On Further Deepening Reform Comprehensively and Adhering to the Principle of Taking Institutional Development as the Main Line

To further deepen reform comprehensively, it is necessary to implement the principle of “adhering to the principle of taking institutional development as the main line.” This is a new thesis put forward in the *Decision of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Path Modernization* (hereinafter referred to as the *Decision*), deliberated and adopted at the Third Plenary Session of the 20th Central Committee of the Communist Party of China. It reveals the scientific and dialectical relationship between further deepening reform comprehensively and adhering to the principle of taking institutional development as the main line, requiring that the comprehensive deepening of reform be more closely integrated and interpenetrated with the improvement and perfection of the institutional system, thus constituting the core concept of the *Decision*. To deeply discern and thoroughly comprehend the essence and substance of this core concept, one must proceed from a vertical historical dimension, elucidating the scientific nature of Marx and Engels’ expositions on implementing reform and institutional development in the historical process of socialism, as well as China’s correct orientation and innovative development. One must also unfold from a horizontal contemporary dimension, clearly recognizing the rich theoretical connotations and academic essentials of further deepening reform comprehensively and adhering to the principle of taking institutional development as the main line. On this basis, one should systematically grasp the role of further deepening reform comprehensively in corresponding to and responding to the principle of taking institutional development as the main line, and vigorously exert the leading and guiding function of adhering to the principle of taking institutional development as the main line for further deepening reform comprehensively.

进一步全面深化改革要贯彻“坚持以制度建设为主线”的原则，这是党的二十届三中全会审议通过的《中共中央关于进一步全面深化改革、推进中国式现代化的决定》（以下简称《决定》）作出的一个新论断。它揭示了进一步全面深化改革与坚持以制度建设为主线之间的科学的、辩证的关系，要求把改革的全面深化发展同制度体系的健全完善更加紧密地融会贯通起来，构成了《决定》的核心理念。深刻洞察和透彻领悟这一核心理念的精髓实质，必须从纵向的历史维度着眼，阐明马克思恩格斯对社会主义历史进程中关于实行改革和制度建设论述的科学性以及中国的正确取向与创新发展；也必须从横向的现实维度展开，清晰认识进一步全面深化改革与坚持以制度建设为主线具有的丰富理论内涵和学理要义；在此基础上，系统把握进一步全面深化改革对坚持以制度建设为主线的契合因应作用；着力发挥坚持以制度建设为主线对进一步全面深化改革的引领主导功能。

I. The Origins of Implementing Reform and Institutional Development in the Historical Process of Socialism and Their Innovative Development in Contemporary China

一、社会主义历史进程中实行改革和制度建设的由来及其在当代中国的创新发展

When founding the doctrine of scientific socialism, Marx and Engels already contemplated and clarified the issues of future socialist development. The *Communist Manifesto* elucidates that the proletariat must, under the leadership of the Communist Party, carry out a revolutionary movement, “to overthrow the bourgeoisie and establish the rule of the proletariat.” [1]1 Karl Marx and Friedrich Engels, *The Communist Manifesto* (1848), Chapter II. The *Manifesto* also elucidates that after seizing political power, the state exercising the dictatorship of the proletariat must place institutional development on the agenda, establishing public ownership of the means of production in the economic sphere and a democratic system in the political sphere, and adopting ten measures “as a means of revolutionizing the whole mode of production,” [2]2 Ibid., Chapter II, list of ten measures. along with corresponding systems for governance in social, educational, and cultural fields.

马克思、恩格斯在创立科学社会主义学说时，就思考并明确了未来社会主义发展的问题。《共产党宣言》阐明，无产阶级必须在共产党领导下开展革命运动，“推翻资产阶级的统治，由无产阶级夺取政权”。《宣言》还阐明，在夺取政权之后，实行无产阶级专政的国家必须把制度建设提到议事日程，建立经济方面的生产资料公有制、政治方面的民主制度，要采取10项措施，“作为变革全部生产方式的手段”，实施社会与教育文化等方面治理的相应制度。

In 1871, when the French proletariat seized political power and established the Paris Commune, the Commune immediately devoted itself to the institutional development of the socialist state. Marx and Engels provided in-depth expositions on and expressed heartfelt praise for the new types of military, economic, political, cultural, and educational systems created by the Paris Commune. Marx praised the military system of the National Guard established by the Commune, stating that the Commune’s “National Guard, which was composed of workers,” “became the institution.” [3]3 Karl Marx, *The Civil War in France* (1871), Section III. He praised the system of public ownership of the means of production established by the Commune, which “handed over all closed workshops or factories—whether the capitalists had fled or voluntarily stopped work—to the workers’ associations.” [4]4 Ibid. He praised the Commune’s creation of a new type of state institutional principle and organizational structure of “combining legislative and executive powers,” [5]5 “Combining legislative and executive powers” (议行合一) refers to the Paris Commune’s principle that the same body both enacts and executes laws, rejecting the separation of powers. pointing out that “the Commune was a working, not a parliamentary, body, executive and legislative at the same time.” [6]6 Karl Marx, *The Civil War in France* (1871), Section III. Engels praised the systems of democratic election, democratic supervision, and recall and removal established by the Commune, stating that the Commune “turned all positions—administrative, judicial, and educational—into positions filled by election by universal suffrage, with the right of the electors to recall the holder at any time.” [7]7 Friedrich Engels, Introduction to Karl Marx’s *The Civil War in France* (1891). Marx and Engels also commended the Commune’s cultural and educational system, which established “scientific delegations” and “educational committees,” implemented scientific, cultural, and educational reforms, focused on eradicating the remnants of the old society and old systems, and introduced a series of entirely new institutional measures for scientific, cultural, and education aimed at cultivating a new generation of people. There is no doubt that the socialist institutional development of the Paris Commune achieved remarkable results.

1871年，当法国无产阶级夺取政权、成立巴黎公社后，公社即致力于社会主义国家的制度建设。马克思和恩格斯对巴黎公社创制的新型的军事、经济、政治、文教等制度，作出深入的论述，发出由衷的赞许。马克思称赞公社建立的国民自卫军军事制度，说公社“由工人组成的国民自卫军”“成为制度”；称赞公社建立的生产资料公有化制度，“把一切已关闭的作坊或工厂——不论是资本家逃跑了还是自动停了工——都交给工人协作社”；称赞公社创立了“议行合一”的新型的国家机构设置原则和组织结构形式，指出“公社是一个实干的而不是议会式的机构，它既是行政机关，同时也是立法机关”。恩格斯称赞公社建立的民主选举制度、民主监督和罢免撤换制度，说公社“把行政、司法和国民教育方面的一切职位交给由普选选出的人担任，而且规定选举者可以随时撤换被选举者。”马克思、恩格斯还赞扬了公社的文化教育制度，成立“科学代表团”和“教育委员会”，实行科学文化和教育改革，着力于清除旧社会与旧制度遗留的痕迹，出台了实行一系列旨在培养一代新人的科学文化教育全新的制度措施。毫无疑义，巴黎公社的社会主义制度建设取得了令人瞩目的成果。

However, the Paris Commune existed for only 72 days; it could not answer the question of which systems a socialist state should systematically establish. Regarding this, Marx and Engels always adhered to an objective and dialectical perspective. Marx said: “What changes will the state system undergo in communist society? In other words, what social functions will remain there that are analogous to the present functions of the state? This question can only be answered scientifically.” [8]8 Karl Marx, *Critique of the Gotha Programme* (1875), Part IV. Marx and Engels never wished to engage in any imaginings or speculations divorced from reality. On the contrary, Engels frankly stated: “The party to which I belong has no ready-made, once-and-for-all solutions. Our views on the features distinguishing the future non-capitalist society from modern society are exact conclusions derived from historical facts and developmental processes; without being elucidated in connection with these facts and processes, they have no theoretical or practical value.” [9]9 Friedrich Engels, Letter to Otto von Boenigk (21 August 1890).

但是，巴黎公社仅存在72天，它不可能回答社会主义国家要系统建立哪些制度的问题。对此，马克思、恩格斯始终秉持客观、辩证的观点。马克思说：“在共产主义社会中国家制度会发生怎样的变化呢？换句话说，那时有哪些同现在的国家职能相类似的社会职能保留下来呢？这个问题只能科学地回答。”马克思、恩格斯从来不愿作出任何脱离现实的想象和猜测，相反，恩格斯坦率地说：“我所在的党并没有任何一劳永逸的现成方案。我们对未来非资本主义社会区别于现代社会的特征的看法，是从历史事实和发展过程中得出的确切结论；不结合这些事实和过程去加以阐明，就没有任何理论价值和实际价值。”

Marx and Engels believed that socialism should be viewed as a developmental process from immaturity and imperfection to maturity and perfection, and that long-term planning for transformation and reform should be undertaken regarding issues of social development and institutional development. When discussing the developmental trend of the Paris Commune, Marx made the following comment: the working class knows that the new society will not be perfected in a short time; “to achieve their own emancipation, and along with it that higher form to which present society is irresistibly tending by its own economic agencies, they will have to pass through long struggles, through a series of historical processes, transforming circumstances and men.” [10]10 Karl Marx, *The Civil War in France* (1871), Section III. The transformation of society is long-term, and institutional development is also long-term. Why is this so? Engels stated that “the ultimate causes of all social changes and political revolutions” lie in “changes in the mode of production and exchange.” [11]11 Friedrich Engels, *Anti-Dühring* (1878), Part III, Chapter II. As long as such changes exist, transformation will not cease. In response to the erroneous view that socialist society is static and unchanging, he emphatically stressed: “What I call ‘socialist society’ is not something fixed and immutable, but, like all other social systems, should be regarded as a society that is constantly changing and reforming.” [12]12 Friedrich Engels, Letter to Otto von Boenigk (21 August 1890). He further pointed out: “We are evolutionists; we have no intention of imposing any final laws on mankind. Preconceived views on the detailed organization of future society? You will not find even a shadow of them with us. When we have transferred the means of production into the hands of society as a whole, we will be satisfied.” [13]13 Friedrich Engels, Letter to Eduard Pease (27 January 1886). The reason Engels said this is that, apart from basic systems such as public ownership of the means of production having been determined, there were no preset plans for the construction of other systems in socialist society; they must be supplemented, added to, and perfected through reform in the practice of socialism.

马克思、恩格斯认为，应该把社会主义看成是从不成熟、不完善到成熟、完善的发展过程，对于社会发展和制度建设的问题，应该做好长期改造和改革的谋划。马克思在谈到巴黎公社的发展趋势时曾作出这样的评述，工人阶级知道新社会不是短时间内就完善的，“为了谋求自己的解放，并同时创造出现代社会在本身经济因素作用下不可遏止地向其趋归的那种更高形式，他们必须经过长期的斗争，必须经过一系列将把环境和人都加以改造的历史过程。”对社会的改造是长期的，制度建设也是长期的。为什么是这样呢？恩格斯说出了“社会变迁和政治变革的终极原因”，就在于“生产方式和交换方式的变更”。只要存在着这样的变更，变革就不会停止。他针对有人把社会主义社会看成是静止的、不变的错误观点，旗帜鲜明地强调：“所谓‘社会主义社会’不是一种一成不变的东西，而应当和任何其他社会制度一样，把它看成是经常变化和改革的社会。”他还进一步指出：“我们是不断发展论者，我们不打算把什么最终规律强加给人类。关于未来社会组织方面的详细情况的预定看法吗？您在我们这里连它们的影子也找不到。当我们把生产资料转交到整个社会的手里时，我们就会心满意足了。”恩格斯之所以这样说，就是因为除了像生产资料公有制这样一些基本制度已经确定之外，社会主义社会的其他制度建设则没有什么预设的方案，它必须在社会主义实践中，通过改革加以补充、增添和完善。

From the above overview, it is not difficult to see that Marx and Engels revealed that the socialist state established through proletarian revolution will undergo a process of continuous development and constant reform, and that implementing reform and institutional development should be regarded as basic, routine work deployments, making them the main tasks and endogenous driving forces of socialist development. This fundamental principle, elucidated and confirmed by Marx and Engels, has become the ideological guide and correct developmental orientation for China’s revolution, construction, and reform. On the journey of China’s socialist advance, the Chinese Communists, with Mao Zedong, Deng Xiaoping, Jiang Zemin, Hu Jintao, and Xi Jinping as their main representatives, have successively made significant and innovative contributions to continuous reform and institutional development.

从以上概述中不难看到，马克思、恩格斯揭示了通过无产阶级革命建立的社会主义国家，将经历不断发展和经常改革的过程，应把实行改革和制度建设作为基本的、常态化的工作部署，使其成为社会主义发展的主要任务和内生动力。马克思、恩格斯阐释和确认的这一基本原理，成为中国革命、建设、改革的思想指南和正确的发展取向。在中国社会主义的前进征程中，以毛泽东、邓小平、江泽民、胡锦涛、习近平为主要代表的中国共产党人，相继为持续的改革和制度建设做出重大的、创新性的发展。

In 1949, the People’s Republic of China established the state system of the people’s democratic dictatorship. In 1954, the First Session of the First National People’s Congress was convened, and the Constitution of the People’s Republic of China was enacted, making the system of people’s congresses the form of the state’s political system and laying the foundation of China’s political system. In 1956, China initially established a series of socialist economic, political and cultural institutions. Shortly after the establishment of the socialist system, Mao Zedong pointed out: “The social system still needs to be reformed”; the targets of reform were the “incorrect” relations of production and the superstructure that “protected” them. Subsequently he further pointed out: “The new social system has only just been established and still needs a period of consolidation. It cannot be thought that once the new system is established it is completely consolidated; that is impossible. It needs to be gradually consolidated,” and he called on Party members and non-Party persons to be “people determined to reform,” “to struggle fearlessly for the reform and construction of our society.” Mao Zedong developed the reform thought of Marx and Engels, clearly pointing out that reform is based on the principle of the movement of the fundamental social contradiction between productive forces and relations of production, and between economic base and superstructure, thereby establishing the general direction and general line of thinking for reform in China’s socialist institutional development. However, regrettably, during the “Cultural Revolution,”[14]14 The Cultural Revolution (1966–1976) was a mass political movement launched by Mao Zedong to purge capitalist and traditional elements from Chinese society, which led to widespread social chaos, institutional breakdown, and violent factional struggles. institutions were negated as a set of revisionist “controls, restraints and pressures.” Because of the prevalence of the theories of “institutions are useless” and “institutions are shackles,” social anomie resulted, and people generally lacked any consciousness of institutions.

1949年，中华人民共和国建立了人民民主专政的国体制度。1954年，召开了第一届全国人民代表大会第一次会议，制定了《中华人民共和国宪法》，把人民代表大会制度作为国家的政体形式，奠定了我国政治制度的基础。1956年，我国初步建立了一系列的社会主义经济、政治、文化制度。在社会主义制度建立后不久，毛泽东就指出：“社会制度还要进行改革”，改革的对象是“不对头”的生产关系和“保护”它的上层建筑。随后他又进一步指出：“新的社会制度还刚刚建立，还需要有一个巩固的时间。不能认为新制度一旦建立起来就完全巩固了，那是不可能的。需要逐步地巩固”，并要求共产党员和党外人士做“立志改革的人”，“为改革和建设我们的社会而无所畏惧的奋斗”。毛泽东发展了马克思、恩格斯的改革思想，明确指出改革是基于生产力与生产关系、经济基础与上层建筑之间的社会基本矛盾运动的原理，由此为我国的社会主义制度建设，确立了改革的总方向、总思路。然而，遗憾的是，在“文化大革命”期间，制度被当作修正主义“管、卡、压”的一套东西而予以否定，由于“制度无用”“制度束缚”论的流行，造成社会失范，人们普遍没有制度意识。

In 1978, Deng Xiaoping initiated the process of reform and opening up and socialist modernization. Deng Xiaoping pointed out that the nature of reform is a “revolution,” “China’s second revolution.” Deng Xiaoping focused reform on institutional reform and institutional improvement. He stressed that reform is not a piecemeal repair of the original system, but rather the establishment of a new system with Chinese characteristics, full of vitality and dynamism. He said: “Reform is a comprehensive reform, including economic system reform, political system reform and corresponding reforms in other fields.” Regarding the goal of institutional reform and development, Deng Xiaoping proposed in 1992 that it would take 30 years “to form a more mature and more定型[15]15 The Chinese term 定型 (dìngxíng) means “fixed in form” or “stabilized,” implying that institutions should become mature and settled rather than subject to constant change. set of institutions in all respects.” After Deng Xiaoping inaugurated a new phase of comprehensive reform and the development of the socialist system with Chinese characteristics in the new period, Jiang Zemin and Hu Jintao continued to write new chapters with strenuous effort. From the 14th National Congress of the CPC in 1992 to the 17th National Congress, the CPC successively put forward new formulations and new strategies such as “accelerating reform,” “deepening reform,” “further reform,” and “strengthening institutional development,” “emphasizing institutional development and innovation,” “paying more attention to institutional development,” causing the tide of reform and institutional development to surge continuously.

1978年，邓小平启动了改革开放和社会主义现代化建设的进程。邓小平指出，改革的性质是一场“革命”，是“中国的第二次革命”。邓小平把改革聚焦于制度的改革和制度的完善。他强调，改革不是对原有的体制作细枝末节的修补，而是要建立起具有中国特色、充满生机活力的新体制。他说：“改革是全面的改革，包括经济体制改革、政治体制改革和相应的其他各个领域的改革。”对于制度改革和建设的目标，邓小平在1992年提出，要用30年的时间“在各方面形成一整套更加成熟、更加定型的制度。”在新时期邓小平开创了全面改革和中国特色社会主义制度建设新局面后，江泽民、胡锦涛接续奋力书写新的篇章。从1992年党的十四大到十七大，中国共产党先后提出了“加快改革”“深化改革”“进一步改革”和“加强制度建设”“注重制度建设和创新”“更加注重制度建设”等新提法、新方略，使改革和制度建设的浪潮持续高涨。

The convening of the 18th National Congress of the CPC in 2012 marked the entry of socialism with Chinese characteristics into a New Era. Under the requirements set forth in the report of the 18th National Congress — “the general goal of comprehensively deepening reform and opening up” and “institutional development must be placed in a prominent position” — China’s reform enterprise and institutional development entered the fast lane. In November 2013, the Third Plenary Session of the 18th CPC Central Committee was convened, opening up the comprehensive deepening of reform in the New Era. The Party Central Committee with Comrade Xi Jinping at its core innovatively expounded that “the general goal of comprehensively deepening reform is to improve and develop the system of socialism with Chinese characteristics and to advance the modernization of the national governance system and governance capacity.” In July 2024, the Third Plenary Session of the 20th CPC Central Committee further proposed “further deepening reform comprehensively” and “adhering to the main line of institutional development,” expanding new and broader space for reform and institutional development. In the strategic deployment from “comprehensively deepening reform” to “further deepening reform comprehensively,” Xi Jinping has attached great importance to the issue of taking institutional development as the main line. In his speeches at the 11th, 12th and 17th meetings of the Central Commission for Comprehensively Deepening Reform,[16]16 The Central Commission for Comprehensively Deepening Reform (中央全面深化改革委员会) is a high-level Party body established in 2018 to oversee, coordinate, and advance the implementation of major reform initiatives across all sectors. he stressed: “Highlight this main line of institutional development and continue to deepen reform comprehensively”; “We must adhere to the goal orientation, promote systematic integration, coordination and efficiency of reform, and firmly grasp the main line of institutional development”; “We have always highlighted this main line of institutional development and continuously improved the institutional framework.” In the New Era of socialism with Chinese characteristics, Xi Jinping has integrated reform and institutional development more closely.

2012年党的十八大召开，标志着中国特色社会主义进入新时代。在党的十八大报告提出“全面深化改革开放的总目标”和“要把制度建设摆在突出位置”的要求下，我国的改革事业和制度建设驶入了快车道。2013年11月，党的十八届三中全会召开，开启了新时代的全面深化改革，以习近平同志为核心的党中央创新性地阐述了“全面深化改革的总目标是完善和发展中国特色社会主义制度，推进国家治理体系和治理能力现代化。”2024年7月，党的二十届三中全会又提出“进一步全面深化改革”和“坚持以制度建设为主线”，为改革和制度建设拓展了新的、更为广阔的空间。在从“全面深化改革”到“进一步全面深化改革”的战略部署中，习近平高度重视以制度建设为主线的问题。在中央深改委第十一次、十二次和十七次会议的讲话中，他强调：“突出制度建设这条主线，继续全面深化改革”，“要坚持目标导向，推进改革系统集成、协同高效，牢牢抓住制度建设这条主线”，“我们始终突出制度建设这条主线，不断健全制度框架”。在中国特色社会主义新时代，习近平把改革与制度建设更加紧密地统合起来了。

II. The Correspondence and Response Between Further Deepening Reform Comprehensively and Adhering to the Main Line of Institutional Development

二、进一步全面深化改革与坚持以制度建设为主线的契合因应

In its “Decision,”[17]17 The “Decision” refers to the official document adopted by the Third Plenary Session of the 20th CPC Central Committee in July 2024, titled “Decision of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Path Modernization.” the Third Plenary Session of the 20th CPC Central Committee made a high-level, systematic and complete exposition of “further deepening reform comprehensively,” endowing it with rich theoretical connotations. In the 15 parts and 60 articles of the full text of the “Decision,” the term “reform” appears 142 times, a high-frequency word covering almost every paragraph. Since the main keynote running through the entire “Decision” is further deepening reform comprehensively, in addition to those formulations that explicitly use “further deepening reform comprehensively,” other occurrences of “reform,” including related formulations such as “deepening reform,” “system reform,” and “mechanism reform,” also actually imply the profound meaning of “further deepening reform comprehensively.” Analyzing the formulations concerning reform in the text of the “Decision” and the logical layers of its exposition, “further deepening reform comprehensively” contains six important connotations:

党的二十届三中全会在《决定》对“进一步全面深化改革”作出了高屋建瓴的、系统完整的论述，赋予其丰富的理论内涵。在《决定》全文的15个部分、60条中，先后提了142次“改革”，是一个几乎涵盖了每一段落的高频词。由于贯穿《决定》全篇的主基调是进一步全面深化改革，因而除了那些明确使用“进一步全面深化改革”的提法外，其他所出现的“改革”，包括“深化改革”“体制改革”“机制改革”等相关提法，实际上也都涉含了“进一步全面深化改革”的深意。解析《决定》文本关于改革的提法以及论述的层理逻辑，“进一步全面深化改革”包含六个方面重要内涵：

First, the historical juncture at which further deepening reform comprehensively is situated. Looking back at history, the “Decision” points out that the Third Plenary Session of the 11th CPC Central Committee convened in 1978 was epoch-making, opening up the new period of reform and opening up and socialist modernization. The Third Plenary Session of the 18th CPC Central Committee convened in 2013 was also epoch-making, opening up a new journey of comprehensively deepening reform in the New Era, promoting reform through systematic overall design, and inaugurating an entirely new phase of China’s reform and opening up. The Third Plenary Session of the 20th CPC Central Committee convened in 2024, compared with the two previous plenary sessions, is equally epoch-making, because it faces a new stage of historical development, opening up a critical period for comprehensively advancing the building of a strong country and the great rejuvenation of the Chinese nation through Chinese-path modernization, and more “consciously placing reform in a more prominent position,” assisting in advancing the development of Chinese-path modernization.

一是进一步全面深化改革所处的历史方位。回顾历史，《决定》指出，1978年召开的党的十一届三中全会是划时代的，开启了改革开放和社会主义现代化建设新时期。2013年召开的党的十八届三中全会也是划时代的，开启了新时代全面深化改革、系统整体设计推进改革新征程，开创了我国改革开放全新局面。2024年召开的党的二十届三中全会，与前面的两次三中全会相比，同样是具有划时代意义的，因为它面临着历史发展的新阶段，开启了以中国式现代化全面推进强国建设、民族复兴伟业的关键时期，更加“自觉地把改革摆在更加突出的位置”，助力推进中国式现代化的发展。

Second, the demands of the times to which further deepening reform comprehensively responds. The “Decision” highly affirms that China’s reform has achieved unparalleled results. However, the “Decision” emphatically points out: “Reform and opening up is always ongoing; it is never complete.” Reform cannot end; reform must continue. This is because, proceeding from the characteristics of the present era, based on the development of the socialist system with Chinese characteristics and national governance, implementing the new development concept and better adapting to changes in China’s principal social contradiction, adhering to a people-centered approach and satisfying the people’s aspirations, responding to major risks and challenges and ensuring the steady and long-term progress of the Party and state’s undertakings, promoting the building of a community with a shared future for mankind and gaining strategic initiative, and deeply advancing the great new project of Party building in the New Era and building a stronger and more powerful Marxist political party, the “Decision” summarizes and puts forward the “six imperatives.”[18]18 The “six imperatives” (六个必然要求) are six necessary requirements for further deepening reform comprehensively, as outlined in the “Decision,” covering areas such as institutional development, development concepts, principal contradictions, people-centeredness, risk response, and Party building. These “six imperatives” converge on one point: the times urgently call for further deepening reform comprehensively, constituting the fundamental requirement to which further deepening reform comprehensively responds.

二是进一步全面深化改革顺应的时代要求。《决定》高度肯定我国的改革取得了无与伦比的成效。但是，《决定》强调指出：“改革开放只有进行时，没有完成时。”改革不能结束，改革务必继续。这是因为，从当今时代的特点出发，基于中国特色社会主义制度与国家治理的发展、贯彻新发展理念和更好适应我国社会主要矛盾的变化、坚持以人民为中心和满足人民的愿望、应对重大风险挑战和推动党和国家事业行稳致远、推动构建人类命运共同体和赢得战略主动、深入推进新时代党的建设新的伟大工程和建设更加坚强有力的马克思主义政党等方面，《决定》概括提出了“六个必然要求”。这“六个必然要求”集中到一点就是，时代对进一步全面深化改革发出迫切呼唤，构成了进一步全面深化改革顺应时代提出的根本要求。

Third, the guiding ideology established for further deepening reform comprehensively. First, as the guiding ideology of the CPC, it is also the guiding ideology for further deepening reform comprehensively. Second, the guiding ideology for further deepening reform comprehensively also lies in the need to focus on studying and applying well Xi Jinping’s series of new ideas, new viewpoints and new conclusions concerning comprehensively deepening reform. Third, the guiding ideology established for further deepening reform comprehensively also includes the major strategic decisions formed since the 18th National Congress of the CPC, such as “coordinated advancement of the Five-Sphere Integrated Plan,” “coordinated advancement of the Four-Pronged Comprehensive Strategy,” “coordinating the two overall situations of domestic and international affairs,” as well as new concepts such as the “new development concept,” “taking economic system reform as the牵引[19]19 The Chinese term 牵引 (qiānyǐn) literally means “to pull” or “to draw,” and here it means “to serve as the driving force” or “to lead,” indicating that economic system reform is the primary lever that pulls other reforms forward.,” “paying more attention to systemic integration, paying more attention to highlighting key points, paying more attention to reform effectiveness.” These guiding ideologies established for further deepening reform comprehensively play a guiding role for reform from the macro level, through the meso level, down to the micro level.

三是进一步全面深化改革确立的指导思想。首先，作为中国共产党的指导思想，也是进一步全面深化改革的指导思想。其次，进一步全面深化改革的指导思想还在于，要重点学好、运用好习近平总书记关于全面深化改革的一系列新思想、新观点、新论断。第三，进一步全面深化改革确立的指导思想还包括党的十八大以来先后形成的“统筹推进‘五位一体’总体布局”“协调推进‘四个全面’战略布局”“统筹国内国际两个大局”重大战略决策以及提出的“新发展理念”“以经济体制改革为牵引”“更加注重系统集成，更加注重突出重点，更加注重改革实效”等新观念。进一步全面深化改革确立的这些指导思想，对改革发挥了从宏观到中观再到微观的指导作用。

Fourth, the overall goal anchored by further deepening reform comprehensively. The “Decision” proposes: “By 2035, a high-level socialist market economy system will be fully established, the system of socialism with Chinese characteristics will be more mature and well-defined, the modernization of the national governance system and governance capacity will be basically achieved, and socialist modernization will be basically realized.” To this end, “seven focal points” are needed, namely: focusing on reforms in seven major areas: the market economy, democratic politics, a culturally strong country, social welfare, ecological civilization, national security, and Party building.

四是进一步全面深化改革锚定的总目标。《决定》提出：“到二〇三五年，全面建成高水平社会主义市场经济体制，中国特色社会主义制度更加完善，基本实现国家治理体系和治理能力现代化，基本实现社会主义现代化”。为此，需要“七个聚焦”，即：聚焦于市场经济、民主政治、文化强国、社会民生、生态文明、国家安全、党的建设等七大领域的改革。

Fifth, the principles to be implemented in further deepening reform comprehensively. The “Decision” proposes that further deepening reform comprehensively should implement “six major principles,” namely: upholding the Party’s overall leadership, adhering to a people-centered approach, upholding fundamental principles and breaking new ground, adhering to the main line of institutional development, adhering to law-based governance in all respects, and adhering to a systems perspective. These “six major principles” are the rules, standards, and fundamental guidelines to be followed in planning, handling affairs, and solving problems in further deepening reform comprehensively.

五是进一步全面深化改革贯彻的原则。《决定》提出，进一步全面深化改革要贯彻“六大原则”，即：坚持党的全面领导，坚持以人民为中心，坚持守正创新，坚持以制度建设为主线，坚持全面依法治国，坚持系统观念。这“六大原则”，是进一步全面深化改革进行谋划、办事、处理问题所依据的法则、标准和根本的遵循。

Sixth, the tasks deployed for further deepening reform comprehensively. From Part Two to Part Fifteen, the “Decision” mainly proposes numerous tasks that need to be implemented and completed for further deepening reform comprehensively, covering aspects such as the economy, politics, culture, society, ecological civilization, national security, national defense and the military, and Party building.

六是进一步全面深化改革部署的任务。《决定》从第二至第十五部分，主要从经济、政治、文化、社会、生态文明、国家安全、国防和军队、党的建设等方面，提出了进一步全面深化改革需要落实和完成的诸多任务。

Interpreting the theoretical connotations of the six aspects contained in further deepening reform comprehensively, it can be said that each aspect is closely interwoven and integrated with institutional development. From the perspective of its historical positioning, the “Decision” fully affirms that the greatest historical achievement since the implementation of reform is that “the basic institutional framework in various fields has been basically established, and many fields have achieved historic changes, systematic reshaping, and overall reconstruction” and that “various systems have become more mature and well-defined, achieving notable results.” From the perspective of the requirements of the times it responds to, the most important of the “six imperatives” [n] is the necessity to “uphold and improve the system of socialism with Chinese characteristics and advance the modernization of the national governance system and governance capacity.” From the perspective of the guiding ideology it establishes, it clearly proposes to “provide a strong impetus and institutional guarantee for Chinese-path modernization.” From the perspective of the overall goal it anchors, the “seven focal points” are all about institutional development: to uphold and improve the basic socialist economic system, to make the system under which the people are the masters of the country more robust, to uphold the fundamental system of Marxism’s guiding position in the ideological domain, to improve the income distribution and employment systems and strengthen the social security system, to improve the ecological environment governance system, to improve the national security system and strengthen the integrated national strategic system, and to improve the system for comprehensive and strict governance of the Party. From the perspective of the principles it implements, it clearly proposes adhering to the main line of institutional development. From the perspective of the tasks it deploys, the plans and arrangements for reform made in the “Decision” are also about the in-depth development of institutional development. In essence, to further deepen reform comprehensively, it is necessary to adhere to the main line of institutional development; and to adhere to the main line of institutional development, it is necessary and relies on further deepening reform comprehensively. The intrinsic relationship between further deepening reform comprehensively and adhering to the main line of institutional development highlights the character and pattern of their mutual reinforcement, close interdependence, high compatibility, and integration into one entity.

对进一步全面深化改革包蕴的六个方面理论内涵进行释读，可以说每一个方面都与制度建设丝丝入扣、契合粘连。从它所处的历史方位看，《决定》充分肯定了实行改革以来取得的最大的历史功绩是，“各领域基础性制度框架基本建立，许多领域实现历史性变革、系统性重塑、整体性重构”“各方面制度更加成熟更加定型取得明显成效”；从它顺应的时代要求看，“六个必然要求”中最重要的是必须“坚持和完善中国特色社会主义制度、推进国家治理体系和治理能力现代化”；从它确立的指导思想看，明确提出了要“为中国式现代化提供强大动力和制度保障”；从它锚定的总目标看，“七个聚焦”的全是制度建设，是要坚持和完善社会主义基本经济制度，推动人民当家作主制度更加健全，坚持马克思主义在意识形态领域指导地位的根本制度，完善收入分配和就业制度、健全社会保障体系，健全生态环境治理体系，健全国家安全体系、强化一体化国家战略体系，健全全面从严治党体系；从它贯彻的原则看，明确提出了坚持以制度建设为主线；从它部署的任务看，《决定》对改革作出的规划安排，也都是关于制度建设的深入发展。质言之，要进一步全面深化改革，就要坚持以制度建设为主线；而要坚持以制度建设为主线，则必然需要和依靠进一步全面深化改革。进一步全面深化改革与坚持以制度建设为主线的内在关系，凸现了二者相辅相成、紧密依存，高度契合、融为一体的成色和样态。

It is evident that, in response to the call and demand for taking institutional development as the main line, further deepening reform comprehensively must firmly grasp this key link of institutional development, coordinate and cooperate with institutional development, and run it through the entire process and all aspects of reform, covering all fields, systems, and mechanisms of reform, and implementing it in all links, procedures, and steps of reform.

显而易见，因应着以制度建设为主线的呼唤和需求，进一步全面深化改革必须紧紧抓住制度建设这个纲，协调和配合制度建设，将其贯穿于改革的全过程、全方位，覆盖于改革的各领域、各体制机制，落实于改革的各环节、各程序步骤。

First, further deepening reform comprehensively must run institutional development through the entire process and all aspects. China’s reforms invariably begin with a problem-oriented awareness. Starting from solving problems and in the process of solving problems, there is continuous breaking and establishing of institutions, institutional innovation, and enrichment and improvement of the national governance system. In advancing the entire process and all aspects of reform, it is necessary not only to take concrete and effective measures to solve problems but also to refine and transform governance measures, effects, and experiences into complete institutional provisions that can be implemented over the long term. Further deepening reform comprehensively requires organizations at all levels and Party and government cadres, on the one hand, to review and sort out the completion status of various institutional reform tasks already deployed, and on the other hand, to promptly incorporate the new institutional reform tasks and important measures deployed by the Third Plenary Session of the 20th Central Committee of the CPC [n] into the work agenda, and to promptly conduct research and deployment on institutions urgently needed for national governance explicitly identified by the Party Central Committee, as well as institutions necessary to meet the people’s new expectations for a better life, throughout the entire process and all aspects. This will achieve an organic connection between systematic reform and institutional development, and promote the splendid fruits of reform yielding abundant results in institutional development.

首先，进一步全面深化改革要将制度建设贯穿于全过程、全方位。我国的改革无不是从问题意识开始的，从解决问题出发和在解决问题的过程中，不断进行制度的破与立和制度的创新以及丰富、完善国家治理体系。在推进改革的全过程、全方位中，不但要出实招、硬招解决问题，而且要把治理举措、治理效果和治理经验，提炼转化为可以施之长远的完整制度规定。进一步全面深化改革，要求各级组织和党政干部，一方面要排查梳理已经部署的各项制度改革的完成情况，一方面要把党的二十届三中全会部署的新的制度改革任务和重要举措及时纳入工作议程，全过程、全方位地抓紧就党中央明确的国家治理急需的制度以及满足人民对美好生活新期待必备的制度进行研究和部署，实现系统改革与制度建设的有机衔接、促进改革的灿烂之花结出制度建设的丰硕成果。

Second, further deepening reform comprehensively must cover institutional development across all fields, systems, and mechanisms. From the deployment of the “Decision,” further deepening reform comprehensively involves institutional development in seven major fields: the economy, politics, culture, society, ecological civilization, national defense and the military, and Party building. In the reform and institutional development of these seven fields, the economy is identified as the focus, with economic system reform as the driving force to lead and promote the development of reform and institutional development in other fields. The “Decision” not only discusses that reform must cover institutional development across all fields but also requires delving into the various systems and mechanisms within the seven fields. Taking the reform and improvement of systems and mechanisms in the economic field as an example, the “Decision” points out that these mainly include: building a high-level socialist market economy system and mechanism, deepening the reform of state-owned assets and state-owned enterprises and improving the management and supervision system and mechanism, improving the long-term mechanism for private enterprises to participate in the construction of major national projects, improving the circulation system, improving the mechanism for government investment to effectively drive social investment, improving the system and mechanism for promoting high-quality economic development, improving the system and mechanism for developing new quality productive forces according to local conditions, improving the system and mechanism for enhancing the leading position of advantageous industries, accelerating the construction of a system and mechanism for promoting the development of the digital economy, and improving the system and mechanism for developing the service industry, among others. The institutional reform and construction of various systems and mechanisms in the economic field are so comprehensive and detailed, and the same applies to institutional reform and construction in other fields.

其次，进一步全面深化改革要将制度建设覆盖于各领域、各体制机制。从《决定》的部署看，进一步全面深化改革涉及制度建设的领域，囊括了经济、政治、文化、社会、生态文明、国防军队、党的建设等七大领域。在七大领域的改革和制度建设中，确定了经济是重点，要以经济体制改革为牵引，带动和推动其他领域的改革和制度建设的发展。《决定》不仅论述了改革要将制度建设覆盖于各领域，并且要求深入到了七大领域内的各个体制机制。以经济领域的体制机制改革和完善为例，《决定》指出，它们主要是：构建高水平社会主义市场经济体制机制，深化国资国企改革、完善管理监督体制机制，完善民营企业参与国家重大项目建设长效机制，完善流通体制，健全政府投资有效带动社会投资体制机制，健全推动经济高质量发展体制机制，健全因地制宜发展新质生产力体制机制，健全提升优势产业领先地位体制机制，加快构建促进数字经济发展体制机制，完善发展服务业体制机制等等。经济领域各个体制机制的制度改革和建设是如此周全翔实，其他领域的制度改革和建设也是如此。

Finally, further deepening reform comprehensively must implement institutional development in all links, procedures, and steps. Institutional development in reform includes the establishment of institutions with a rigorous legal basis, the implementation and execution of institutions with strict legal measures, and the implementation of institutions with tight legal supervision. Promoting further deepening reform comprehensively requires establishing institutional awareness, handling affairs according to institutions, and advancing reform using legal thinking and methods. In the practice of further deepening reform comprehensively, organizations at all levels and Party and government cadres should focus on aligning and benchmarking with the fundamental systems, basic systems, and important systems of socialism with Chinese characteristics, clarifying work ideas and entry points. For each link, procedure, and step of reform, there should be institutional provisions, forming institutional arrangements. Regarding what problems reform solves, what institutions need to be formed, when institutions will be introduced, and what effects and functions institutional development will have, everything must be carefully planned and clearly understood, with implementation and advancement closely linked step by step, and the target direction consistently maintained.

最后，进一步全面深化改革要将制度建设落实于各环节、各程序步骤。改革中的制度建设，包括制度的建立要有严谨的法治依据，制度的贯彻执行要有严格的法治措施，制度的落实要有严密的法治监督。推动进一步全面深化改革要求树立制度意识，按制度办事，运用法治的思维和方式推进改革。各级组织和党政干部在进一步全面深化改革实践中，要注重同中国特色社会主义的根本制度、基本制度、重要制度对标对表，理清工作思路和工作抓手，对改革的各环节、各程序步骤，要有制度的规定，形成制度性的安排；对改革解决什么问题、需要形成什么制度、制度什么时候推出、制度建设有什么作用效果，都要做到筹措笃定心中有数，实施推进环环相扣，目标指向一以贯之。

III. The Leading and Guiding Role of Adhering to the Main Line of Institutional Development for Further Deepening Reform Comprehensively

三、坚持以制度建设为主线对进一步全面深化改革的引领主导

The principle of “adhering to the main line of institutional development” established by the “Decision” is a key measure proposed to promote the development of “further deepening reform comprehensively.” In this important formulation of “adhering to the main line of institutional development,” there are three key terms: “adhering to,” “institutional development,” and “main line.” The rich implications contained in these three key terms fully embody the layered dimensions of the principle of “adhering to the main line of institutional development.”

《决定》确立的“坚持以制度建设为主线”的原则，是为推动“进一步全面深化改革”发展提出的一个关键举措。在“坚持以制度建设为主线”这一重要提法中，有三个关键词：“坚持”“制度建设”“主线”。这三个关键词所富含的意蕴，充分体现了“坚持以制度建设为主线”原则的层理面向。

First, “adhering to.” Since China entered the period of reform and opening up and socialist modernization in 1978, it has continuously intensified the efforts of institutional development, fundamentally changing the situation of a severe lack of laws, regulations, and institutions. Relevant statistical data show that by the end of August 2009, the laws formulated by the National People’s Congress and its Standing Committee, the administrative regulations formulated by the State Council, the local regulations formulated by local people’s congresses and their standing committees, the autonomous regulations and separate regulations formulated by the people’s congresses of ethnic autonomous areas, the regulations formulated by the five special economic zones established since reform and opening up, and the rules formulated by State Council departments and local governments with legislative power totaled approximately 30,000 items. The formulation of these legal institutions met the needs of the development of China’s socialist construction. After entering the New Era of socialism with Chinese characteristics, China has continued to carry out effective legislative and institutional development of relevant laws and regulations. Precisely in view of the fact that China’s national legal institutional development has, on the whole, completed the reform tasks set by the Third Plenary Session of the 11th Central Committee [22]22 The Third Plenary Session of the 11th Central Committee of the Communist Party of China, held in December 1978, marked the beginning of the reform and opening-up era. and the Third Plenary Session of the 18th Central Committee [23]23 The Third Plenary Session of the 18th Central Committee, held in November 2013, adopted the “Decision on Major Issues Concerning Comprehensively Deepening Reforms,” setting the framework for a new round of reforms., the “Decision” [24]24 The “Decision” refers to the “Decision of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively to Advance Chinese-Path Modernization,” adopted at the Third Plenary Session of the 20th Central Committee in July 2024. clearly states that China has achieved the “goal that by the centenary of the Party’s founding, institutions in all areas will be more mature and more定型 [25]25 The Chinese term 定型 (dìngxíng) means “fixed in form” or “stabilized,” implying that institutions have reached a mature and stable state., with marked results achieved.” Therefore, the term “adhering to” used in the “Decision” both expresses full affirmation of the overall achievements of China’s institutional development and indicates the intention to continue to uphold such a strategy and to proceed along the path of institutional development.

第一，“坚持”。我国自1978年进入改革开放和社会主义现代化建设时期以来，不断加大制度建设的力度，从根本上改变了严重缺乏法律法规制度的状况。有关统计数据表明，我国在2009年8月底，全国人大及其常委会制定的法律、国务院制定的行政法规、地方人大及其常委会制定的地方性法规、民族自治地方人大制定的自治条例和单行条例、改革开放以来设立的五大经济特区制定的法规、国务院部门和有立法权的地方政府制定的规章，合计约3万件，这些法律制度的制定，适应了我国社会主义建设事业的发展。进入中国特色社会主义新时代后，我国继续卓有成效地进行了相关的法律法规立法制度建设。正是鉴于我国的国家法律制度建设在总体上已完成了党的十一届三中全会和十八届三中全会确定的改革任务的实际，《决定》明确指出，我国业已实现了“到党成立一百周年时各方面制度更加成熟更加定型取得明显成效的目标”。因此，在《决定》中使用的“坚持”一词，既表达了对我国制度建设总体成就的充分肯定，又表示要继续坚守这样的方略、沿着制度建设之路走下去。

Second, “institutional development.” In the full text of the “Decision,” the term “institution” (制度) appears a total of 187 times, its frequency of use second only to the term “mechanism” (机制) (242 times). Mechanism is also related to institution and can, to a large extent, be regarded as an expression of institution. This fully demonstrates the extremely important weight that institution occupies in the “Decision.” In the “Decision,” “institutional development” has two layers of meaning: First, “institutional development” is both a process of the gestation, gradual establishment, and gradual improvement of individual institutions, and at the same time a process of combining and integrating numerous individual institutions into a thorough, coordinated, and systematized institutional system. These two processes—individual institutional development and institutional system development—are closely related and interdependent. Without the process of developing individual institutions, it is impossible to form an overall institutional system; and lacking the development and formation of an overall institutional system, individual institutions ultimately cannot produce the best institutional utility. Second, the focus of institutional development is the construction of an institutional system. In terms of the logical sequence of institutional development, individual institutional development always comes first, followed by systematic, holistic institutional system development. To this end, the “Decision” of the Third Plenary Session of the 20th Central Committee [26]26 The Third Plenary Session of the 20th Central Committee was held in July 2024. proposes and elaborates on the main, key institutional system developments for the future, such as: improving the macroeconomic governance system and the institutional system for perfecting macro-control; improving the institutional system for national economic and social development planning; improving the whole-process people’s democracy institutional system; perfecting the socialist legal system with Chinese characteristics with the Constitution at its core and improving the institutional system for ensuring the full implementation of the Constitution; improving the institutional system for ensuring and improving people’s livelihoods; perfecting the basic public service institutional system; perfecting the income distribution institutional system; perfecting the ecological civilization institutional system; and improving the institutional system for natural resource asset property rights and the management system. The construction and perfection of these institutional systems have become new markers, new tasks, and new goals for institutional development in the course of further deepening reform comprehensively.

第二，“制度建设”。在《决定》全文中，“制度”总计出现了187次，其使用频率仅次于“机制”一词（242次），而机制也是与制度相关联的，在很大程度可以视作制度的一种表述，这充分显示了制度在《决定》中占有极为重要的分量。在《决定》中，“制度建设”具有两层涵义：一是“制度建设”既是一个个的单项制度酝酿形成、逐步建立与逐步完善的过程，同时又是将众多的单项制度组合集成为周密的、协调的、系统化的制度体系过程。单项制度建设和制度体系建设这两个过程，二者有着密切关系，是相互依存的。如果没有一个个单项制度的建设过程，就不可能形成整体的制度体系；而缺失了整体的制度体系的建设与形成，单项制度最终也无法产生最好的制度效用。二是制度建设的重点是建构制度体系，就制度建设的逻辑顺序而言，总是首先进行单项的制度建设，再接着进行系统的、整体性的制度体系建设。为此，党的二十届三中全会《决定》提出并阐述了今后主要的、关键性的制度体系建设，如健全宏观经济治理体系与完善宏观调控的制度体系、健全国家经济社会发展规划的制度体系、健全全过程人民民主制度体系、完善以宪法为核心的中国特色社会主义法律体系和健全保证宪法全面实施的制度体系、健全保障和改善民生制度体系、完善基本公共服务制度体系、完善收入分配制度体系、完善生态文明制度体系、健全自然资源资产产权制度与管理制度体系等。这些制度体系的建构完善，成为在进一步全面深化改革中进行制度建设的新标识、新任务、新目标。

Third, “main line.” The “main line” proposed in the “Decision” carries the rich connotations of “core purpose, central axis, and leading role.” The connotation of “core purpose” prominently expresses the strong purposive consciousness and concept of institutional development. Regarding the core purpose of reform, Deng Xiaoping, the chief architect of reform and opening up, pointed out long ago: “The problems of the leadership system and organizational system are more fundamental, overall, stable, and long-term.” The reason institutional development is important is that “just as institutions affect behavior and incentive factors in real life, they determine the success or failure of a country.” The connotation of “central axis” centrally reflects the essential characteristic of institutional development occupying a central position. Xi Jinping pointed out that now “our main historical task is to perfect and develop the system of socialism with Chinese characteristics, to provide a complete set of more complete, more stable, and more effective institutional systems for the development of the Party and the country’s undertakings, for the happiness and well-being of the people, for social harmony and stability, and for the long-term peace and order of the country.” He emphasized: “Reform and opening up in the New Era has many new connotations and characteristics, among which a very important point is that the weight of institutional development is greater; reform now faces more deep-seated institutional and mechanism problems, requiring higher demands for the top-level design of reform, and stronger demands for the systematic, holistic, and coordinated nature of reform. Correspondingly, the tasks of establishing rules and regulations and constructing systems are heavier.” Thus, institutional development has become the central axis of reform, and reform must revolve around this axis. The connotation of “leading role” profoundly reveals the guiding and driving function of institutional development. When discussing comprehensively deepening reform, Xi Jinping pointed out: “The issue of comprehensively deepening reform is not about advancing reform in one area, nor about advancing reform in several areas, but about advancing reform in all areas. This is considered from the overall perspective of the national governance system and governance capacity.” Undoubtedly, to integrate and advance reform in all areas, a role that can play a unifying and driving function is needed, and this is the overall institutional development centered on the national governance system and governance capacity. Only under the guidance and leadership of institutional development can further deepening reform comprehensively have the correct direction, clear purpose, and strong driving force.

第三，“主线”。《决定》提出的“主线”，有着“主旨、主轴、主导”的丰富意涵。“主旨”的意涵，突出表达了制度建设强烈的目的性观念意识。关于改革的主旨目的问题，作为改革开放总设计师的邓小平早就指出：“领导制度、组织制度问题更带有根本性、全局性、稳定性和长期性”。制度建设之所以重要，就在于“像制度影响现实生活中的行为和激励因素一样，他们会决定国家的成败。”“主轴”的意涵，集中反映了制度建设居于中心地位的本质特点。习近平指出，现在“我们的主要历史任务是完善和发展中国特色社会主义制度，为党和国家事业发展、为人民幸福安康、为社会和谐稳定、为国家长治久安提供一整套更完备、更稳定、更管用的制度体系。”他强调：“新时代改革开放具有许多新的内涵和特点，其中很重要的一点就是制度建设分量更重，改革更多面对的是深层次体制机制问题，对改革顶层设计的要求更高，对改革的系统性、整体性、协同性要求更强，相应地建章立制、构建体系的任务更重。”由此，制度建设成为改革的主轴，改革要围绕着这个轴心运转起来。“主导”的意涵，深刻揭示了制度建设具有的引领带动功能。习近平在谈到全面深化改革时指出：“全面深化改革问题，不是推进一个领域改革，也不是推进几个领域改革，而是推进所有领域改革，就是从国家治理体系和治理能力的总体角度考虑的。”无疑，要整合和推进全部领域的改革，就需要有一个能起统摄带动作用的角色，这就是以国家治理体系和治理能力为总体性的制度建设。只有在制度建设的引领主导下，进一步全面深化改革才有正确的方向、明确的目的和强劲的推展力。

How can the above-mentioned layers and dimensions of institutional development play a guiding and leading role in further deepening reform comprehensively? The “Decision” points out: “Strengthen top-level design and overall planning, establish the new while abolishing the old, establish before abolishing, consolidate fundamental institutions, perfect basic institutions, and innovate important institutions.” This concise, profound, and meaningful exposition clarifies the basic thinking and fundamental guidelines for further deepening reform comprehensively for the sake of institutional development.

上述制度建设的层理面向如何发挥对进一步全面深化改革引领主导的功能呢？《决定》指出，要“加强顶层设计、总体谋划，破立并举、先立后破，筑牢根本制度，完善基本制度，创新重要制度”。这一言简意赅、深邃隽永的论述，明晰了为制度建设而进一步全面深化改革的基本思路和根本遵循。

First, further deepening reform comprehensively for the sake of institutional development must “strengthen top-level design and overall planning.” Strengthening top-level design and overall planning is a major reform strategy established at the Third Plenary Session of the 18th Central Committee in 2013. Xi Jinping has given a profound explanation of this: “To solve the prominent contradictions and problems we face, it is difficult to achieve results by relying solely on reforms in a single area or at a single level. We must strengthen top-level design and overall planning, and enhance the relevance, systematic nature, and coordination of various reforms.” Now, this strategy is not only not outdated for institutional development but is even more applicable. Because facing new situations and requirements, it is necessary to accelerate the further deepening of reform comprehensively and continue to improve and perfect the institutional mechanisms in all aspects, top-level design is even more prominently relied upon. Only by adopting overall conception and strategic determination, and carrying out layer-by-layer systematic design from top to bottom, can results in institutional development be achieved.

其一，为制度建设而作出的进一步全面深化改革要“加强顶层设计、总体谋划”。加强顶层设计与总体谋划，是2013年党的十八届三中全会确立的一项重大的改革方略。习近平就此作过深刻的阐释：“要解决我们面临的突出矛盾和问题，仅仅依靠单个领域、单个层次的改革难以奏效，必须加强顶层设计、整体谋划，增强各项改革的关联性、系统性、协同性。”现在，这一方略对于制度建设来说，非但没有过时，反而更加适用。由于面对着新的形势和要求，必须加快进一步全面深化改革，继续健全完善各方面的制度机制，因而对顶层设计也更为突出倚重。只有采取总体构想和战略谋定，自上而下地进行一层层的系统设计，才能取得制度建设的成效。

Second, further deepening reform comprehensively for the sake of institutional development must “advance both breaking and establishing, establishing before breaking.” Without breaking there is no establishing; only by abolishing old institutions can new ones be built. “Advancing both breaking and establishing” embodies the vivid dialectical thinking of reform methodology: without breaking, how can one speak of establishing; without establishing, how can one speak of breaking? Blindly breaking without establishing inevitably leads to a state of institutional vacancy, anomie and chaos; persisting solely in establishing without breaking also causes friction and conflict between old and new institutions. Only by advancing both breaking and establishing, breaking and establishing simultaneously, can further deepening reform comprehensively be promoted in a timely and forceful manner, and can new institutions be fundamentally guaranteed. In implementing the simultaneous advance of breaking and establishing, attention must also be paid to “establishing before breaking.” Xi Jinping pointed out: “Where laws need to be amended, the laws can be amended first, establishing before breaking, proceeding in an orderly fashion.” [27]27 Xi Jinping, “Explanatory Notes on the ‘Decision of the Central Committee of the Communist Party of China on Further Deepening Reform Comprehensively and Promoting Chinese-Path Modernization’,” July 15, 2024. This is because the replacement of old institutions by new ones must be accompanied by a certain period of adaptation and buffer. For example, the practical approach of “applying new methods to new people, and old methods to old people” is based on this principle. Once a new institution is introduced, if the old institution is immediately withdrawn, it will inevitably affect the legitimate rights and interests of some people. At this time, the new institution must be allowed to operate first, while the old institution is abolished later, retaining a transitional period. Only in this way can social stability be maintained, creating a favorable environment for reform that resolves contradictions in a timely manner.

其二，为制度建设而作出的进一步全面深化改革要“破立并举、先立后破”。不破不立，只有通过破除旧制度，才能建立起新的制度来，“破立并举”，体现了改革方法论生动的辩证法思想，不破，焉能言立；不立，又岂能谈破；盲目地只破不立，必然陷于制度空缺的失范混乱状态；一味地只立不破，也会造成新旧制度对立引起摩擦冲突；而只有破立并举，既破又立，才能及时有力地推动进一步全面深化改革，并使新制度得到根本的保障。实行破立并举，还要注重“先立后破”。习近平指出：“需要修改法律的可以先修改法律，先立后破，有序进行。”这是因为，新制度替代旧制度要辅之以一定的适应期和缓冲期，例如，现实中采用的对“新人实行新办法，老人实行老办法”，就是基于这一原理。新制度出台了，如果旧制度立即退场，势必会影响到一部分人的合理合法利益，这时就要先让新制度运转起来，又要让旧制度延后时间废止，保留一段过渡期，这样才能维持社会稳定，为改革创造一个良好的、及时化解矛盾的环境。

Third, further deepening reform comprehensively for the sake of institutional development must “consolidate fundamental institutions, improve basic institutions, and innovate important institutions.” China’s existing institutions can be broadly divided into three levels and three types: fundamental institutions, basic institutions, and important institutions. The first level is fundamental institutions — core institutions that play a top-level decisive, full-coverage, and overall guiding role, such as the Party’s system of centralized, unified, and comprehensive leadership, and the system of people’s congresses. China’s practice has already proven that fundamental institutions are scientifically correct and must not be slandered, denied, shaken, or discarded. Therefore, further deepening reform comprehensively must adopt a method of continuous consolidation and reinforcement toward them. The second level is basic institutions — major institutions that embody the basic principles of the country’s political, economic, and social life and exert far-reaching influence. China’s basic institutions in the economic, political, cultural, and social spheres have also been proven completely correct by practice. Therefore, further deepening reform comprehensively must adopt a method of improvement and perfection toward them. The third level is important institutions — a series of key institutions derived from fundamental and basic institutions that play an active role in all fields and aspects of national governance. Compared with the finalized and stabilized fundamental and basic institutions, these must continuously undergo incremental institutional supply in line with new practices and new developments in national governance. Therefore, further deepening reform comprehensively must adopt a method of filling gaps and adding innovation toward them. The differentiated choice of the three methods of institutional development in further deepening reform comprehensively is ultimately determined by the differences and distinctions among the three types of institutions.

其三，为制度建设而作出的进一步全面深化改革要“筑牢根本制度，完善基本制度，创新重要制度”。我国现有的制度，总体上可以分为根本制度、基本制度、重要制度三个层次、三种类型。第一层次是根本制度——起着顶层决定性、全域覆盖性、全局指导性作用的核心制度，如：党的集中统一和全面领导制度、人民代表大会制度。我国的实践已经证明，根本制度科学正确，不容任何诋毁、否定乃至动摇、丢弃。因此，进一步全面深化改革对之要采取不断巩固、筑牢的方式。第二层次是基本制度——体现国家政治、经济、社会生活的基本原则并发挥深远影响的重大制度。我国的经济、政治、文化、社会等方面的基本制度，也已被实践证明完全正确，因此，进一步全面深化改革对之要采取健全、完善的方式。第三层次是重要制度，是由根本制度和基本制度派生出的、在国家治理各领域各方面都发挥积极作用的一系列关键制度。相比于定型化、稳定化了的根本制度、基本制度，它要随着国家治理的新实践、新发展而不断进行增量的制度供给，因此，进一步全面深化改革对之要采取填补空白、增添创新的方式。进一步全面深化改革中三个制度建设方式的分别选择，归根到底是由三类制度的不同与其差别性所决定的。

(Author’s bio: Xu Yaotong, Distinguished Professor, School of Marxism, Fujian Normal University)

（作者简介：许耀桐，福建师范大学马克思主义学院特聘教授）

Online editor: Tongxin

网络编辑：同心