requiring requests for instructions and reports should be clearly defined. Major legislative matters involving the overall work of the Party and the state include major legislative projects concerning national security, social stability, economic development, and foreign relations. These legislative projects have a significant impact on the overall work of the Party and the state and need to be reported to the Party organization for instructions to ensure that legislative work conforms to the Party’s intent and the national interest. Major legislative matters involving the vital interests of the people include major legislative projects concerning education, medical care, employment, housing, and environmental protection. [11]11 The original text uses a footnote marker “[11]” but provides no footnote content; it is reproduced here as in the source. These legislative projects directly affect the vital interests and quality of life of the people; the people’s will and interests must be fully considered, and timely reports to the Party organization for instructions are necessary to ensure that legislative work better meets the people’s expectations and needs. These issues or disputes may involve the interpretation of legal provisions, the standards for applying laws and regulations, and other aspects, and need to be reported to the Party organization for instructions to ensure the correctness and impartiality of the application of laws and regulations.

第三，应当将需要请示报告的事项范围进行明确。涉及党和国家工作大局的重大立法事项，包括涉及国家安全、社会稳定、经济发展、外交关系等方面的重大立法项目。这些立法项目对于党和国家的工作大局具有重要影响，需要向党组织请示报告，以确保立法工作符合党的意图和国家利益。涉及人民群众切身利益的重大立法事项，包括涉及教育、医疗、就业、住房、环保等方面的重大立法项目。[11]这些立法项目直接关系到人民群众的切身利益和生活质量，需要充分考虑人民群众的意愿和利益，及时向党组织请示报告，以确保立法工作更加符合人民群众的期待和需求。这些问题或争议可能涉及法律法规条文的解释、法律法规适用的标准等方面，需要向党组织请示报告，以确保法律法规适用的正确性和公正性。

(III) Establish and improve supporting legislative safeguard mechanisms

（三）建立健全配套的立法保障机制

In legislative work, the People’s Congress and the Party’s leadership mechanism form a subtle complementary relationship, with the People’s Congress playing a leading role in the legislative process. The Party provides strategic guidance at the macro level for legislative work, while the People’s Congress focuses on the concrete practice of legislative techniques and methods. This cooperative model is of decisive significance for promoting the steady development of China’s legislative enterprise. To further optimize the effectiveness of Party leadership over legislation and strengthen the People’s Congress’s role mechanism, we need to establish and improve supporting legislative safeguard mechanisms. [12]12 The original text uses a footnote marker “[12]” but provides no footnote content; it is reproduced here as in the source.

在立法工作中，人大与党的领导机制形成了一种精妙的互补关系，人大在立法过程中发挥着主导角色。党在宏观层面上为立法工作提供战略性指引，而人大则专注于立法技术与方法的具体实践。这种合作模式对于推动我国立法事业的稳健发展具有举足轻重的意义。为了进一步优化党领导立法的效能，并强化人大的作用机制，我们需要建立健全配套的立法保障机制。[12]

On the one hand, the leading role of the People’s Congress in the legislative process must be strengthened to ensure that legislative power is truly exercised by the People’s Congress and its Standing Committee. To this end, the capability and level of People’s Congress deputies should be enhanced, allowing them to have more time and energy to focus on legislative work. At the same time, through the Party’s recommendation and selection mechanisms, high-quality personnel should be introduced into the national legislative organs, injecting new vitality into the legislative bodies. These personnel need to receive regular professional training and assessment to continuously improve their legislative capability and professional competence.

一方面，要加强人大在立法过程中的主导作用，确保立法权真正由人大及其常委会主导。为此，应提高人大代表的能力和水平，让他们拥有更多时间和精力专注于立法工作。同时，通过党的推荐和选拔机制，将高素质人才引入国家立法机关，为立法机关注入新的活力。这些人才需要接受定期的专业培训和考核，以持续提升其立法能力和专业素养。

On the other hand, the People’s Congress also needs to establish and improve the deliberation mechanism for draft laws. During the deliberation process, we should comprehensively assess whether the draft law meets the needs of current social development and whether there is urgency and necessity for legislation. At the same time, starting from the rigor of the bill’s content and the meticulousness of its logic, a detailed review of the bill should be conducted. People’s Congress deputies should be encouraged to actively put forward constructive opinions, and based on these opinions, necessary revisions and improvements to the bill should be made. This stage is crucial for the smooth passage of the bill and directly affects the bill’s future implementation effect and social impact. At the same time, the role of grassroots legislative contact points in going deep into grassroots communities to collect legislative suggestions and quickly transmit public opinion should be leveraged, continuously deepening the grassroots practice of whole-process people’s democracy, and vigorously promoting the democratization and scientification of legislative work. [13]13 “Grassroots legislative contact points” (基层立法联系点) are local-level institutions established by People’s Congresses to solicit public opinion on draft laws directly from citizens and communities, intended to enhance democratic participation in the legislative process.

另一方面，人大还需建立健全法律草案的审议机制。在审议过程中，我们应全面评估法律草案是否符合当前社会发展需求，是否具有立法的紧迫性和必要性。同时，从法案内容的严谨性和逻辑的缜密性出发，对法案进行细致审查。应鼓励人大代表积极提出建设性意见，并基于这些意见对法案进行必要的修改和完善。这一环节对于法案的顺利通过至关重要，也直接关系到法案日后的实施效果和社会影响。同时，应发挥基层立法联系点在深入基层收集立法建议、快速传递民意方面的作用，不断深化全过程人民民主的基层实践，大力推动立法工作的民主化、科学化。[13]

(Author biographies: Zeng Qinghui, Professor at the School of Law, Northwest Normal University, Deputy Director and Senior Editor of the Periodicals Center of Northwest Normal University; Xia Kunlun, Master’s student at the School of Law, Northwest Normal University)

（作者简介：曾庆辉，西北师范大学法学院教授，西北师范大学期刊中心副主任、编审；夏昆仑，西北师范大学法学院硕士研究生）

Online editor: Tongxin

网络编辑：同心