Perfecting the System of Intra-Party Regulations from the Perspective of the Marxist Systems View

I. Problem and Method

一、问题与方法

In 2017, the Party Central Committee issued the *Opinions on Strengthening the Construction of the Intra-Party Regulations System*, which clarified that the system of intra-Party regulations is an organic and unified whole with the Party Constitution as its foundation, democratic centralism as its core, and central intra-Party regulations such as guidelines and regulations as its backbone, composed of intra-Party regulations at all levels and in all fields, and established a structural system with the “1+4” basic framework. In 2021, the Regulations Bureau of the General Office of the Central Committee of the CPC added the expression “with ministerial and local intra-Party regulations as important components” to this definition, and the concept of the system of intra-Party regulations has been used ever since. From the above definition, the system of intra-Party regulations is not a single regulation, but a system of regulations composed of several individual intra-Party regulations with a certain logical connection, which can be called a “system.” On the one hand, the system of intra-Party regulations is an organic whole containing different elements, such as the *Constitution of the Communist Party of China*, the *Regulations on the Organizational Work of the Communist Party of China*, and thousands of other individual intra-Party regulations, all of which are included as elements participating in the holistic connections of the system within the larger set of the system of intra-Party regulations. On the other hand, there is a certain internal structure and logical relationship among the constituent elements of the system of intra-Party regulations. For example, intra-Party regulations of different levels of validity, such as the Party Constitution, guidelines, and regulations, form a pyramid-like vertical logical structure, while the “1+4” basic framework forms a horizontal logical structure that comprehensively covers the fields of Party leadership and Party building. Through the interaction, optimization, and integration of these vertical and horizontal dimensions, the system of intra-Party regulations is jointly constituted.

2017年，中共中央印发《关于加强党内法规制度建设的意见》，明确了党内法规制度体系，是以党章为根本，以民主集中制为核心，以准则、条例等中央党内法规为主干，由各领域各层级党内法规组成的有机统一整体，并确定了以“1+4”为基本框架的结构体系。2021年，中共中央办公厅法规局在此基础上增加了“以部委党内法规、地方党内法规为重要组成部分”内容表述，至此，党内法规制度体系的概念一直沿用至今。从上述定义来看，党内法规制度体系不是一个单项制度，而是一个由若干单项党内法规制度组成的具有一定逻辑关联的制度体系，可以称之为“系统”。一方面，党内法规制度体系是内含着不同要素的有机整体，如《中国共产党章程》《中国共产党组织工作条例》等在内的几千部单项党内法规制度，均作为参与系统整体性联系的要素构成，包含在党内法规制度体系这一大的集合之内；另一方面，党内法规制度体系的构成要素之间具有一定的内在结构和逻辑关系。例如，由党章、准则、条例等不同效力党内法规制度形成了金字塔式的纵向逻辑结构，以全面覆盖党的领导和党的建设领域形成了“1+4”基本框架的横向逻辑结构，经过纵、横两个维度结构的相互作用、优化整合，共同构成了党内法规制度体系。

On the centenary of the founding of the Party, General Secretary Xi Jinping announced that our Party has “formed a relatively

建党百年之际，习近平总书记宣布我们党已经“形成比较完善的党内法规体系”，党内法规制度建设由此迈入高质量发展新阶段，但这并不意味着党内法规制度体系建设的完成时。党的二十大报告中明确提出，“坚持制度治党、依规治党，以党章为根本，以民主集中制为核心，完善党内法规制度体系”。从现行党内法规制度体系来看，依然面临着一些问题和困境，如党内法规制度体系的内部结构不均衡、各板块党内法规制度的调整对象交叉重复等，均影响和限制了党内法规制度体系整体“集成”功效和作用的发挥，需要进一步完善与优化。对此，学术界也展开研究，主要是将党内法规制度体系置于中国特色社会主义法治体系、党内法规体系大框架或党内法规制度体系自身的结构形态中，探究完善路径。需要指出的是，在既有研究中，以系统思维和科学方法推进党内法规制度体系建设，尤其是将党内法规制度体系看作一个“系统”，从整体上把握其内在逻辑和完善路径，尚处于前期探索阶段，存在较大的研究空间。

The materialist systems view has undergone changes from the ancient naive systems view to the modern mechanical systems view and then to the traditional dialectical systems view; it is the result of the gradual development of human cognition and transformation of the world from simple linear thinking to complex systems thinking. As is well known, Marx was the first to apply systems thinking to the field of social-historical research, holding that the entire society is a system composed of heterogeneous elements that are universally connected and interact with one another. At the same time, he also used the method of systems synthesis to reproduce the overall form of the capitalist economic system and reveal the laws of its operation. As a scientific method of thinking, the Marxist systems view emphasizes that a system is an organic whole with specific functions, formed by different elements combined on the basis of certain relations or structures, in which the interactions among different elements manifest different "orders of connection." The system of intra-Party regulations is itself a complex system. If we study and analyze it in conjunction with the Marxist systems view, this can not only provide a new perspective and analytical paradigm for dissecting the internal landscape of the system of intra-Party regulations but also carry important methodological significance for improving the system of intra-Party regulations in the future. In view of this, the author attempts, on the basis of existing research and from the perspective of the Marxist systems view, to apply systems thinking to examine the logic of the self-development of the system of intra-Party regulations and the difficulties it currently faces, thereby providing theoretical support for the overall improvement and optimization of the system of intra-Party regulations.

唯物主义系统观，经历了由古代朴素系统观到近代机械系统观，再到传统辩证系统观等阶段的变化，是人类认识世界、改造世界由简单的线性思维逐渐向复杂系统思维发展的结果。众所周知，马克思最早是将系统思想运用于社会历史研究领域，认为整个社会是由一些非同质的要素构成，且彼此之间存在着普遍联系和相互作用的一个系统，同时，还运用系统综合方法再现了资本主义经济系统的整体形态，揭示了资本主义经济系统的运行规律。作为一种科学思维方法，马克思主义系统观强调系统是由不同要素基于一定关系或结构结合而成的具有特定功能的有机整体，其中，不同要素之间的相互作用展现出了不同的“联系秩序”。党内法规制度体系本身就是一个复杂的系统，若结合马克思主义系统观对其进行研究分析，不仅能够为剖析党内法规制度体系内部图景提供全新视角和分析范式，同时，对于今后完善党内法规制度体系也具有重要的方法论意义。鉴于此，笔者尝试在已有研究基础上，从马克思主义系统观研究视角出发，运用系统思维审视党内法规制度体系的自身发展逻辑、当前所面临的困境，进而从整体上为党内法规制度体系的完善与优化提供学理支撑。

II. The Systemic Landscape of the System of Intra-Party Regulations

二、党内法规制度体系的系统图景

After a century of construction, intra-Party regulations have developed from nothing to something, from few to many, and from scattered to systematic. Using the Marxist systems view to understand the three-dimensional landscape of the system of intra-Party regulations means treating the overall structure of the system of intra-Party regulations as a large system, thereby revealing its basic characteristics, such as wholeness, structure, functionality, and openness.

党内法规制度经过百年建设历程，实现了从无到有、从少到多、从零散到系统。用马克思主义系统观理解党内法规制度体系的立体图景，即把党内法规制度体系的整体架构视为一个大系统，进而揭示党内法规制度体系的整体性、结构性、功能性、开放性等基本特征。

(1) Wholeness: The system of intra-Party regulations is a unified collection encompassing different intra-Party regulations.

（一）整体性：党内法规制度体系是包含不同党内法规制度的统一集合

According to the logic of Marx's dialectical materialism, the systems concept emphasizes analyzing the intrinsic essence and connections of things from a holistic perspective, thereby grasping the laws of their development. Especially when examining and handling problems, one must focus on the overall planning and layout of the thing. The core idea here is to emphasize the holistic concept of the system, that is, to view the system from the standpoint of the whole. It is conceivable that without a holistic system, the world would in fact be a world without differences. It is precisely because of wholeness that relative differences exist, giving rise to a world of diversity. In short, if a system cannot exist as a holistic entity, the system ceases to exist, and the system as a whole no longer exists. History and practice have proven that the system of intra-Party regulations is an organic and unified whole composed of intra-Party regulations from different fields and levels, consistently permeated by the holistic characteristic of "system integration, mutual interconnection, and coordinated unity." So-called improvement of the system of intra-Party regulations should also be analyzed, studied, predicted, and planned from a holistic perspective.

按照马克思辩证唯物主义的思维逻辑，系统观念强调从整体上分析事物的内在本质和联系，进而把握事物发展规律。尤其是在审视和处理问题时，必须着眼于事物的整体谋划布局。其中，最核心的思想就是强调系统的整体观念，即立足整体看系统。可以想象，如果没有整体性的系统，那这个世界实际上就是一个没有差别的世界。正因为有了整体性，才有相对的差别性，才会形成具有多样性的世界。总之，如果一个系统不能作为整体事物而存在，系统就不复存在了，系统整体也就不存在了。历史和实践证明，党内法规制度体系，是由不同领域和层级的党内法规制度构成的有机统一整体，自始至终贯穿着“系统集成、相互关联、协调统一”这一整体性特征，所谓完善党内法规制度体系，也应从整体上去分析、研究、预测和作出规划。

Looking back at the formation and development of the system of intra-Party regulations, it can be traced back to the very beginning of the Party's founding. Not only were a number of intra-Party regulations explored and formulated in practice, laying the traditional framework of the system of intra-Party regulations, but this also constituted the basic structure for the continuous production of the intra-Party regulatory system. During the period of reform and opening up, our Party summed up historical experiences and lessons, strengthened the important position and role of intra-Party regulations in Party building, intensified efforts to build the intra-Party regulatory system with a focus on improving democratic centralism, and gradually pushed the work of formulating intra-Party regulations onto an institutionalized, standardized, and procedural track. The Fourth Plenary Session of the 17th Central Committee of the CPC proposed "establishing and improving a system of institutions with the Party Constitution as the foundation and democratic centralism as the core." The concept of the system of intra-Party regulations initially took shape, but the content and composition of the system of intra-Party regulations had not yet been clarified, nor had it been systematized. As socialism with Chinese characteristics entered a New Era, the Party Central Committee with Comrade Xi Jinping at its core made overall arrangements for accelerating the construction of a complete system of intra-Party regulations. These included clearly defining the system of intra-Party regulations as an organic and unified whole, with the Party Constitution as the foundation, democratic centralism as the core, and the norms and regulations of the Central Committee as the mainstay, with ministerial-level and local intra-Party regulations as important components, composed of intra-Party regulations from various fields and levels. This concept integrated scattered expressions from past documents and standardized the basic content and composition of the system of intra-Party regulations.

回顾党内法规制度体系的形成与发展，最早可追溯至建党之初，不仅在实践中探索制定了一批党内法规制度，奠立了党内法规制度体系的传统框架，同时也构成了党内法规系统持续生产的基础结构。改革开放时期，我们党总结历史经验教训，强化党内法规制度在党的建设中的重要地位和作用，以健全民主集中制为重点加大党内法规制度建设力度，推动党内法规制定工作逐步进入制度化规范化程序化轨道。党的十七届四中全会提出“建立健全以党章为根本、以民主集中制为核心的制度体系”，党内法规制度体系的概念初步形成，但对于党内法规制度体系的内容构成尚未得到明确，更没有形成体系化。随着中国特色社会主义进入新时代，以习近平同志为核心的党中央对加快构建完善的党内法规制度体系作出统筹部署。其中，包括将党内法规制度体系明确界定为以党章为根本，以民主集中制为核心，以准则、条例等中央党内法规为主干，以部委党内法规、地方党内法规为重要组成部分，由各领域各层级党内法规制度组成的有机统一整体。这一概念整合了过去文件中的分散表述，规范了党内法规制度体系的基本内容构成。

(2) Structure: There are clear logical connections among the various components of the system of intra-Party regulations.

（二）结构性：党内法规制度体系各组成部分之间有着清晰的逻辑联系

The Marxist view of systems holds that a system is a system with a complex structure. Among its components, the various elements that constitute the system do not exist in isolation, nor are they simply added together or piled up; rather, through scientific and orderly arrangement and combination, they form a certain logic and structure. Only when the elements continuously connect and interact with one another can they promote the coordinated development of all elements within the system and the benign operation of the entire system. For example, regarding the natural system, Engels once wrote: “The whole of nature accessible to us forms a system, an interconnected totality of bodies, and by bodies we understand here all material existences extending from stars to atoms, right down to ether particles, if we admit the existence of the latter. The fact that these bodies are interconnected already implies that they react on one another, and it is precisely this mutual reaction that constitutes motion.” In his view, the nature that presents itself before us is a totality of various bodies interconnected and interacting according to a certain order and structure, and it is forever in motion, change, and development.

马克思主义系统观认为，系统是一个具有复杂结构的体系。其中，构成系统的各要素不是单独孤立存在，也不是彼此简单相加或堆积，而是通过科学、有序的排列组合，形成一定的逻辑和结构。只有当各要素之间不断联系、相互作用，才得以推动系统内诸要素的协同发展和整个系统的良性运行。譬如关于自然界系统，恩格斯曾写道：“我们所面对的整个自然界形成了一个体系，即各种物体相互联系的总体，而我们在这里所说的物体，是指所有的物质存在，从星球到原子，甚至直至以太粒子，如果我们承认以太粒子存在的话。这些物体是相互联系的，就是说，它们是相互作用着的，并且正是这种相互作用构成了运动。”在他看来，呈现在我们眼前的自然界，是由各种物体按照一定次序结构建立起来的相互联系、相互作用的一个总体，而且永远处于运动、变化和发展之中。

As a system, the system of intra-Party regulations has an internal structure in which each individual intra-Party regulation also possesses “an almost systematic form.” This structure is both a normative system and a logical system; it can be divided into different levels and also classified into different types, forming overall a structure with two dimensions—vertical and horizontal—and erecting the “four beams and eight pillars” [1]1 “Four beams and eight pillars” (四梁八柱) is a Chinese idiom originally referring to the main structural supports of a traditional building; it is used metaphorically to denote the fundamental framework or backbone of a system. of the system of intra-Party regulations. Based on the vertical dimension, a hierarchical structure of norms centered on the coordination of higher-level and lower-level regulations is formed, ranging from top to bottom as follows: the Party Constitution, central intra-Party regulations, ministerial intra-Party regulations, and local intra-Party regulations. Based on the horizontal structure, following the logic of coordinating and integrating “regulating subjects, regulating conduct, and regulating oversight,” a “1+4” basic structure has been formed. That is, under the Party Constitution, there are four major sections: Party organizational regulations, Party leadership regulations, Party self-building regulations, and Party oversight and guarantee regulations. These follow different logics of classification and form sub-level sectional structures; for example, “Party oversight and guarantee regulations” include intra-Party regulations on oversight, rewards and punishments, and guarantees. It must be emphasized that the formation of both the vertical and horizontal structures is the inevitable result of the mutual interaction of their internal constituent elements. As for the entire system of intra-Party regulations, it follows the same structural principle as any system: a given type often runs through multiple levels, including the possibility of multiple levels within the same type; a given level often spans multiple types. Thus, the vertical and horizontal structures of the system of intra-Party regulations are also closely linked. It is precisely because of this crisscrossing, non-linear structure that the universal web of connections of this large system is formed.

党内法规制度体系作为一个系统，其内部各个单项党内法规制度也是有着“近乎系统的形式”的内在结构，这一结构既是规范体系也是逻辑体系，可以分为不同的层次，还可以划分出不同的类型，总体上形成了纵、横两个维度结构，搭建起了党内法规制度体系的“四梁八柱”。基于纵向维度，形成的是以上、下配套为核心的规范阶层结构，自上到下依次为党章、中央党内法规、部委党内法规和地方党内法规。基于横向结构，按照“规范主体、规范行为、规范监督”相统筹相协调的逻辑，形成了“1+4”基本结构，即在党章之下，分为党的组织法规制度、党的领导法规制度、党的自身建设法规制度、党的监督保障法规制度四大板块。它们遵循各自不同的分类逻辑，又形成次一级板块结构，例如“党的监督保障法规制度”包括监督、奖惩和保障方面的党内法规制度。需要强调的是，无论是纵向还是横向结构的形成，都是它们内部各个构成要素相互作用的必然结果。而就整个党内法规制度体系来看，同系统的结构原理一样，即：一定的类型，往往贯穿于多个层次，包括同类型之中也可以具有多个层次；一定的层次，也往往会横跨多种类型。所以说，党内法规制度体系的纵向和横向结构也是紧密联系的，正是有了纵横交错的非线性结构，才得以形成这个大系统的普遍联系之网。

(3) Functionality: The overall optimization of the system of intra-Party regulations is based on the division of labor within its internal structure

（三）功能性：党内法规制度体系的整体优化基于内部结构的各自分工

The functionality of a system is a category corresponding to its structure. Any real system possesses a certain internal structure and, at the same time, a certain external function. The function discussed here is the external manifestation of the system’s internal relatively stable mode of connection, organizational order, and spatiotemporal form. The elements within a system can achieve optimization only through structure, and structure is in turn expressed through the system’s functions and attributes. According to the principles of the Marxist view of systems, different elements have different properties and functions within the system as a whole; this difference is the foundation for constituting the system and the source for realizing the system’s overall function. Moreover, the relationships among the various components of a system are often non-linear, and the overall behavior of the system is also a non-linear interaction. In other words, the reason a system can exert its overall function is that there exist complex non-linear interactions among the elements within the system. Only when the subsystems and their internal components interact and coordinate with one another can the entire system obtain the fundamental driving force for its existence and evolution, producing a synergistic effect of 1+1>2. Just as in the structure of the nature-society system, there are five (sub)systems: the human self-production system, the natural production system, the material goods production system, the spiritual production system, and the political production system. To promote the forward development of the entire society, enhance humanity’s material and cultural-ethical progress, and maintain the human living environment, the construction of these five systems must be strengthened.

系统的功能性是与系统的结构性相对应的范畴。任何一个现实的系统，都具有一定的内部结构，同时，也具有一定的外部功能。这里所讲的功能，是系统内部相对稳定的联系方式、组织秩序及时空形式的外在表现。系统内各要素通过结构才能达到优化，而结构又是借助系统的功能及属性加以表现。依据马克思主义系统观原理，不同要素在系统整体中的性质与功能各不相同，这种差异是构成系统的基础，也是实现系统整体功能的源泉。而系统各个组成部分之间的关系往往是非线性的，对于系统的整体行为，也是非线性相互作用。换句话表达，系统之所以能够发挥其整体功能，是因为系统内部要素之间存在着复杂的非线性相互作用。只有各子系统内部以及它们之间相互作用、协调配合，整个系统才能获得存在和演化的根本动力，产生1+1>2的协同效应。正如自然—社会系统结构中，有五大（子）系统，它们是人类自身生产系统、自然生产系统、物质资料生产系统、精神生产系统和政治产生系统。为推动整个社会的向前发展，提高人类的物质和精神政治文明以及维护人类的生存环境，必须加强这五大系统的建设。

The same applies to the system of intra-Party regulations. Because the division of labor among the various sections of intra-Party regulations within its internal structure differs, their modes of action, organizational order, and spatiotemporal forms of expression within the entire system of intra-Party regulations also differ. Therefore, to promote high-quality development of intra-Party regulation construction, it is necessary, based on functional division, to ensure that the intra-Party regulations of each section coordinate and interact as a whole. First, the Party Constitution, as the general charter for building, governing, and managing the Party, is the “basic norm” for the entire Party. Thus, no matter how the system of intra-Party regulations develops and changes, the Party Constitution must always stand as the overarching rule that is established. Second, the functional embodiment of each section of intra-Party regulations. The reason the system of intra-Party regulations is divided into four subsystems is that each subsystem undertakes different roles and functions. For example, Party organizational regulations mainly standardize Party organizational work, aiming to provide organizational guarantees for the Party’s governance, management, and exercise of political power. Party leadership regulations, on the other hand, are specialized rules and systems that standardize and guarantee the Chinese Communist Party’s leadership over work in all areas. In short, only by achieving the sustained output and coordinated development of intra-Party regulations in each section can the overall optimization of the system of intra-Party regulations be promoted. This is also the logical starting point for the unified normative function of the system of intra-Party regulations to be exerted.

党内法规制度体系也是同样，由于它内部结构中各个板块党内法规制度的分工不同，从而在整个党内法规制度体系中的作用方式、组织秩序及时空表现形式也各不同，因此，推动党内法规制度建设高质量发展，必须基于功能分工，保证各板块党内法规制度相互协调、统筹联动。首先，党章作为立党治党管党的总章程，是全党的“基本规范”。因此，党内法规制度体系不管如何发展变化，党章始终是需要立起来的总规矩。其次，各板块党内法规制度的功能体现。党内法规制度体系之所以划分出四个子系统，在于各个子系统都承担不同作用和功能。例如，党的组织法规制度，主要围绕党的组织工作进行规范，旨在为党管党治党、执政治国提供组织保障。而党的领导法规制度则是规范和保障中国共产党对各方面工作实施领导的专门规章制度。总之，只有实现各板块党内法规制度的持续输出和协调发展，才能推动党内法规制度体系的整体优化，这也是党内法规制度体系统一规范功能得以发挥的逻辑起点。

(4) Openness: The system of intra-Party regulations is a dynamic system that is continuously perfected in practice

（四）开放性：党内法规制度体系是一个在实践中不断完善的动态系统

A strictly closed system is merely a theoretical abstraction, meaning that it cannot spontaneously organize itself to achieve development from chaos to order; for the outside world, this is essentially “nothing.” Systems in reality are often open systems. The world we face is an open world. Any system, whether physical, chemical, biological, or even social, is always in a state of openness. This is not only a condition for a system’s stable existence but also a prerequisite for its upward development. Similarly, the Marxist view of systems regards the systems under investigation as dynamic, open, self-organizing systems, holding that any system is always in a process of dynamic equilibrium and will continuously change as time and environment evolve.

严格意义上的封闭系统只是一种理论上的抽象，意味着不可能自发组织起来实现从混沌到有序的发展，这对于外界来说实质上就是“无”，现实中的系统往往都是开放的系统。我们所面对的世界是一个开放的世界，任何系统，无论它是物理的、化学的，还是生物的，乃至社会的，都始终处在开放之中，这不仅是一个系统得以稳定存在的条件，也是其得以向上发展的前提。同样，马克思主义系统观，把所考察的系统都看作动态开放的自组织系统，认为任何系统都始终处于动态平衡过程之中，且会随着时间、环境变化不断发生改变。

Viewed from the course of building the system of intra-Party regulations, it is also an open, dynamically developing process. Since the birth of the Communist Party of China, it has always insisted that the system of intra-Party regulations advance in the same direction as Party building and the Party’s cause. Especially since the 18th National Congress of the CPC, the Party Central Committee with Comrade Xi Jinping at its core has made comprehensive and strict governance of the Party the distinctive theme of Party building in the New Era, unswervingly advancing rule-based governance of the Party. Against this historical background, the construction model of the system of intra-Party regulations has also been constantly adjusted and changed. For example, focusing on “strengthening the Party’s leadership and the Party’s self-building,” the 2013 “First Five-Year Plan for the Formulation of Intra-Party Regulations of the Central Committee (2013–2017)” initially outlined the basic composition of the system of intra-Party regulations; in 2017, to further strengthen the construction of the intra-Party regulations system, the Party Central Committee issued the “Opinions on Strengthening the Construction of the Intra-Party Regulations System,” clarifying that the system of intra-Party regulations is a system with a “1+4” basic framework; then in 2023, to fully implement the spirit of the 20th National Congress of the CPC and promote high-quality development of the intra-Party regulations system at a new historical starting point, the Party Central Committee issued the “Third Five-Year Plan for the Formulation of Intra-Party Regulations of the Central Committee (2023–2027),” which not only added the system of the Two Upholds [2]2 The Two Upholds (两个维护) refers to upholding the core position of General Secretary Xi Jinping in the Party Central Committee and the Party as on the basis of the “1+4” structure, but also adjusted the order of the original four major blocks of intra-Party regulations, placing the regulations on Party leadership ahead of the regulations on Party organization, highlighting the urgency of perfecting the regulations on Party leadership. The above content shows that the system of intra-Party regulations, as a system, is not immutable, but develops dynamically together with its external conditions and environment. Therefore, focusing on the openness of the system, grasping and following the objective laws of the system of intra-Party regulations’ own development, and conducting a systematic analysis of the factors affecting its development are important prerequisites and a realistic basis for constructing a more complete system of intra-Party regulations.

从党内法规制度体系建设历程来看，也是一个开放的、动态发展的过程。自中国共产党诞生以来，始终坚持党内法规制度体系与党的建设和党的事业同向同行。尤其是党的十八大以来，以习近平同志为核心的党中央把全面从严治党作为新时代党的建设的鲜明主题，坚定不移推进依规治党，在这样的时代背景下，党内法规制度体系的建构模式也不断调整、变化。例如，聚焦于“加强党的领导和党的自身建设”，2013年《中央党内法规制定“一五”规划（2013—2017年）》初步勾勒出党内法规制度体系的基本构成；2017年，为进一步加强党内法规制度建设，党中央印发《关于加强党内法规制度建设的意见》，明确党内法规制度体系是以“1+4”为基本框架的制度体系；再到2023年，为全面贯彻党的二十大精神，新的历史起点上推动党内法规制度建设高质量发展，党中央印发《中央党内法规制定“三五”规划（2023—2027年）》，不仅在“1+4”结构的基础上增加了“两个维护”制度，同时，还将原有的四大板块党内法规制度调整了位序，党的领导法规制度被放置于党的组织法规制度之前，突出了完善党的领导法规制度的紧迫性。上述内容可见，党内法规制度体系作为一个系统，不是一成不变的，而是与其外部条件、环境一同动态发展的。因此，着眼于系统的开放性，把握并遵循党内法规制度体系自身发展的客观规律，对影响其发展的因素进行系统分析，是构建更加完善的党内法规制度体系的重要前提和现实基础。

III. Realistic Dilemmas in the Construction of the System of Intra-Party Regulations

三、党内法规制度体系建设的现实困境

The evolution of institutions is not a simple linear process, but a systematic project. The current system of intra-Party regulations has some problems and dilemmas in terms of wholeness, structure, functionality, and openness, which need to be further improved.

制度的演进不是一个简单的线性进程，而是一个系统工程。现行党内法规制度体系在整体性、结构性、功能性和开放性等方面存在一些问题和困境，有待进一步完善。

(I) Problems in the Wholeness of the System of Intra-Party Regulations

（一）党内法规制度体系在整体性方面存在的问题

As a systemic existence, the system of intra-Party regulations organically links individual intra-Party regulations and generates non-linear interactions among them; this is the underlying logic that highlights its wholeness, rather than a simple summation of each individual intra-Party regulation. At present, with the continuous deepening of Party institutional building, although a basic framework has been established and a relatively complete system of intra-Party regulations has been formed, in practical operation there still exist some “fragmentation” phenomena that affect the maximum realization of its overall function.

作为一种系统存在，党内法规制度体系将一个个单项党内法规制度有机联系起来并发生非线性相互作用是凸显其整体性的底层逻辑，而非各个党内法规制度的简单加和。当前，随着党的制度建设的持续深入，虽然已经建立起基本框架，形成了比较完善的党内法规制度体系，但在实践运行中，仍存在一些“碎片化”现象，影响其整体功能的最大发挥。

First, the nominal existence of some intra-Party regulations affects the stability of the entire system. The concept of a system emphasizes the whole, which is composed of interrelated and mutually constraining parts. In the current system of intra-Party regulations, some already formulated and promulgated intra-Party regulations have not been effectively implemented in practice. This process of invalidation obviously affects the perfection of the system of intra-Party regulations. For example, the “Regulations of the Communist Party of China on the Work of Complaints and Appeals by Discipline Inspection and Supervision Organs,” formulated in 1993, has not been revised since its implementation. Some of its content overlaps, duplicates, or even contradicts the “Rules of Discipline Inspection and Supervision Organs on Handling Reports and Accusations,” formulated in 2020. For instance, regarding the scope of reports and accusations, Article 3 of the former and Article 4 of the latter both mention it, but the content is inconsistent, urgently requiring amendment.

一是部分党内法规制度的虚置影响了整个体系的稳定性。系统的概念就是强调整体，强调整体是由相互关联与制约的各个部分所组成，当前的党内法规制度体系中，有一些已经制定并颁布的党内法规制度在实际中并未得到有效执行，这种无效化的过程显然会影响党内法规制度体系的完善。如1993年制定的《中国共产党纪律检查机关控告申诉工作条例》，自实施以来未重新修订过，其中部分内容与2020年制定的《纪检监察机关处理检举控告工作规则》存在交叉、重复甚至不一致的情况，如关于检举控告的范围，《中国共产党纪律检查机关控告申诉工作条例》第三条与《纪检监察机关处理检举控告工作规则》第四条都有提及，但内容却不相一致，亟待修改。

Second, the connotation and extension of the system of intra-Party regulations need to be further clarified. Although the concept of the system of intra-Party regulations has been defined to some extent, the composition of the system of intra-Party regulations is complex, and it has not been clearly distinguished from related concepts such as the system of intra-Party laws and regulations, the system for comprehensive and strict governance of the Party, and the system of norms for the Party’s self-revolution. This leads to situations in actual research where these different concepts, especially the system of intra-Party regulations and the system of intra-Party laws and regulations, are used interchangeably or even without distinction. For example, the “Opinions on Strengthening the Construction of the Intra-Party Regulations System” and the report of the 20th National Congress of the CPC both use the term “system of intra-Party regulations,” while the “Third Five-Year Plan for the Formulation of Intra-Party Regulations of the Central Committee (2023–2027)” uses the term “system of intra-Party laws and regulations.”

二是党内法规制度体系的内涵外延有待进一步明晰。尽管当前对党内法规制度体系的概念已经有所界定，但党内法规制度体系构成复杂，且未与党内法规体系、全面从严治党体系以及党的自我革命制度规范体系等关联概念进行明确区分，导致在实际研究过程中，会出现上述不同概念，特别是党内法规制度体系与党内法规体系混淆使用，甚至无差别使用等情况。如在《关于加强党内法规制度建设的意见》、党的二十大报告中都是使用“党内法规制度体系”概念表述，而在《中央党内法规制定“三五”规划（2023—2027年）》中又称为“党内法规体系”。

(II) Problems in the Structure of the System of Intra-Party Regulations

（二）党内法规制度体系在结构性方面存在的问题

Whether it is the evolution and development of the system of intra-Party regulations or the exertion of its overall function, to a certain extent it depends on the structural state and interaction among its internal elements. If benign competition and synergy arise among the subsystems within the system of intra-Party regulations, strong overall behavior will manifest; conversely, it will lead to the incompleteness and imperfection of the entire system. At the current stage, the structure of the system of intra-Party regulations still suffers from imbalances in composition, leaving room for further adjustment and improvement.

无论是党内法规制度体系的演化发展，还是它整体功能的发挥，一定程度上都取决于其内部要素间的结构状态和相互作用。若党内法规制度体系内部各子系统之间产生良性竞争与协同，就会由此表现出强烈的整体行为，反之，则会导致整个体系的不完整、不完善。就现阶段来看，党内法规制度体系的结构仍存在构成不均衡问题，有进一步调整和完善的空间。

First, in terms of vertical structure. Although the vertical compositional logic of the system of intra-Party regulations is relatively stable, some deficiencies still appear in its structure. For example, the system of intra-Party regulations lacks procedural regulations that match certain substantive regulations. At present, the situation of “emphasizing substance, neglecting procedure” still exists. For instance, the “Regulations of the Communist Party of China on the United Front Work” and the “Regulations of the Communist Party of China on Accountability” lack specific, operable norms to simultaneously support and supplement them in practice. This not only leads to inadequate performance of duties but also affects the implementation of major decisions and deployments of the Party Central Committee. Another situation is that some corresponding procedural norms are not rigorous or specific enough in their formulation and expression, lacking operability and making them difficult to implement. For example, the “Provisions on the Responsibility System for the Implementation of Intra-Party Regulations of the Communist Party of China (Trial),” as a procedural regulation, although it clarifies the main responsibility for implementing intra-Party regulations, its provisions on the implementation responsibility for each type of intra-Party regulation are relatively general, without detailing the substantive content of responsibility.

一是纵向结构方面。虽然党内法规制度体系纵向构成逻辑较为稳定，但在结构上仍显现出一些不足，例如，党内法规制度体系中缺乏与一些实体性法规相配套的程序性法规。就当前来看，“重实体、轻程序”的情况依然存在，如《中国共产党统一战线工作条例》《中国共产党问责条例》等，在实践中没有可操作性的具体规范同步配套、补充，这样不仅会导致职责履行不力，还会影响党中央重大决策部署的贯彻落实。还有一种情况是相应的一些程序性规范在制定表达上不够严谨、具体，可操作性不强，难以贯彻执行。比如《中国共产党党内法规执行责任制规定（试行）》作为程序性法规，尽管明确了党内法规制度执行的主体责任，但其对于每类党内法规执行责任均是较为笼统的规定，没有细化实质性责任内容。

Second, in terms of horizontal structure. The current horizontal structure of the system of intra-Party regulations is a “1+4” basic framework formed according to the logic of “three norms.” [3]3 The Party Constitution is revised at each National Congress of the CPC; the most recent revision occurred at the 20th National Congress in October 2022. Now, with the determination of goals and tasks for the new stage, problems such as structural incoordination in the horizontal system are gradually emerging. For example, there is an imbalance in the proportion of the composition of regulations in each block. Through sorting and classification, it is found that the current regulations on the Party’s self-building and the regulations on the Party’s supervision and guarantee, both in overall quantity and in the number issued since the 18th National Congress of the CPC, far exceed the regulations on Party leadership and the regulations on Party organization. It can be seen that, as equally important components of the horizontal structure of the system of intra-Party regulations, there is a certain proportional imbalance in quantity.

二是横向结构方面。现行党内法规制度体系的横向结构是依据“三个规范”逻辑形成的“1+4”基本框架。如今，随着新阶段目标与任务的确定，横向体系的结构不协调等问题逐渐显现，例如，各板块党内法规制度的构成存在比例失衡问题。通过梳理和分类发现，当前党的自身建设法规制度和党的监督保障法规制度，无论是整体数量，还是党的十八大以来出台的数量，都远远超过了党的领导法规制度和党的组织法规制度。可以看到，同样作为党内法规制度体系横向结构的重要组成部分，在数量上存在一定的比例失衡。

(III) Problems in the Functionality of the System of Intra-Party Regulations

（三）党内法规制度体系在功能性方面存在的问题

Each subsystem within the system of intra-Party regulations undertakes roles and functions for the entire system that other subsystems cannot replace. To promote the overall optimization of the system of intra-Party regulations, it is necessary for the regulations of each block to develop in a coordinated manner, jointly forming institutional synergy. At present, some problems still exist.

党内法规制度体系中的各个子系统都承担着对于整个系统来说其他子系统所无法替代的作用和功能，要推动党内法规制度体系的整体优化，需要各板块党内法规制度协调发展，共同形成制度合力。就当前来看，仍存在一些问题。

First, the regulations of each block need to be optimized and adjusted. For example, the current regulations on Party leadership are classified based on “leadership matters,” but factors such as “who is led” and “how to lead” are not fully reflected. Objectively speaking, this cannot meet the requirement of “playing the role of the core of leadership in exercising overall leadership and coordinating all parties.” [4]4 The Central Commission for Discipline Inspection of the CPC is the Party’s highest internal disciplinary body; its full name is the Central Commission for Discipline Inspection of the Communist Party of China, often abbreviated as the Central Commission for Discipline Inspection or the CCDI. In addition, the current regulations on Party leadership also face debates about their spillover effect. That is, the regulations on Party leadership are meant to regulate the leadership behavior of the Party and rationally allocate the Party’s leadership power, without directly binding non-Party organizations and their members. However, in practice, because the allocation of “leadership power” inevitably affects the regulatory objects and functional roles of these regulations, they need to be readjusted according to actual circumstances.

一是各板块党内法规制度有待优化调整。例如，现行党的领导法规制度是基于“领导事项”进行分类的，但其中就“领导谁”和“怎么领导”等因素并未得到充分体现，客观来讲，无法满足“总揽全局、协调各方领导核心作用”的要求，除此之外，当前党的领导法规制度还存在溢出效力争论，即党的领导法规制度是对党的领导行为予以规范，对党的领导权作出合理配置，而不直接对非党组织及其成员产生约束力，但实际上党的领导法规制度因“领导权”的配置必然会影响到法规的调整对象和功能作用，这些都需要根据实际情况重新调整。

Second, there are problems of overlapping and ambiguous classification among the intra-Party regulations in different sectors. For example, the second-level sector “regulations on Party organizational building” within “regulations on Party organizational institutions” and “regulations on Party’s self-building” share similar names and overlapping content. Similar problems of cross-repetition also exist between “regulations on Party’s self-building” and “regulations on Party supervision and guarantee,” such as the question of which sector the *Regulations of the Communist Party of China on Disciplinary Sanctions* belongs to, and so on.

二是各板块党内法规制度存在重叠交叉、模糊分类等问题。例如，“党的组织法规制度”与“党的自身建设法规制度”中二级板块“党的组织建设方面法规”存在名称相似且内容重叠问题。类似的交叉重复问题在“党的自身建设法规制度”和“党的监督保障法规制度”中也同样存在，如《中国共产党纪律处分条例》的归属问题，等等，这些都会导致各板块党内法规制度，甚至整个党内法规制度体系功能的发挥受到限制。

Third, the “value rationality” of the system of intra-Party regulations is often neglected in practice. The functional performance of the system of intra-Party regulations is manifested not only in the interaction and logical self-consistency of its internal subsystems; the value demonstration of the entire system is also very important. It can not only endow the system of intra-Party regulations with a spiritual core but also inject a continuous driving force for optimization into the practice of Party governance. However, it must be noted that, owing to the influence of China’s tradition of rule by man and legal instrumentalism, the “value rationality” of the system of intra-Party regulations has not been effectively demonstrated; sometimes it serves merely as a means and tool for realizing a certain policy or outcome.

三是党内法规制度体系的“价值理性”在实践中常常被忽视。党内法规制度体系的功能发挥不仅体现在内部各子系统的相互作用和逻辑自洽，其整个体系的价值彰显也十分重要，不仅能够赋予党内法规制度体系以精神内核，还能为党内治理实践注入持续优化的原动力。但需要提及的是，由于我国受人治传统和法律工具主义的影响，导致党内法规制度体系的“价值理性”并未得到有效彰显，有时只是作为实现一种政策或结果的手段和工具。

(IV) Problems in the Openness of the System of Intra-Party Regulations

（四）党内法规制度体系在开放性方面存在的问题

Historically, no single intra-Party regulation is once-and-for-all or immutable; even the Party’s fundamental law — the Party Constitution — is no exception, as it is revised at every National Congress. [n] It is evident that the system of intra-Party regulations, as the specialized rules and regulations guiding the behavior choices of Party organizations and members, can respond to the questions of the times only by confronting reality and taking root in reality. At present, however, the flexibility and connectivity of the system of intra-Party regulations in responding to environmental changes still need improvement.

历史地看，没有一部党内法规制度是一劳永逸、一成不变的，即使是党的根本大法—党章也不例外，每次党代会都要对其进行修改。可见，党内法规制度体系作为党组织和党员行为选择的专门规章制度，只有直面现实、根植现实，才能回应时代之问。而当前来看，党内法规制度体系应对环境变化的灵活性、贯通性仍有待提升。

First, some intra-Party regulations do not conform to reality in their normative content or form. Theoretically, the formulation of intra-Party regulations should adhere to the principle of proceeding from actual needs, striving to solve practical problems with scientific and effective intra-Party regulations. In concrete practical operations, however, there is a certain gap. For example, some intra-Party regulations contain only qualitative stipulations, lacking quantitative standards, which hinders their implementation; some intra-Party regulations have content that is out of step with the times and cannot keep pace with actual conditions, leading to a lacuna in the regulations; some intra-Party regulations do not follow objective laws and are formulated for the sake of formulation, resulting in excessively high standards and overly strict provisions that are divorced from Party practice. These problems directly or indirectly affect the overall quality of the system of intra-Party regulations.

一是部分党内法规制度在规范内容或形式上不符合实际。从理论上来讲，党内法规在制定中应坚持从实际需求出发，力求以科学有效的党内法规解决现实问题。然而在具体实践操作中，是有一定差距的。例如，有的党内法规只有定性规定，缺乏量化标准，导致党内法规执行受阻；有的党内法规内容不合时宜，无法与现实情况相同步，导致党内法规缺位；有的党内法规不遵循客观规律，为了制定而制定，导致在制定中标准过高、规定过严，与党内实践相脱离。这些问题直接或间接影响了党内法规制度体系的整体质量。

Second, the standardization and democratic character of the intra-Party regulation formulation process need improvement. Focusing on the scientific, standardized, and operable nature of the system of intra-Party regulations requires ensuring that the formulation work incorporates more opinions from Party members and grassroots voices through the spiritual connotation of democratic centralism. Although in 2019 the CPC Central Committee revised the Regulations on the Formulation of Intra-Party Regulations of the Communist Party of China, further standardizing the formulation process from both procedural and substantive aspects, the provisions remain relatively conceptual and abstract, lacking detailed stipulations on specific particulars. For instance, Chapter IV mentions that drafting intra-Party regulations should fully understand the opinions and suggestions of Party organizations at all levels and the broad masses of Party members, but it does not elaborate on how participants specifically engage in the formulation process, thereby rendering the behavioral norm of soliciting opinions unenforceable.

二是党内法规制定过程的规范性和民主性有待提高。着眼于党内法规制度体系的科学性、规范性和可操作性，需要以民主集中的精神内涵确保党内法规制定工作听到更多党员意见和基层声音。虽然2019年中共中央修订《中国共产党党内法规制定条例》，从程序和实体两个方面进一步规范了党内法规的制定过程，但相对概念化、抽象化，缺乏对一些具体细节进行详细规定。例如，在第四章提到起草党内法规要充分了解各级党组织和广大党员的意见和建议，而对于参与者具体如何参与党内法规制定过程却没有展开，由此导致征求意见这一行为规范无法落实。

Third, there is still considerable room for improvement in the technical aspects of intra-Party regulation formulation. Currently, there are no specialized technical norms for formulation in the field of intra-Party regulations, leading to problems such as nonstandard use of names and unclear formal structures in the formulation process. For example, Article 26 of the Regulations on Accountability of the Communist Party of China stipulates, “These Regulations shall be interpreted by the Central Commission for Discipline Inspection,” but Article 12 of the Several Provisions on Personal Securities Investment Behavior of Personnel in Party and Government Organs uses the abbreviated form “Central Commission for Discipline Inspection of the CPC.” [n] It is evident that the technical aspects of intra-Party regulation formulation have not yet achieved standardization and institutionalization, resulting in weak targeting and operability in the implementation of some intra-Party regulations.

三是党内法规制定技术还存在较大的提升空间。当前，在党内法规领域尚无专门的制定技术规范，导致党内法规在制定过程中存在名称使用不规范、形式结构不清晰等问题。例如《中国共产党问责条例》第二十六条规定“本条例由中央纪律检查委员会负责解释”，但在《关于党政机关工作人员个人证券投资行为若干规定》第十二条，却使用的是简称“中共中央纪委”。可见，党内法规的制定技术尚未实现规范化、制度化，导致部分党内法规制度在执行中针对性、可操作性较弱。

IV. Paths for Perfecting the System of Intra-Party Regulations

四、党内法规制度体系的完善路径

Constructing the system of intra-Party regulations is not a once-and-for-all task, nor can its direction and achievements be changed arbitrarily. Standing at a new historical starting point, it is necessary to adapt to the changes and requirements of new situations and new tasks, continuously perfecting and innovating with systematic thinking.

构建党内法规制度体系不是一劳永逸的，其方向和成果也不能朝令夕改。站在新的历史起点上，需要适应新形势、新任务的变化和要求，以系统化思维不断完善、创新。

(I) Strengthening Holistic Thinking on the Construction of the System of Intra-Party Regulations

（一）强化对党内法规制度体系建设的整体性思考

Chapter III, “Planning and Programs,” of the Regulations on the Formulation of Intra-Party Regulations of the Communist Party of China emphasizes that the formulation of intra-Party regulations should highlight key points, advance comprehensively, and construct a system of intra-Party regulations that is scientifically sound in content, rigorous in procedure, complete in supporting measures, and effective in operation. The system of intra-Party regulations covers all aspects of the Party’s leadership and Party building, and different intra-Party regulations have different objects of adjustment and normative matters; therefore, holistic thinking on the construction of the system of intra-Party regulations must be strengthened.

《中国共产党党内法规制定条例》第三章“规划与计划”部分强调，制定党内法规应当突出重点、整体推进，构建内容科学、程序严密、配套完备、运行有效的党内法规制度体系。党内法规制度体系涉及党的领导与党的建设的各个方面，且不同党内法规的调整对象和规范事项均不相同，因而要加强对党内法规制度体系建设的整体性思考。

First, advance the construction of the system of intra-Party regulations in a three-dimensional, all-round manner. Perfecting the system of intra-Party regulations is a systematic project requiring multi-directional and concerted efforts. On the one hand, focusing on the overall work of the Party and the state, promptly revise or clear out those intra-Party regulations that lag behind practical development and the needs of the situation and tasks, so as to achieve “slimming” and “fitness” of the intra-Party regulations, resolving problems of inadaptability, incoordination, disconnection, and inconsistency. On the other hand, with an eye to the “future tense,” do a good job of top-level design, coordinate the work of formulating, revising, abolishing, and interpreting intra-Party regulations, accelerate the filling of gaps in the intra-Party regulatory system, and ensure that intra-Party regulations in all fields and aspects are connected, interactive, and mutually responsive.

一是立体式全方位推进党内法规制度体系建设。完善党内法规制度体系，是一个多方发力、同向发力的系统工程。一方面，围绕党和国家工作大局，及时修改或清理滞后于实践发展和形势任务需要的部分党内法规制度，以实现党内法规制度的“瘦身”和“健身”，解决不适应、不协调、不衔接、不一致等问题；另一方面，着眼于“将来时”，做好顶层设计，统筹推进党内法规立改废释工作，加快补齐党内法规制度短板，确保各领域各方面党内法规制度衔接呼应、互联互动。

Second, clarify the different connotations of the system of intra-Party regulations and related concepts. Clarifying the concept of the system of intra-Party regulations is an important foundation for discussing this complex system and a prerequisite for reflecting the degree of standardization of the Party’s institutions, influencing the structural style and normative form of intra-Party regulations. Because the composition of the system of intra-Party regulations is complex, its connotation and extension must be grasped completely, accurately, and comprehensively to form correct understanding and reasonable judgment as a whole. On the one hand, clarify the connections and differences between the “system of intra-Party regulations” (党内法规制度体系) and the “system of intra-Party rules and regulations” (党内法规体系). Although only two characters differ, this reflects the different extensions of the two concepts; further explicit stipulations should be made to fully demonstrate the qualitative stipulations of the system of intra-Party regulations as a system. On the other hand, it is necessary to distinguish the system of intra-Party regulations from related concepts such as the system for comprehensive and strict governance of the Party and the system of norms for the Party’s self-revolution, as well as their interrelationships, thereby deepening the holistic understanding of the system of intra-Party regulations.

二是厘清党内法规制度体系以及关联概念的不同内涵。明晰党内法规制度体系概念是讨论这个庞杂系统的重要基础，也是体现党的制度规范化程度的前提条件，影响着党内法规的结构体例和规范形态。由于党内法规制度体系构成复杂，必须完整、准确、全面地把握其内涵外延，才能从整体上形成正确认识和合理判断。一方面，厘清“党内法规制度体系”和“党内法规体系”两者之间的联系与区别，虽然两字之差，但体现了两个概念的不同外延，应进一步明确规定，以充分彰显党内法规制度体系作为系统的质的规定性；另一方面，则需要区分党内法规制度体系与全面从严治党体系、党的自我革命制度规范体系等关联概念及相互关系，从而深化对党内法规制度体系的整体性认识。

(II) Constructing an Overall Pattern of Efficient and Synergistic Intra-Party Regulations

（二）构建高效协同的党内法规制度体系总体样态

“Clearly demarcating institutional segments is significant not only for theoretically answering the basic composition of the system of intra-Party regulations but, more importantly, for providing a roadmap and weather vane for the practice of intra-Party regulation formulation.” [n] Based on the new-stage tasks facing the construction of the system of intra-Party regulations itself, it is necessary to comprehensively examine the basic composition of the system of intra-Party regulations, promptly adjust and perfect it, and achieve the optimization of the overall structure of the system of intra-Party regulations.

“明确划分制度板块，其意义显然不限于在学理上回答党内法规制度体系的基本构成问题，更在于为党内法规制定工作实践提供了路线图和风向标。”立足于党内法规制度体系自身建设所面临的新阶段任务，需要全面审视党内法规制度体系的基本构成，及时调整完善，实现党内法规制度体系整体结构的最优化。

First, vertically, build a system of intra-Party regulations with clear hierarchies and orderly connections. On the one hand, add a number of foundational and主干性 intra-Party regulations in appropriate areas. For example, ideological and political work has always been a fine tradition and political strength of our Party, yet foundational and主干 regulations in this area remain blank. Therefore, it is necessary to formulate intra-Party regulations such as the *Chinese Communist Party Code of Ideological and Moral Conduct* and the *Chinese Communist Party Regulations on Ideological and Political Work*. On the other hand, focus on the formulation and improvement of supporting regulations. While formulating foundational and主干 regulations such as codes and regulations, corresponding supporting regulations should be formulated and improved in a targeted manner, forming a cluster of intra-Party regulations supplemented by provisions, measures, rules, and detailed rules, promptly “adding bricks and tiles” to the system of intra-Party regulations. For example, regarding the Party’s leadership over united front work, the Party Central Committee has already revised the superior intra-Party regulation, the *Chinese Communist Party United Front Work Regulations*, but regarding how united front work is specifically implemented and how main responsibilities are allocated, corresponding supporting regulations such as the *Provisions on the Implementation of the United Front Work Responsibility System by Party Committees (Party Groups)* should also be formulated to make clear stipulations.

一是纵向上，构建层级分明、衔接有序的党内法规制度体系。一方面，在适当的领域方面增加一批基础性、主干性党内法规。例如思想政治工作一直以来都是我们党的优良传统和政治优势，但此方面的基础主干性法规还处于空白状态。因此，需要制定《中国共产党思想道德准则》《中国共产党思想政治工作条例》等党内法规。另一方面，注重配套性法规的制定与完善。在制定准则、条例等基础性、主干性党内法规同时，有针对性地制定和完善相应的配套性法规，形成以规定、办法、规则、细则为细化补充的党内法规制度群，及时为党内法规制度体系“添砖加瓦”。例如，关于党对统一战线工作的领导，中共中央已修订上位党内法规《中国共产党统一战线工作条例》，但就统战工作具体如何落实、主体责任如何分配，还应制定类似于《党委（党组）落实统战工作责任制规定》等相关配套性法规以作出明确规定。

Second, horizontally, build a system of intra-Party regulations with comprehensive coverage and clear boundaries. The system of intra-Party regulations is an integration of various heterogeneous norms, not a superposition of homogeneous norms. Focusing on the prominent problems in the current “1+4” horizontal structure of the intra-Party regulation system, it is necessary to adjust and optimize the intra-Party regulations in each sector to enhance the coherence and completeness within the system. At present, it is urgent to increase the number of intra-Party regulations in sectors such as Party leadership regulations and Party organizational regulations, prompting the horizontal structure of the entire intra-Party regulation system to maintain a relatively stable and mutually adaptive state, thereby providing more ideas for strengthening the enforcement of the intra-Party regulation system. For example, within the Party leadership regulations, it is necessary to further improve the system for the Party’s leadership over various undertakings, implementing the Party’s leadership comprehensively in all fields, aspects, and links of the coordinated advancement of the Five-Sphere Integrated Plan and the Four-Pronged Comprehensive Strategy.

二是横向上，构建覆盖全面、边界清晰的党内法规制度体系。党内法规制度体系是对各类异质规范的整合而不是同质规范的叠加，聚焦当前党内法规制度体系“1+4”横向结构存在的突出问题，需要对各板块党内法规制度进行调整与优化，以提升党内法规制度体系内部的融贯性和完整性。目前来看，亟待增加党的领导法规制度、党的组织法规制度等板块党内法规制度数量，促使整个党内法规制度体系横向结构保持一种相对稳定、相互适应的状态，进而为强化党内法规制度体系执行力提供更多思路。例如，党的领导法规制度中，要进一步完善党领导各项事业的制度，把党的领导贯彻落实到统筹推进“五位一体”总体布局、协调推进“四个全面”战略布局各领域各方面各环节。

(3) Shifting from solving the quantitative problem of having no regulations to rely on to focusing on achieving good regulations and good governance

（三）从解决无规可依的数量问题转向注重实现良规善治

The optimization of the intra-Party regulation system is not only an increase in the “quantity” of institutions but also an enhancement of the overall coordinated and unified “quality.” Currently, the quantitative supply of intra-Party regulations is relatively stable, and the main task of formulating intra-Party regulations also needs to shift from solving the quantitative problem of having no regulations to rely on to achieving good regulations and good governance, so as to unleash the overall synergy of the intra-Party regulation system.

党内法规制度体系的优化，不只是制度“量”的增加，更是整体协调统一的“质”的提升。当前，党内法规数量供给相对稳定，党内法规制定的主要任务也需从解决无规可依的数量问题转向实现良规善治，以发挥党内法规制度体系的整体合力。

First, improve the internal composition of intra-Party regulations in each sector. If the system structure changes, it means the system will also undergo a qualitative change. To improve its internal horizontal structure, the intra-Party regulation system must start from the most essential stipulations of the intra-Party regulations in each sector, determine a scientific classification basis, and achieve a high degree of self-consistency in both content and structure within the horizontal intra-Party regulation system itself. For example, regarding the debate on the spillover effect of Party leadership regulations mentioned earlier, the adjustment of such leadership relations needs to be completed through the coordinated linkage of improving Party leadership regulations and promoting the integration of Party leadership into laws and regulations, where the role of Party leadership regulations should be reflected in the scientific allocation of Party leadership powers.

一是完善各板块党内法规制度的内部构成。如果系统结构发生改变，那意味着系统也会发生质变。党内法规制度体系要完善其内部横向结构，必须从各板块党内法规制度最本质的规定性出发，确定科学的分类依据，实现横向党内法规制度体系本身在内容与结构方面的高度自洽。例如，针对前面提及的党的领导法规制度的溢出效力争论问题，对于这种领导关系的调整，需要通过完善党的领导法规制度和推进党的领导入法入规协同联动完成，其中党的领导法规制度的作用应体现为科学配置党的领导权。

Second, promote the balanced development of the intra-Party regulation system. Focusing on existing problems such as overlapping and cross-cutting content and chaotic normative logic among intra-Party regulations in different sectors, it is necessary to make overall plans and promptly adjust those intra-Party regulations that affect or dominate the overall function of the intra-Party regulation system, ensuring coordinated linkage among regulations in different sectors. For example, the “regulations on Party organizational construction” within the “regulations on the Party’s self-building” can be reclassified under “Party organizational regulations.” After such adjustment, the involved content will no longer be overlapping and cross-cutting, and the logical structure will become clearer, thereby facilitating the optimization and upgrading of the entire intra-Party regulation system.

二是推动党内法规制度体系均衡发展。聚焦当前存在的各板块党内法规制度内容重叠交叉、规范逻辑混乱等问题，需要统筹规划，及时调整影响或支配党内法规制度体系整体功能发挥的部分党内法规制度，确保不同板块党内法规制度协调联动。例如，可以将“党的自身建设法规制度”中关于“党的组织建设方面的法规”归类在“党的组织法规制度”，这样调整后涉及内容不再重复交叉，逻辑结构也会更加清晰，从而有利于推动整个党内法规制度体系的优化升级。

Third, focus on manifesting the “value rationality” of the intra-Party regulation system. Practice shows that the Chinese Communist Party must value the rule of Party regulations in governing the country and rejuvenating the nation, fully demonstrating the unique institutional advantages and political effectiveness of the intra-Party regulation system in safeguarding the development of the Party and the state. Intra-Party regulations are established by the Party and thrive for the Party. Planning and advancing the construction of the intra-Party regulation system must adhere to correct value guidance to ensure it does not deviate from the original aspiration and founding mission, that is, achieving a relatively balanced state between “value-rational action” and “purpose-rational action.” This also means that, in the process of perfecting the intra-Party regulation system, we must always adhere to the original aspiration and founding mission, take value pursuits such as fairness, justice, and order as directional guidance, continuously deepen the understanding of the laws governing the construction of the intra-Party regulation system, and achieve genuine good regulations and good governance.

三是注重党内法规制度体系“价值理性”的彰显。实践表明，中国共产党执政治国、执政兴国必须重视党规之治，充分彰显党内法规制度体系在保障党和国家事业发展上的独特制度优势和政治效能。党内法规为党所立、为党而兴，谋划和推进党内法规制度体系建设，必须坚持正确的价值指引，才能确保不背离初心和使命，即“价值合理性行为”和“目的合理性行为”达到相对平衡的状态。这也意味着，在完善党内法规制度体系过程中，要始终坚守初心使命，将公平、正义和秩序等价值追求作为方向指引，不断深化对党内法规制度体系建设的规律性认识，实现真正的良规善治。

(4) Maintaining full openness throughout the process of perfecting the intra-Party regulation system

（四）在完善党内法规制度体系过程中始终保持充分开放

Openness is the prerequisite for a system to maintain stable existence in a dynamic state. Stagnant openness does not exist, and the stagnation of openness is also impossible. Therefore, in the practical process of perfecting the intra-Party regulation system, openness must be maintained, that is, continuously exploring, adjusting, and optimizing according to environmental development and changes, ensuring it remains full of vitality and dynamic balance.

开放是系统得以在动态之中保持稳定存在的前提。停滞的开放是不存在的，而开放的停滞也是不可能的。因此，完善党内法规制度体系的实践过程中要保持开放性，即根据环境发展及变化不断探索、调整、优化，确保其始终充满活力、动态平衡。

First, strengthen the high-quality supply of intra-Party regulations. Historically, relative to the practical development of governing the Party and the state, the construction process of the intra-Party regulation system usually manifests as a relay process of old and new institutions. It can be said that the vast majority of intra-Party regulations have a life cycle, precisely because external environmental conditions are always developing and changing. Therefore, it is necessary to combine the practical needs for intra-Party regulations in the New Era and the new journey, strictly follow the principles of being legally comprehensive and practically simple, conduct a comprehensive and careful review of all types of intra-Party regulations, promptly revise and improve outdated intra-Party regulations, focus on filling institutional shortcomings and mechanism gaps, achieve coordination and unity within the internal system of intra-Party regulations, and “resonate at the same frequency” with the times.

一是加强党内法规制度的高质量供给。历史地看，相对于管党治党、执政治国的实践发展而言，党内法规制度体系的建设过程通常表现为新旧制度的接力过程，可以说，绝大多数党内法规制度都有一个生命周期，原因在于外界环境条件总是发展变化的。因此，要结合新时代新征程对党内法规制度的现实需求，严格按照于法周延、于事简便的原则，对各类党内法规制度进行全面认真梳理，及时修改、完善不合时宜的党内法规制度，着力补齐制度短板、机制缺项，实现党内法规制度内部体系的协调统一，与时代“同频共振”。

Second, maintain openness and democracy in the formulation process of intra-Party regulations. The authority and effectiveness of the intra-Party regulation system as a normative system fundamentally stem from the democratic nature of its formulation process. To ensure intra-Party regulations are widely recognized, the democratic and open nature of their formulation should be continuously improved. For example, establish and improve participation systems in the formulation process of intra-Party regulations, prompting grassroots Party organizations and Party members to effectively participate in the formulation process of intra-Party regulations, and so on. At the same time, in all links of formulating intra-Party regulations, widely solicit non-Party wisdom through methods such as symposiums, demonstration meetings, and field research.

二是党内法规制定环节始终保持开放、民主。党内法规制度体系作为规范体系的权威和效力，根本上是源于其制定过程的民主性。想要党内法规制度受到广泛认可，应不断提高党内法规制定的民主性和开放性。如建立并完善党内法规制定过程的参与制度，促使基层党组织和党员有效参与到党内法规的制定过程中，等等。与此同时，还要在制定党内法规的各个环节，通过座谈会、论证会、实地调研等方式广泛听取党外智慧。

Third, improve the legislative technique of intra-Party regulations. For national laws, “without the scientization and modernization of legislative technique, there is no modernization of legislation.” The same applies to intra-Party regulations; the legislative technique of intra-Party regulations can serve as the most intuitive reference for judging whether intra-Party regulations keep pace with the times. In the future, by drawing on the beneficial experiences and practices of legislative technique in regulating national legislative activities, a *Technical Specification for the Formulation of Intra-Party Regulations* could be formulated to enhance the practical feasibility of formulating intra-Party regulations. At the same time, to reduce blindness and ineffectiveness, consideration could also be given to prioritizing pilot work in local areas, thereby summarizing experiences to better guide the practice of formulating intra-Party regulations, ensuring that each formulated intra-Party regulation can stand firm, work smoothly, and be effectively enforced.

三是提升党内法规制定技术。对于国家法律而言，“没有立法技术的科学化和现代化，就没有立法的现代化”。党内法规同样适用，党内法规制定技术可以作为评判党内法规制度是否与时俱进最直观的参照。今后，可以通过借鉴立法技术在规范国家立法活动中的有益经验和做法，制定《党内法规制度制定技术规范》，增强党内法规制定的现实可行性。同时，为减少盲目性和无效性，也可考虑优先在地方推广试点工作，进而总结经验，更好地指导党内法规制定实践，确保制定出台的每项党内法规都能立得住、行得通、管得了。

V. Conclusion

五、结语

In the New Era, the Party Central Committee with Comrade Xi Jinping at its core has set forth a series of important expositions on the construction of the intra-Party regulations system, emphasizing the need to enhance the systemic nature, integrity and synergy of the intra-Party regulations system, and to strengthen top-level design and overall planning, thereby pointing the direction and providing the guidelines for the construction of the intra-Party regulations system. According to Marxist systems theory, any system must rely on the extensive interactions among the various units within the system and the synergistic aggregation of multiple elements. At the same time, the interior and exterior of the entire system are filled with various kinds of feedback and connections. The realization of system optimization — that is, the improvement of the system’s whole, structure, function and environment — depends on benign competition and synergy among the various elements or subsystems, so as to form a new, higher-level whole. The intra-Party regulations system, as a large system composed of crisscrossing subsystems with inherent logical connections, can only discover and analyze the interconnections and interactions among the internal components of the intra-Party regulations system by employing systems thinking and systems methods, and can only guide practice comprehensively and precisely from an overall perspective. This also means that to achieve further improvement and optimization of the intra-Party regulations system, it is necessary to break the “fragmented” mindset, conduct a systematic analysis of the interactions among the internal constituent elements of the intra-Party regulations system and the dynamic changes in the external environment, reveal the deep logic of the construction and improvement of the intra-Party regulations system, and on this basis carry out holistic planning and reform and innovation, continuously raising the quality of the intra-Party regulations system.

新时代，以习近平同志为核心的党中央围绕党内法规制度体系建设作出一系列重要论述，强调要着眼于提升党内法规制度体系的系统性、整体性和协同性，加强顶层设计与统筹规划，为党内法规制度体系建设指明了方向、提供了遵循。根据马克思主义系统论，任何一个系统都要依赖系统内部各个单元之间广泛的相互作用、多种要素的协同聚集。同时，整个系统的内部和外部也都充满了各式各样的反馈和联系。系统优化的实现，即系统整体、结构、功能、环境的改进，依靠诸要素或各子系统之间的良性竞争和协同，以形成新的更高级的整体。党内法规制度体系作为一个由纵横交错的各子系统组成的具有内在逻辑关联的大系统，只有运用系统思维和系统方法，才能发现和分析党内法规制度体系内部构成的相互联系和作用，才能从整体上综合地、精准地指导实践。这也意味着，实现党内法规制度体系的进一步完善与优化，必须打破“碎片化”思维，对党内法规制度体系内部构成要素的相互作用和外部环境的动态变化进行系统分析，揭示党内法规制度体系构建与完善的深层逻辑，在此基础上进行整体性谋划和改革创新，不断提升党内法规制度体系的质量。

(About the authors: Meng Hui, Professor and Doctoral Supervisor at the School of Marxism, Lanzhou University, and Researcher at the Center for the Study of Socialism with Chinese Characteristics, Lanzhou University; Wang Yafei, Doctoral Candidate at the School of Marxism, Lanzhou University, and Lecturer at the School of Marxism, Qinghai Normal University)

（作者简介：蒙慧，兰州大学马克思主义学院教授，博士生导师，兰州大学中国特色社会主义理论研究中心研究员；王雅菲，兰州大学马克思主义学院博士研究生，青海师范大学马克思主义学院讲师）

Online editor: Tongxin

网络编辑：同心