2023 NPC Lectures: #3 Improving the Socialist Legal System with Chinese Characteristics

Posted on 12/09/2023 by 高大伟 David Cowhig

This is the third in a series of seven lectures presented in 2023 to members of the National People’s Congress Standing Committee.

Translations in this series:

Sources on PRC law: multiple perspectives

As China builds up its array of domestic talent on international law, its discourse power 話語權 huayuquan in the world and in changing understandings of legal relations among states, the Chinese/Xi’ist spin on legal thinking will likely get more attention. When one considers the resources poured into the law in the US and the extraterritorial reach of US law the international legal reach of China remains modest despite its growing ambitions.

To the translation below I have added links to references and in some place run links to Chinese sources through the Google Translate translation engine to get an English translation of the references. The Chinese text follows the translation.

Google Translate machine translations, although still not completely accurate, have improved greatly and so are now useful for those who do not read Chinese. You may need to try several browsers to find one that brings up a page properly or, if that does not work, copy the Chinese text into a translation software application such as DeepL. Using ChatGPT for machine translation is also possible with caveats. See my note on machine translation at Chinese Language Study and Translation Tools In this series of translations I often use links to Chinese language sources where I did not find an adequate English language source. I run those links through Google Translate. The sinoliterate reader should be able to find resources for themselves by checked the original text that I have appended to this translation or to the URL on the Chinese title. I have appended the text as well because interesting documents often disappear from PRC websites. Sometimes documents deleted from PRC websites are still to be found on the Internet Archive.

Lecture Three on the Work and Study of the 14th National People’s Congress Standing Committee: 

Continuous Improvement of the Socialist Legal System with Chinese Characteristics to Promote Development and Ensure Good Governance

不断完善中国特色社会主义法律体系以良法促进发展 保障善治

信春鹰

Update: July 20, 2023

Author: Xin Chunying  信春鹰, Chairman of the Constitutional and Legal Affairs Committee of the National People’s Congress

Source: China National People’s Congress Website, April 28, 2023

Chairman, Vice Chairmen, Secretary-General, and fellow committee members,

The socialist legal system with Chinese characteristics is a great creation of the Chinese Communist Party leading the people in the process of reform, opening up, and building a modern nation. Its development and achievements are unprecedented in the history of world legislation.

From the 15th National Congress of the Party, which first proposed the formation of the socialist legal system with Chinese characteristics, to the 2010s, the Party emphasized the need to adapt to new situations such as the development of a socialist market economy, comprehensive social progress, and joining the World Trade Organization. Legislation work was strengthened, and the quality of legislation was improved with the goal of forming the socialist legal system with Chinese characteristics by 2010. 

The 17th National Congress announced the basic formation of the system, emphasizing the need to adhere to scientific and democratic legislation to improve the system. 

The 18th Congress emphasized the perfection of the system, and the 19th Congress proposed advancing scientific, democratic, and rule-of-law legislation to promote development and ensure good governance. 

The 20th Congress called for the improvement of the socialist legal system with the Constitution at its core, strengthening legislation in key areas, emerging fields, and foreign-related fields, and promoting both domestic and foreign legal governance to ensure good governance.

I. Formation of the Socialist Legal System with Chinese Characteristics

On December 4, 2012, at the commemoration of the 30th anniversary of the promulgation and implementation of the current Constitution, General Secretary Xi Jinping stated that the Constitution should serve as the highest legal norm. He emphasized the need to continue improving the socialist legal system with Chinese characteristics under the leadership of the Constitution, integrating all national undertakings and work into the legal framework, ensuring a legal basis, strict enforcement, and accountability, and upholding social fairness and justice, achieving the institutionalization and legalization of national and social life. 

On December 19, 2022, at an important conference commemorating the 30th anniversary of the promulgation and implementation of the current Constitution, General Secretary Xi Jinping once again emphasized the need to accelerate the improvement of the socialist legal system with the Constitution at its core, continually enhancing the comprehensiveness, systematicity, and coordination of the legal normative system. [Xi Jinping: Speech at a meeting of all parts of society in the capital to commemorate the 30th anniversary of the promulgation and implementation of the current Constitution 习近平：在首都各界纪念现行宪法公布施行30周年大会上的讲话]

The socialist legal system with Chinese characteristics is the foundational project for building a socialist rule of law country. Since the founding of the People’s Republic of China, especially since the reform and opening up, under the centralized and unified leadership of the Party Central Committee, the National People’s Congress and its Standing Committee have adapted to the needs of reform and development, starting from a historical point where there was no legal basis to progress, focusing on the overall work of the Party and the state, and advancing the construction of legal systems in a planned, prioritized, and step-by-step manner. The tasks of legislation were heavy, difficulties were overcome, and the problems solved were unprecedented.

Starting from the 9th National People’s Congress, the Standing Committee considered the formation of the socialist legal system with Chinese characteristics by 2010 as a political task in legislative work. Five-year legislative plans and annual legislative plans were carefully studied, and each legislative project was considered in terms of the goals and structure of building the legal system. During the 9th National People’s Congress and its Standing Committee’s five-year term, a total of 124 drafts of laws, legal interpretations, and decisions on legal issues were reviewed, and 113 of them were passed. 

The 10th National People’s Congress and its Standing Committee explicitly put forward the legislative work approach of “aiming to basically form the socialist legal system with Chinese characteristics as the goal and focusing on improving the quality of legislation” within their term. Over five years, they reviewed 106 items, including constitutional amendments and other legal bills, and passed 100 of them. 

The 11th National People’s Congress and its Standing Committee, while improving the quality of legislation, focused on formulating laws that played a supporting role in the legal system, timely amending laws that were incompatible with economic and social development, and concentrated on legal cleaning. Over five years, they reviewed 93 drafts related to laws, legal interpretations, and legal issues and passed 86 of them.

On January 24, 2011, the 11th National People’s Congress Standing Committee held a meeting, announcing that the socialist legal system with Chinese characteristics had been formed. At this historical moment, China had enacted 236 national laws, 690 administrative regulations, and 8,600 local regulations. The criteria for the formation of the legal system are: 

  1. Formation of legal organs covering all aspects of social life are complete; 
  2. Fundamental and major laws in each legal department have been enacted; 
  3. Corresponding administrative regulations and local regulations are relatively complete; Internal norms of the legal system are generally scientifically and harmoniously unified.

In the traditional sense, a legal system refers to all the laws of a country, classified according to different objects and methods of regulation. The socialist legal system with Chinese characteristics carries rich political, legal, and social connotations. 

  1. It serves as the carrier of the socialist legal system with Chinese characteristics. The state of a country’s legal system reflects the development and improvement of its political, economic, and social systems. Countries with a complete legal system are generally more mature in terms of their systems. The completeness of the legal system is an important institutional indicator of a modern state. 
  2. The system reflects the political values of the country, embodying institutional arrangements for social fairness and justice. It ensures the institutionalization of political values and development directions by protecting and promoting the political goals and social ideals of the country through its clear functions in the legal system. 
  3. It ensures the harmonious unity of legal norms. The legal system consists of legal norms, and a single legal norm may be manifested in different laws or at different levels of laws. The internal structure of the legal system requires ensuring the consistency of legal principles, purposes, and values, as well as the consistency of legal norms. 
  4. It guides the development of laws in different fields. By comparing different legal departments within the legal system, deficiencies in institutional construction can be identified, allowing targeted strengthening of legislation to meet the comprehensive progress of society’s needs.

II. Significance of the Socialist Legal System with Chinese Characteristics: Fundamental, Stable, and Long-Term Benefits

The socialist legal system with Chinese characteristics is the legal carrier of the socialist political system, ensuring the unswerving leadership position of the Communist Party of China (CPC) and the stability of the state system of people’s democratic dictatorship and the system of people’s congresses as stipulated by the Constitution.

Firstly, it establishes the rigid foundation of the system with the constitution and laws, adhering to and developing the socialist political system with Chinese characteristics. The Constitution is the fundamental law of the country, the general charter for governing the nation. 

The current Constitution, passed by the Fifth National People’s Congress at its fifth session in December 1982, in fundamental law form, clearly defines the country’s fundamental task: to concentrate efforts on the socialist modernization construction along the path of socialism with Chinese characteristics. 

  • It upholds the socialist road, 
  • The people’s democratic dictatorship, 
  • The leadership of the Communist Party of China, 

The principles of Marxism-Leninism and Mao Zedong Thought were written into the preamble, clarifying that these principles are the ideological foundation for the common struggle of the entire nation and the fundamental political guarantee for socialist modernization construction. The political system, basic economic system, and other systems and principles established by the Constitution lay the fundamental political premise and institutional foundation for reform and opening up. 

In practice and development, under the leadership of the Party Central Committee, the National People’s Congress has successively made significant revisions to parts of the current Constitution through amendments in 1988, 1993, 1999, 2004, and 2018, passing a total of 52 constitutional amendments. These amendments have played an important role in improving and developing China’s constitutional system, promoting the construction of socialist rule of law, and enhancing the Party’s governance capabilities according to law. General Secretary Xi Jinping summarized the necessary pattern of China’s constitutional system construction: it must: 

  • Uphold the leadership of the Communist Party of China, 
  • Uphold the people’s position as masters of the country,
  • Uphold governing the country according to the constitution and ruling the country according to the constitution, 
  • Uphold the fundamental national status of the constitution, and 
  • Uphold the institutionalization and legalization of the constitution’s implementation and supervision. 

The current Constitution and the five amendments are major political choices made by the Party’s leaders at key moments in the development of China’s socialist cause. They are successful practices of China’s socialist legal path.

Over the years, especially since the 18th National Congress of the Party, the National People’s Congress and its Standing Committee, with the constitution at the core, have strengthened legislation in key areas, continuously promoting the improvement and development of the socialist political system with Chinese characteristics. 

Secondly, it establishes and improves the legal system of the socialist market economy, liberates and develops the productive forces, and promotes sustained and healthy economic and social development. The implementation of the socialist market economy in China is not only a process of continuous liberation of thought but also a process of continuous innovation and improvement of the system. The National People’s Congress and its Standing Committee have focused on legislative work to strengthen the establishment and improvement of the legal system of the socialist market economy, overcoming difficulties to promote the harmonious development of productive relations with productive forces and the adaptation of superstructure with the economic base, promoting the sustained and healthy development of the economy and society through legal means.

At the beginning of the reform and opening up, establishing a legal system for the socialist market economy became an urgent task. Legislation during this period concerning the establishment of the legal system of the socialist market economy was like a ship breaking the ice, shouldering the historical mission of breaking the old and establishing the new. Under the leadership of the Party Central Committee, from 1979 to 1982, the National People’s Congress and its Standing Committee passed 12 economic laws and regulations. Representative legislations include the Law on Chinese-Foreign Equity Joint Ventures, the Individual Income Tax Law, the Economic Contract Law, the Law on Foreign-Funded Enterprises Income Tax, and the Trademark Law, among others. During the sixth term of the National People’s Congress and its Standing Committee, they enacted 37 laws, including 22 laws related to the economy and 10 laws related to opening up. 

The formulation of the General Principles of the Civil Law was a major legislative achievement during this period, establishing the basic system of civil law in China and laying a system foundation for constructing the socialist market economy. 

During the seventh term of the National People’s Congress and its Standing Committee, through constitutional amendments and 59 laws, 27 decisions on legal issues, 21 laws related to the economy were passed. Noteworthy laws included the Law on State-Owned Industrial Enterprises, the Law on Chinese-Foreign Cooperative Operations, the Copyright Law, the Law on Foreign-Funded Enterprises and Foreign Enterprises Income Tax, and the Tax Collection and Management Law, which had a significant impact on economic construction and reform and opening up. 

The eighth term of the National People’s Congress and its Standing Committee continued to consider accelerating economic legislation as an important task, striving to build the framework of the legal system of the socialist market economy around the main links of the market economy system. Over five years, they passed 85 laws and 33 decisions on legal issues.

The ninth term of the National People’s Congress and its Standing Committee, around the legislative goal of forming the socialist legal system with Chinese characteristics by 2010, further enriched and improved legislation related to the socialist market economy. They formulated the Contract Law and the Law on Land Contracting in Rural Areas and amended laws such as the Patent Law, the Trademark Law, and the Copyright Law.

The tenth term of the National People’s Congress and its Standing Committee aimed at the basic formation of the socialist legal system with Chinese characteristics, focusing on improving the quality of legislation, conducting many significant legislative practices. During this period, the Property Law, which had been reviewed eight times, was enacted, establishing the legal system of socialist property rights with Chinese characteristics. Laws such as the Enterprise Bankruptcy Law and the Anti-Monopoly Law were enacted, establishing legal systems to protect and promote fair competition among market entities.

The 11th National People’s Congress and its Standing Committee, at a new starting point, continued to strengthen and improve legislative work. They devoted more efforts to the revision and perfection of laws, to promoting the formulation and modification of supporting regulations for laws. Meanwhile, to meet the needs of economic and social development, they enacted new laws, including the Social Insurance Law, Circular Economy Promotion Law, Enterprise State-Owned Assets Law, Rural Land Contracting Dispute Mediation and Arbitration Law, Tort Liability Law, Vehicle and Vessel Tax Law, and Foreign-Related Civil Relations Law.

Through unremitting efforts, China’s socialist market economy legislation has become increasingly perfected. Company laws and various enterprise laws establish a market subject qualification system, ensuring that enterprises are equal competitors in the market and must operate according to prevailing market rules. Property rights laws, among others, respect and protect property rights, safeguarding the property interests of market entities. Contract laws, among others, uphold contract freedom and clarify market transaction rules. Anti Monopoly laws, antitrust laws, and other related laws ensure moderate state intervention in the market. Social insurance laws and other laws improve the social security system, balancing social interests. The legal system of socialism with Chinese characteristics combines socialism with a market economy in the legal system, promoting the decisive role of the market economy in resource allocation and better utilizing the government’s role.

Thirdly, through legislative means, it ensures the unity of reform decisions and legislative decisions, ensuring that economic and social development is both vibrant and orderly. Managing the relationship between reform and legislation is a major political and legal issue in contemporary China. At the beginning of reform and opening up, the main task was to gradually break the shackles of the planned economic system on productivity and establish a vibrant socialist market economy. In situations where the conditions for formulating and amending laws were not mature and reform measures needed to be tried first, the Standing Committee of the National People’s Congress, following legal procedures, authorized the State Council and economic special zones to legislate, providing a legal basis for trial runs in specific areas or regions. 

  • In 1980, a resolution was passed approving the “Guangdong Province Economic Zone Regulations”; 
  • in 1981, authorization was given to the Guangdong and Fujian Provincial People’s Congresses and their Standing Committees to formulate economic regulations for special zones;
  •  in 1984, authorization was given to the State Council to reform the industrial and commercial tax system;
  •  in 1985, authorization was given to the State Council to make temporary regulations or rules for economic system reform and opening up; 
  • in 1988, authorization was given to the Hainan Provincial People’s Congress and its Standing Committee to formulate regulations; 
  • In 1992, 1994, and 1996, authorization was respectively given to the Shenzhen, Xiamen, Shantou, and Zhuhai People’s Congresses and their Standing Committees and governments to formulate regulations and rules. 

These authorization decisions in the form of laws provided support and legal guarantees for the pioneering of reform and opening up. After the 18th National Congress of the Party, the National People’s Congress and its Standing Committee worked to handle the relationship between reform and the rule of law, promoting reform under the rule of law and perfecting the rule of law in the process of reform. In 2015, the amendment to the Legislation Law further clarified the authorization provisions, providing a legal basis for authorized legislation and improving the legislative system, specifying legislative powers and enhancing mechanisms and procedures to ensure scientific, democratic, and legal legislation.

The path a country takes in the rule of law is determined by its national conditions. Looking back at the historical process of the formation and development of the socialist legal system with Chinese characteristics, it is clear that the legal system we are building for socialism with Chinese characteristics is essentially the legal expression of the socialist system with Chinese characteristics, the legal foundation for maintaining the characteristics of socialism, the legal embodiment of innovative practices, and the legal guarantee for prosperity and development.

III. Departments and Levels of the Socialist Legal System with Chinese Characteristics

The division of legal system departments can be approached from different perspectives, and various methods have been proposed by legal academia. The current division into seven legal departments is the result of legislative organs comprehensively studying various opinions, based on the different objects and adjustment methods of legislative adjustments, the actual situation of legislative work, and the needs that arise.

Constitutional law is the commander and core of the legal system, with the highest legal status. No law or regulation may contradict the constitution.

1. Departments related to the constitution: The characteristics of departments related to the constitution lie in concretizing the political system specified by the constitution through specific legislation. Currently, there are 49 laws related to the constitution, mainly including election laws, representative laws, legislative laws, laws on the organization of state institutions, supervision laws, laws on ethnic regional autonomy, Basic Laws of Hong Kong and Macao Special Administrative Regions, the Anti-Secession Law, and other legislation to safeguard national security, protect citizens’ political rights, etc. 

  • In March of this year, the First Session of the Fourteenth National People’s Congress amended the Legislation Law 立法法, highlighting the comprehensive leadership of the Party over legislative work and improving the guiding ideology and principles of legislation. 
  • It strengthened the implementation and supervision of the constitution, clarified the requirements for constitutional review, and improved the record review system. 
  • It improved the regulations on authorization decisions and exclusive legislative powers of the National People’s Congress and its Standing Committee. 
  • It improved the legislative system, including expanding the legislative powers of district-level cities, improving the subjects of departmental regulations, adding provisions on regional coordinated legislation, and specifying legislative technical standards and emergency legislative procedures. 

The amendment to the Law on Enacting Legislation 立法法 improved the top-level design of the national legislative system, marking the progress from “having laws to follow” to “having good laws for good governance.” This is an important legislative practice in the field of constitutional law.

2. Civil and Commercial Law Department: Civil law and commercial law are the general terms for legal norms that regulate property and personal relations between equal subjects. Some countries have a separation between civil and commercial laws, while China adopts an integrated system. Civil law generally regulates civil relations, and commercial law applies the general principles and principles of civil law, specifically regulating the behavior norms of commercial activities but not involving personal non-property relations in civil law. China has enacted 24 effective civil and commercial laws, which establish systems for protecting property rights, tort liability, contracts, guarantees, intellectual property, companies, enterprises, bankruptcy, bills, insurance, securities, and regulating personal relations such as marriage, adoption, and inheritance. From the perspective of the scope of regulation, civil and commercial law is the most extensive legal department, and laws in this field respect individuals’ independence, freedom of will, equal rights, and responsibility for their actions. 

Therefore, civil law is considered the foundation of the market economy. Since the reform and opening up, China has successfully transitioned from a planned economy to a market economy, and the gradual establishment and improvement of the civil and commercial legal system have played an important role. The Civil Code is based on the continuous improvement of civil laws over more than 40 years of civil legal development since the reform and opening up. It compiles and revises marriage laws, inheritance laws, general principles of civil law, adoption laws, guarantee laws, contract laws, property laws, tort liability laws, and general principles of civil law. Compiling the Civil Code is a revision and compilation of existing civil laws, with several implications: 

  1. It modifies and  improves provisions that are no longer suitable for the current situation; 
  2. It makes new regulations for new situations and problems arising in economic and so
  3. It cleans up provisions on the same matter in different laws at different times, avoiding conflicts and confusion in legal application. The compilation of the Civil Code provides a model for the codification of mature legal fields in the future.

3. Administrative Law: Administrative law is the general term for legal norms regulating state administrative activities, providing legal guarantees for government administration under the law. The number of laws in the administrative law department is the highest among the seven legal departments, with 96 laws, including general administrative laws such as the Administrative Litigation Law, Administrative Penalty Law, Administrative Reconsideration Law, and Administrative Licensing Law, which regulate universal principles that all administrative organs must abide by, as well as specific administrative laws that regulate certain aspects of administrative management. The legislative purpose of administrative law is to safeguard the legitimate rights and interests of citizens, legal persons, or other organizations from infringement by administrative organs and their staff while ensuring the effective exercise of administrative management rights by the government. 

China’s administrative law clarifies the relationship between the government and the market, the government and enterprises, and the government and society. It specifies the responsibilities, powers, and management methods of the government, ensuring that the government fully performs its functions under the law. At the same time, it unleashes the initiative and enthusiasm of different social organizations and individuals, creating a vibrant social situation. By systematically regulating and restraining administrative power, administrative law safeguards the power given by the people to be used for the benefit of the people.

4. Economic Law: Economic law is the general term for various legal norms that manage and regulate economic activities. Currently, this department has 83 laws. The basic functions of economic law are, first, moderate state intervention in the market economy and, second, maintain social fairness. Moderate state intervention means that, while respecting the autonomy of market economy entities, moderate intervention is carried out to overcome the blindness and limitations of the market economy. Intervention must be legal, procedures must be complete, and economic entities must have the legally specified right to remedy. Maintaining social fairness means that substantive rights and resource allocation must be just, government intervention in economic activities must be legal, and the balance between government regulatory power and the rights of economic entities must be maintained, eliminating the arbitrariness and selectivity of government actions. 

The systems established by China’s economic law include anti-unfair competition, anti-monopoly, market supervision, consumer rights protection, price system, commercial bank system, audit system, investment system, government procurement system, product quality safety guarantee system, etc. The purpose is to correct the shortcomings of the market economy and provide a good legal environment for the healthy development of the market economy. For example, the legal system for combating monopolies and preventing the disorderly expansion of capital is the Anti-Monopoly Law and the Anti-Unfair Competition Law. 

In recent years, China’s platform economy has developed rapidly, posing new challenges to anti-monopoly and anti-disorderly expansion. Some platform companies have monopolized more and more resources, limited or excluded competitors on both the supply and demand sides, penetrated across borders, grown recklessly, infringed on the rights and interests of small and medium-sized enterprises, individual businesses, and small vendors, and calculated consumers precisely to earn profits. Regulatory authorities have used relevant provisions of the Anti-Monopoly Law to supervise and penalize platform companies with outstanding issues. The market economy is the “invisible hand,” and economic law is the “visible hand.” It is an important means for the government to maintain the order of the socialist market economy.

5. Social Law: Social law is the general term for legal norms regulating labor relations, social security, social welfare relations, and the protection of vulnerable groups. There are currently 27 related laws that are effective. According to the requirements of the central government to strengthen social construction, the Thirteenth National People’s Congress established the Social Construction Committee, further strengthening legislation in the social field. The basis for the development of social law is the government’s responsibility to maintain social fairness and the basic human rights of citizens. It manifests itself as a correction of the freedom principles of civil and economic law and is known academically as the “third realm,” with the first realm being public law, the second realm being private law, and the third realm being social law. 

The market economy encourages competition, neglecting differences in economic conditions, individual capabilities, resource ownership, and social status among people. Social law embodies the state’s active participation in social resource allocation, maintaining substantive fairness in society. The basic systems established by China’s social law department include the labor standard system, labor contract system, labor safety system, labor remuneration system, social security system, employment promotion system, social insurance system, etc. These systems aim to achieve social justice through national obligations, promote social harmony and comprehensive progress, and regulate and restrain administrative power to ensure that the power given by the people is used for the people’s benefit.

6. Criminal Law: Criminal law is the general term for legal norms related to crime, criminal responsibility, and punishment. The laws in the criminal law department number only four, and although the quantity is not large, they are of great significance for safeguarding national security, protecting the national political power of people’s democratic dictatorship, protecting the property of the state, collective, and citizens, safeguarding citizens’ personal and democratic rights, and maintaining social order. The functions of criminal law are first to punish crimes and uphold social justice and second to regulate the state’s criminal power and the principle of legality of crimes and punishments. China’s criminal law stipulates ten categories of crimes:

  1. Endangering national security,
  2. Endangering public safety,
  3. Disrupting the socialist market economy order, 
  4. Infringing on citizens’ personal and democratic rights, 
  5. Violation of property rights, 
  6. Disturbing the social order,
  7. Endangering national defense interests, 
  8. Bribery, 
  9. Dereliction of duty, and 
  10. Military personnel violating their duties. 

It establishes the principles of legality of crimes and punishments, equivalent crime and punishment, voluntary surrender, legitimate defense, and a system of penalties mainly involving property, liberty, and life. In addition to the Criminal Law, China’s criminal legal norms also include eleven amendments, with a total of 483 criminal offenses.

7. Litigation and Non-Litigation Procedure Law: Litigation and non-litigation procedure law is a general term for legal norms governing litigation and non-litigation activities in resolving social disputes. China has successively enacted Criminal Procedure Law, Civil Procedure Law, Administrative Procedure Law, etc., forming an organic whole of our country’s litigation system. The significance of procedural law lies in establishing procedures for judicial power, preventing the abuse of judicial power, and aiming to restore and remedy rights that have been infringed. The judiciary serves as the final channel for restoring justice and achieving social fairness. As procedural law is concerned with processes, its mission is to ensure the final realization of rights and obligations within the six substantive law categories mentioned above. Its unique and significant value is emphasized. Besides litigation procedure law, the procedural law department also includes arbitration law, people’s mediation law, labor dispute mediation and arbitration law, rural land contract and management dispute mediation and arbitration law, etc., which correspond to various dispute resolution methods.

China’s socialist legal system is unified yet hierarchical. The unity and hierarchy of China’s socialist legal system set it apart from other countries. This unity means that our country has only one constitution, one legislative body, one central government, and the allocation of state power is clearly defined in the constitution and laws. On the other hand, China’s legal system is hierarchical. The constitution, laws, administrative regulations, and local regulations constitute different levels of legal rules. Our vast country has significant differences in economic development, population size, and the situations faced by provinces, autonomous regions, and municipalities directly under the central government. 

Therefore, in institutional design, localities are legally entitled to legislative power. According to the provisions of the Legislation Law, the people’s congresses and their standing committees of provinces, autonomous regions, and municipalities directly under the central government, based on the specific conditions and actual needs of their respective administrative regions, can formulate local regulations, as long as they do not conflict with the constitution, laws, and administrative regulations. The people’s congresses and their standing committees of districts in cities are authorized to formulate local regulations on matters related to urban and rural construction and management, ecological civilization construction, historical and cultural protection, and grassroots governance, provided they do not conflict with the constitution, laws, administrative regulations, and local regulations of their respective provinces or autonomous regions. Over the years, local people’s congresses and their standing committees with legislative power have played important roles in drafting and amending a large number of local regulations, in line with local conditions and responding to the demands of the people. They have demonstrated the practical, complementary, and exploratory characteristics of local legislation, contributing significantly to the in-depth advancement of the rule of law, the transformation of governance methods, and the modernization of governance capabilities.

A major political and economic power is also inevitably a legal power. From the perspective of national governance, the completeness of the legal system reflects the ruling party’s ability to govern according to the law, the leadership and cohesion of the state power. Historical experience has shown that national stability and social prosperity are prerequisites for the construction of a legal system.

IV. Improvement of China’s Socialist Legal System in the New Era

Since the 18th National Congress of the Communist Party of China, with Comrade Xi Jinping at the core of the Party Central Committee, the Party has been committed to upholding and developing socialism with Chinese characteristics from a strategic perspective, promoting the rule of law, laying out the layout of the rule of law, and vigorously advancing the construction of the socialist legal system with Chinese characteristics. As the overall situation for advancing the rule of law in an all-round way has been designed, the construction of the socialist legal system with Chinese characteristics as a guiding principle to coordinate all aspects has undergone historical, turning-point changes. Significant achievements have been made in major theoretical innovations, practical innovations, and institutional innovations in promoting the rule of law in an all-round way. As of the closure of the second session of the 14th National People’s Congress Standing Committee in April 2023, there are 295 effective laws, 599 administrative regulations, and more than 13,000 local regulations. The socialist legal system with Chinese characteristics is more scientifically complete and unified authoritative, providing solid and powerful legal guarantees for comprehensively building a well-off society and embarking on a new journey to build a socialist modern country.

(1) Continuous Improvement of the Constitutional Implementation System

General Secretary Xi Jinping pointed out: The Constitution is the fundamental law of the state and has the highest legal authority. Adhering to the rule of law in governing the country must first adhere to the rule of the constitution, and governing according to law must first adhere to governing according to the constitution, unswervingly uphold the leading position of the Communist Party of China stipulated in the constitution, and unswervingly uphold the national system of people’s democratic dictatorship and the system of the people’s congresses stipulated in the constitution. 

The 1st Session of the 13th National People’s Congress adopted amendments to the Constitution, making 21 modifications to the existing constitution. These amendments were very extensive, including:

  • Establishing Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era as the guiding ideology of the state, 
  • Enriching the content of adhering to and strengthening the overall leadership of the Communist Party of China, 
  • Improving the implementation of the rule of law and the measures for the constitution, and 
  • Establishing the national supervision system.

These amendments solidify the institutional foundation of the state and ensure that the constitution always resonates with the development requirements of the times, playing the role of a fundamental law in guiding, leading, promoting, and guaranteeing.

The life of the constitution lies in its implementation, and the authority of the constitution also lies in its implementation. 

  • First, improve laws related to the constitution to guarantee its implementation. The enactment of the Supervision Law, the Supervisors Law, and the Civil Servant Political Sanctions Law, as well as the modification of the Election Law, the Organization Law of the National People’s Congress, the Procedural Rules of the National People’s Congress, and the Local Regulations Law, ensure the effective implementation of the principles and systems stipulated in the constitution. 
  • Second, strengthen the implementation and supervision of the constitution, promote constitutional supervision. 

The 13th National People’s Congress established the Constitutional and Legal Committee, and one of its important responsibilities is to “promote the implementation of the constitution, interpret the constitution, promote constitutional supervision, strengthen constitutional supervision, coordinate constitutional publicity, etc.” Since 2018, the Constitutional and Legal Committee has carried out constitutional review during the unified review of the Supervision Law, the Criminal Procedure Law, the People’s Court Organization Law, the People’s Procuratorate Organization Law, the Foreign Investment Law, etc. This has become an important institutional arrangement. Third, maintain national legal unity through the record review system. Maintaining national legal unity is an important aspect of implementing the constitution. The regulatory document record review system is a constitutional system that maintains national legal unity.

The 12th National People’s Congress Standing Committee included record review work in its annual work focus and legislative and supervisory work plan for five consecutive years. During this period, a total of 4,778 regulatory documents were submitted for record review. The 13th National People’s Congress Standing Committee, in accordance with the general requirements of “must be done, must be reviewed, and must be corrected,” expanded the scope of record review supervision, receiving 7,261 submissions for record review. 

Over the five years, it has effectively urged various government agencies to revise, improve, or abolish various regulatory documents. The Record Review System for maintaining national legal unity is an important part of the constitutional system. The Constitutional and Legal Committee of the 13th National People’s Congress Standing Committee has formulated and improved the Record Review Measures, clarifying the scope, procedures, and standards for record review. 

This has strengthened the role of the record review system in maintaining national legal unity. The 2023 amendment to the Legislation Law incorporates the innovation experience and beneficial practices of implementing and supervising the constitution in recent years into legal form. It clearly stipulates the requirements for constitutional review during the drafting and deliberation process of legal cases, as well as the record review requirements. It improves the active review system, clarifies the special review system, the record review linkage mechanism, the legal and regulatory cleaning system, and enhances the institutional system to ensure the comprehensive implementation of the constitution.

(2) A More Systematic and Complete Legal System

The National People’s Congress Standing Committee closely follows the major decisions and arrangements of the Central Committee of the Communist Party of China, closely aligns with the good expectations and demands of the people for the rule of law, closely focuses on the legal needs of the national governance system and governance capacity modernization, and plans and implements legislation in key areas, emerging areas, and foreign-related areas in an organized and focused manner. The socialist legal system with Chinese characteristics has been continuously improved, and legislative work has shown remarkable features of heavy tasks, wide coverage, fast pace, and high quality.

Compiling the Civil Code is a significant legislative achievement of the 12th and 13th National People’s Congress Standing Committees. As the first law named “Code” since the founding of the People’s Republic of China, it solidifies a series of important institutional achievements in China’s implementation of the socialist market economy system and strengthening the socialist rule of law for many years. It is a landmark legislation symbolizing the promotion of the rule of law in an all-round way and the improvement of the socialist legal system with Chinese characteristics. At the same time, in the past decade of the new era, fundamental, comprehensive, and leading laws in important areas such as reform and opening up, economic development, national security, health, and public culture have been successively enacted. Basic, comprehensive, and leading laws in important areas such as ecological environment, education, and technology have been comprehensively and systematically revised. Breakthroughs have been made in legislation in emerging areas such as network data and biosafety, and legislation in foreign-related areas has been strengthened. The toolbox for foreign-related struggle has gradually become richer.

The improvement of the legal system requires not only filling gaps and weaknesses in legislative areas but also enhancing the systematic and coordinated nature of the legal system. Taking legislation in the field of ecological environment as an example, the 2018 constitutional amendment incorporated “ecological civilization” [“生态文明” shēngtài wénmíng] into the constitution. The National People’s Congress Standing Committee has successively formulated and revised more than 20 related laws, including the comprehensive revision of the Environmental Protection Law and the modification and improvement of laws related to pollution prevention and control, resource protection, and protection of important river basin areas. This has established a more coordinated and interconnected legal system for ecological environment protection. In addition, during the drafting of the Civil Code and the modification of the Criminal Law, relevant content related to environmental protection has been appropriately enriched and improved in response to practical needs. It promotes various legislations in a coordinated manner, enhances the consistency between laws, and better leverages the legal synergy of ecological environment protection.

Since the 18th National Congress of the Communist Party of China, the National People’s Congress and its Standing Committee have enacted 73 new laws, modified 244 laws, issued 10 legislative interpretations, and made 105 decisions on major issues. These weighty figures, accompanied by the socialist legal system with Chinese characteristics becoming more complete and perfect, are driving the systematic, holistic, coordinated, and timely enhancement of the legal system.

(3) A More Mature and Improved Legislative System and Mechanism

The National People’s Congress and its Standing Committee are advancing scientific legislation, democratic legislation, and legislation in accordance with the law. They are comprehensively advancing the legislative planning, revision, abolishment, interpretation, and compilation. They adhere to and grasp the law of legislation, give full play to the role of different forms of legislation in improving the socialist legal system with Chinese characteristics.

III. The legislative system and mechanism mature and improve

The National People’s Congress (NPC) and its Standing Committee have deepened the promotion of scientific legislation, democratic legislation, and lawful legislation. They have coordinated legislation, revision, abolition, interpretation, and compilation, adhering to and grasping legislative principles. Different forms of legislation play roles in improving the legal system of socialism with Chinese characteristics.

First, the leading role of the NPC in legislative work is more effective. The NPC and its Standing Committee fully play a leading role in various stages of legislation, handling various interests to ensure legal fairness, authority, and effectiveness. For example,

  • They formulate legislative plans, legislative work plans, and special legislative work plans, playing a coordinating role. 
  • They establish specialized task forces to better utilize the leading role of specialized committees and working committees in drafting fundamental, comprehensive, and important legal drafts. 
  • They improve systems such as legislative project solicitation, major interest adjustment consultation before legislation, and evaluation before the passage of legal drafts. 

The pattern of party leadership, NPC leadership, government support, and various participation in legislative work has further matured and taken shape.

Second, legislative forms are more diverse. They comprehensively use various legislative methods such as revision, abolition, interpretation, and compilation to play different legislative forms in improving the legal system of socialism with Chinese characteristics. In legislative practice, there are both “big players” like the Civil Code and “quick and agile” decisions such as the comprehensive ban on illegal trading and consumption of wild animals or the anti-food waste law. For legislative work involving major reforms, efforts are made to give full play to the leading and driving role of legislation. This is achieved by making timely authorization and reform decisions, bundling modifications to related laws, ensuring that major reforms are legally grounded.

Third, the legislative body is further expanded. In 2015, amendments to the Legislation Law granted local legislative power to prefecture-level cities and made clear provisions on the scope of local legislative authority. In the 2023 amendments to the Legislation Law, the formulation of regulations by the National Supervisory Commission, regulations by the Standing Committee of the Shanghai People’s Congress for Pudong New Area, and regulations for the Hainan Free Trade Port by the Standing Committee of the Hainan People’s Congress are incorporated into the Legislation Law for regulation. At the same time, the legislative authority of prefecture-level cities is expanded, and the subject of departmental rule-making is expanded.

Fourth, the legislative process vividly reflects the democratic requirements of the people throughout. The avenues and channels for the orderly participation of the people in legislation are continuously expanded. This ensures that the voices of the people are heard at every stage, from the determination of legislative projects to the drafting, deliberation, and passage of legal drafts. After the first public solicitation of opinions from society following the first review of legal drafts, it has become the norm for legal drafts to seek public opinions again after the second review. 继法律草案在一审之后向全社会公开征求意见之后，法律草案在二审之后再次公开征求意见已经成为常态。Since the 18th Party Congress, more than 230 legal drafts have been publicly solicited for opinions, with approximately 1.31 million people submitting more than 3.9 million opinions and suggestions. As of now, the NPC Standing Committee’s Legislative Affairs Commission has set up 31 grassroots legislative contact points and one legislative contact point. Through these contact points, the people have submitted more than 19,290 opinions and suggestions on 153 legal drafts and legislative work plans, and more than 3,500 opinions and suggestions have been adopted to varying degrees.

Law is the cornerstone of governance, and good laws are the premise of good governance. Establishing good laws in the world leads to good governance, and establishing good laws in a country leads to governance in that country. In the past decade, under the leadership of the Party Central Committee with Comrade Xi Jinping at its core, the Chinese people of all ethnic groups have composed a magnificent picture of realizing the great rejuvenation of the Chinese nation. They have written an epic chapter of comprehensively governing the country according to law. The socialist legal system with Chinese characteristics, centered on the Constitution and adapted to the modernization of the national governance system and governance capacity, has progressed and been continuously improved. Overall, various aspects of national and social life have laws to rely on, forming a stable and harmonious legal order in the profound background of societal transformation. The Constitution and laws have become powerful forces guiding, regulating, promoting, and ensuring the reform, opening up, socialist modernization construction, and national security. These are significant achievements and a new starting point for our continued progress.

This year marks the beginning of fully implementing the spirit of the 20th Party Congress and the first year of the 14th National People’s Congress and its Standing Committee carrying out their duties in accordance with the law. The next five years are a crucial period for the initial stage of comprehensively building a socialist modern country. The legislative tasks are daunting and heavy. Chairman Zhao Leji stated in his speech at the first meeting of the 14th NPC Standing Committee that efforts should be made to make the socialist legal system with Chinese characteristics more scientifically sound and unified. The legislative planning and compilation of the 14th NPC Standing Committee have been launched, and legislation projects are being widely solicited from various sectors. The focus will be on legislation in key areas, emerging areas, and foreign-related areas to improve the socialist legal system with the Constitution at its core. According to the 2023 legislative work plan of the NPC Standing Committee, this year, 17 legal cases for continued review and 18 legal cases for initial review will be arranged around eight aspects: adhering to and improving the system of people’s congresses, constructing a high-level socialist market economy system, implementing the strategy of rejuvenating the country through science and education, promoting cultural confidence and strengthening the nation, ensuring and improving people’s well-being, promoting green development, improving the social governance system, and perfecting the legal system for national security. There are also some projects for preparatory review, and if conditions are ripe, they may also be submitted for review.

In this new journey, we must adhere to the guidance of Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era, fully implement the spirit of the 20th Party Congress, deeply implement Xi Jinping’s legal thinking, and vigorously promote scientific legislation, democratic legislation, and lawful legislation.    We must continuously improve the socialist legal system with the Constitution at its core and better play the important role of the Constitution in governing the country. This will provide strong legal support for comprehensively building a socialist modern country on the track of the rule of law.  新征程上，我们要坚持以习近平新时代中国特色社会主义思想为指导，全面贯彻落实党的二十大精神，深入贯彻习近平法治思想，深入推进科学立法、民主立法、依法立法，不断完善以宪法为核心的中国特色社会主义法律体系，更好发挥宪法在治国理政中的重要作用，为在法治轨道上全面建设社会主义现代化国家提供有力法律支撑。

——————

十四届全国人大常委会履职学习专题讲座第三讲

更新日期： 2023-07-20

不断完善中国特色社会主义法律体系

以良法促进发展 保障善治

信春鹰

来源： 中国人大网 

2023年04月28日 15:37:23

委员长、各位副委员长、秘书长、各位委员：

中国特色社会主义法律体系是中国共产党领导人民在改革开放和建设现代化国家过程中的伟大创造，其历程和成就在世界立法史上前所未有。

党的十五大首次提出到2010年形成中国特色社会主义法律体系。十六大强调，要适应社会主义市场经济发展、社会全面进步和加入世贸组织的新形势，加强立法工作，提高立法质量，到2010年形成中国特色社会主义法律体系。党的十七大宣布中国特色社会主义法律体系基本形成，提出要坚持科学立法、民主立法，完善中国特色社会主义法律体系。十八大强调完善中国特色社会主义法律体系。十九大提出推进科学立法、民主立法、依法立法，以良法促进发展、保障善治。二十大提出完善以宪法为核心的中国特色社会主义法律体系，加强重点领域、新兴领域、涉外领域立法。统筹推进国内法治和涉外法治，以良法促进发展，保障善治。

一、中国特色社会主义法律体系的形成

2012年12月4日，在纪念现行宪法公布施行30周年大会上，习近平总书记指出：我们要以宪法为最高法律规范，继续完善以宪法为统帅的中国特色社会主义法律体系，把国家各项事业和各项工作纳入法制轨道，实行有法可依、有法必依、执法必严、违法必究，维护社会公平正义，实现国家和社会生活制度化、法制化。2022年12月19日，习近平总书记在《谱写新时代中国宪法实践新篇章——纪念现行宪法公布施行40周年》的重要文章中再次强调，“加快完善以宪法为核心的中国特色社会主义法律体系，不断增强法律规范体系的全面性、系统性、协调性”。

中国特色社会主义法律体系是建设社会主义法治国家的基础工程。中华人民共和国成立以来，特别是改革开放以来，在党中央集中统一领导下，全国人大及其常委会适应改革开放发展的需要，从无法可依的历史起点上起步，紧紧围绕党和国家工作大局，有计划、有重点、有步骤地推进法律制度建设，立法任务之重，克服的困难之多，解决的问题之复杂，史无前例。

从九届全国人大开始，全国人大常委会的立法工作就把到2010年形成中国特色社会主义法律体系作为立法工作政治任务，五年立法规划和年度立法计划都精心研究，每个立法项目都从建设法律体系的目标和结构中去考虑。九届全国人大及其常委会五年间共审议124件法律、法律解释和有关法律问题的决定草案，通过了其中的113件。十届全国人大及其常委会明确提出任期内“以基本形成中国特色社会主义法律体系为目标、以提高立法质量为重点”的立法工作思路，五年间共审议宪法修正案和其他法律案106件，通过了其中的100件。十一届全国人大及其常委会在提高立法质量的前提下，抓紧制定在法律体系中起支架作用的法律，及时修改与经济社会发展不相适应的法律规定，集中开展法律清理工作。五年间共审议法律、法律解释和有关法律问题的决定草案93件，通过86件。

2011年1月24日，十一届全国人大常委会召开会议，宣布中国特色社会主义法律体系已经形成。在这个历史节点上，我国有国家立法236件，行政法规690件，地方性法规8600件。法律体系形成的标准，一是涵盖社会生活各个方面的法律部门已经齐全；二是各法律部门中基本的、主要的法律已经制定；三是相应的行政法规和地方性法规比较完备；四是法律体系内部规范总体做到科学和谐统一。

在传统意义上，法律体系是指一个国家所有的法律，依照调整对象和调整方法的不同而对现行法律作出的分类。中国特色社会主义法律体系，承载着丰富的政治、法律和社会内涵。第一，中国特色社会主义法律体系是中国特色社会主义法律制度的载体。一个国家法律体系的状况，反映着这个国家政治、经济和社会制度的发展和完善状况。法律体系完备的国家，都是制度比较成熟的国家。法律体系的完备程度是现代国家的一项重要制度指标。第二，中国特色社会主义法律体系反映国家政治价值观，体现社会公平与正义的制度化安排，并通过发挥自身功能明确、保护、促进国家的政治目标和社会理想，从制度上法律上确保国家的政治价值取向和发展方向。第三，中国特色社会主义法律体系保障法律规范和谐统一。法律体系是由法律规范构成的，一个法律规范可能分别表现在不同的法律，或者不同层级的法律之中。法律体系的内部结构要求可以保证法的原则、目的与价值的一致性，法律规范的一致性。第四，中国特色社会主义法律体系是平衡不同领域法律发展的指引。通过对法律体系中不同法律部门的比较，可以发现制度建设的“短板”，从而可以有针对性地加强立法，适应社会全面进步的需求。

二、中国特色社会主义法律体系具有固根本、稳预期、利长远的重要作用

中国特色社会主义法律体系是中国特色社会主义政治制度的法律载体，通过立法保障宪法确定的中国共产党领导地位不动摇，保障宪法确定的人民民主专政的国体和人民代表大会制度的政体不动摇。

一是以宪法和法律的制度刚性固本强基，坚持和发展中国特色社会主义政治制度。宪法是国家的根本法，是治国安邦的总章程。1982年12月五届全国人民代表大会五次会议通过的现行宪法，以根本法形式明确了国家的根本任务：沿着中国特色社会主义道路，集中力量进行社会主义现代化建设。坚持社会主义道路，坚持人民民主专政，坚持中国共产党的领导，坚持马克思列宁主义、毛泽东思想四项基本原则写入宪法序言，明确了四项基本原则是全国人民共同奋斗的思想基础，是社会主义现代化建设的根本政治保证。宪法确立的政治制度、基本经济制度等一系列制度、原则和规则，为改革开放奠定了根本政治前提和制度基础。根据改革开放和社会主义现代化建设的实践和发展，在党中央领导下，全国人大于1988年、1993年、1999年、2004年、2018年先后5次对现行宪法部分内容作出重要修正，共通过了52条宪法修正案，修正案对于完善发展我国宪法制度，推进社会主义法治建设，提高党的依法治国能力发挥了重要作用。习近平总书记总结了我国的宪法制度建设的规律性：必须坚持中国共产党领导，必须坚持人民当家作主，必须坚持依宪治国、依宪执政，必须坚持宪法的国家根本法地位，必须坚持宪法实施与监督制度化法规化。现行宪法和五个宪法修正案，都是在中国特色社会主义事业发展的关键节点上党领导人民作出的重大政治抉择，是中国特色社会主义法治道路的成功实践。

多年来，特别是党的十八大以来，全国人大及其常委会以宪法为核心，加强重点领域立法，不断推动中国特色社会主义政治制度完善发展。不断完善国家机构的组织、职权、运行规则方面的法律，确立不同国家机关的体制、职责权限、运作方式、工作原则、议事程序，保障国家机关协调高效运转，依法履职。制定各类行政法，规范和保障行政机关依法行使职权，确保公民、法人和其他社会组织的合法权利得到充分保障，推动了适应现代化社会管理需要的法治政府建设。制定民族区域自治法，为维护和发展平等团结互助和谐的社会主义民族关系提供了法律保障。制定村民委员会组织法（试行）、城市居民委员会组织法，形成了中国特色社会主义基层民主制度。根据“一国两制”方针制定了香港特别行政区基本法、澳门特别行政区基本法，为香港、澳门的顺利回归和长期繁荣稳定提供了法律保障。党的十八大之后，贯彻总体国家安全观，制定国家安全法、反间谍法、反恐怖主义法、境外非政府组织境内活动管理法、网络安全法、国家情报法、香港特别行政区维护国家安全法等，为维护国家安全和核心利益提供有力的法治保障。

二是建立和完善社会主义市场经济法律制度，解放和发展社会生产力，推动经济社会持续健康发展。在我国实行社会主义市场经济既是思想不断解放的过程，也是制度不断创新和完善的过程。全国人大及其常委会围绕建立和完善社会主义市场经济体制加强立法工作，披荆斩棘，以法律手段推动生产关系同生产力、上层建筑同经济基础相适应，推动经济社会持续健康发展。

改革开放之初，建立市场经济法律制度成为当务之急。这个时期的关于建立社会主义市场经济法律体制的立法是破冰的航船，肩负着破旧立新的历史使命。在党中央领导下，从1979年到1982年，全国人大及其常委会通过经济类法律、法令有12个。有代表性的立法包括中外合资经营企业法、个人所得税法、经济合同法、外国企业所得税法、商标法等。六届全国人大及其常委会制定的37件法律中，有关经济方面的法律有22件，有关对外开放的法律有10件。制定民法通则是这一时期的一项重大立法成就，确立了我国民事法律的基本制度，也为社会主义市场经济体制确立构建了制度基础。七届全国人大及其常委会通过宪法修正案和59件法律，27个关于法律问题的决定，其中，有关经济方面的法律有21件。主要有全民所有制工业企业法、中外合作经营企业法、著作权法、外商投资企业和外国企业所得税法、税收征收管理法等一些对经济建设和改革开放具有重大影响的法律。八届全国人大及其常委会继续把加快经济立法作为重要任务，围绕市场经济体制的主要环节，努力构筑社会主义市场经济法律体系框架。五年间共通过法律85件，有关法律问题的决定33个。

九届全国人大及其常委会围绕“到2010年形成中国特色社会主义法律体系”的立法目标，进一步充实和完善有关社会主义市场经济的立法。制定了合同法、农村土地承包法，修改了专利法、商标法、著作权法等。

十届全国人大及其常委会以基本形成中国特色社会主义法律体系为目标，着力提高立法质量，进行了很多意义重大的立法实践。这期间制定的物权法，前前后后共审议了8次，确立了中国特色社会主义物权法律制度。制定的企业破产法、反垄断法等，确立了保护和促进市场主体公平竞争的法律制度。

十一届全国人大及其常委会在新的起点上继续加强和改进立法工作，把更多精力放到法律的修改完善上，放到推动法律配套法规的制定修改上，同时为适应经济社会发展需要制定一些新的法律，相继制定了社会保险法、循环经济促进法、企业国有资产法、农村土地承包经营纠纷调解仲裁法、侵权责任法、车船税法、涉外民事关系法律适用法等。

经过不懈努力，我国社会主义市场经济立法日臻完善。公司法和各种企业法，建立市场主体资格制度，确保企业都是市场经济中的平等竞争者，都必须按照通行的市场规则运行。物权法等法律，尊重和保护财产权，保护市场主体的财产权益。合同法等法律，维护合同自由，明确市场交易规则。反垄断法、反不正当竞争法等法律，保障国家对市场的适度干预。社会保险法等法律，完善社会保障制度，平衡社会利益。中国特色社会主义法律体系在法律制度上把社会主义与市场经济结合起来，推动市场经济在资源配置中起决定性作用和更好发挥政府的作用。

三是以立法形式确保改革决策和立法决策相统一，确保经济社会发展既生机勃勃又平稳有序。处理好改革开放和立法的关系，是当代中国一个重大的政治课题，也是摆在国家立法机关面前的重大法律课题。改革和法治目标是完全一致的，但表现方式不同。法治是立，改革是破。法治是定，改革是变。法治强调维护现行法律的权威和经济社会秩序的稳定，改革是突破体制机制的约束。

改革开放之初，我们的主要任务是逐步打破计划经济体制对生产力的束缚，建立充满生机与活力的社会主义市场经济。在制定和修改法律条件尚不成熟、改革举措需要先行先试的情况下，全国人大常委会按照法定程序作出授权决定，授权国务院和经济特区立法，为特定领域或者局部地区先行先试提供法律依据。1980年通过关于批准《广东省经济特区条例》的决议；1981年授权广东省、福建省人大及其常委会制定经济特区的各项单行经济法规的权力；1984年授权国务院改革工商税制发布有关税收条例草案试行，1985年授权国务院在经济体制改革和对外开放方面可以制定暂行的规定或者条例；1988年授权海南省人大及其常委会制定法规的权力，1992年、1994年、1996年分别授权深圳、厦门、汕头和珠海人大及其常委会和政府制定法规和规章的权力。这些授权决定以法律形式为改革开放先行先试提供了支持和法律保障。党的十八大以后，全国人大及其常委会努力处理好改革与法治的关系，在法治下推进改革，在改革中完善法治。2015年修改立法法，进一步明确授权规定，为授权立法提供了法律依据；进一步完善立法体制，明确立法权限，健全保证科学立法民主立法依法立法的机制和程序。

一个国家走什么样的法治道路是由这个国家的国情决定的。回顾中国特色社会主义法律体系形成和发展的历史进程，可以清楚看到，我们要建设的中国特色社会主义法治体系，本质上是中国特色社会主义制度的法律表现形式，是中国特色社会主义永葆本色的法治根基、创新实践的法治体现、兴旺发达的法治保障。

三、中国特色社会主义法律体系的部门和层次

法律体系的部门划分，从不同的角度有不同的划分方法。法学学术界曾经提出过若干不同的法律部门划分方法。现在的七大法律部门的划分，是立法机关综合研究各方面的意见，根据立法调整的对象和调整方法的不同，根据立法工作的实际情况和需要提出的。

宪法是法律体系的统帅和核心，具有最高法律地位。任何法律法规都不得同宪法相抵触。

1.宪法相关法部门。宪法相关法部门的特点是通过具体立法把宪法规定的国家政治制度具体化。目前宪法相关法方面的法律有49件，主要包括选举法、代表法、立法法、各国家机构组织法、监督法、民族区域自治法和香港、澳门特别行政区基本法、反分裂国家法，以及其他维护国家安全的立法、保障公民政治权利的立法，等等。今年3月，十四届全国人大一次会议修改立法法，突出党对立法工作的全面领导，完善立法的指导思想和原则。加强宪法实施和监督，明确合宪性审查要求，完善备案审查制度。完善有关授权决定的规定和全国人大及其常委会专属立法权规定。完善立法体制机制，包括扩大设区的市立法权限范围，完善部门规章制定主体，增加区域协同立法有关规定，明确立法技术规范、紧急立法程序等等。立法法的修改完善了国家立法制度的顶层设计，标志着我国立法从“有法可依”向“良法善治”的进步。这是宪法相关法领域的重要立法实践。

2.民商法部门。民法与商法是调整平等主体之间的财产关系和人身关系的法律规范的总称。有些国家实行民商分立，我国实行的是民商一体的体例。民法调整一般的民事关系，商法适用民法的一般精神和原则，具体的商事法律规定商事活动的行为规范，但不涉及民法中的人身非财产关系。我国相继制定了24件现行有效的民商法律，这些立法确立了调整财产关系的物权保护制度、侵权责任制度、合同制度、担保制度、知识产权制度、公司制度、企业制度、破产制度、票据、保险、证券制度以及调整人身关系的婚姻制度、收养制度、继承制度等。从调整的范围来看，民商法是调整范围最广泛的法律部门，民商事领域的法律尊重个人的独立、意志自由、权利平等、对自己的行为承担责任，因此被认为是市场经济的基础。我国改革开放以来成功地进行了从计划经济到市场经济的改革，民商事法律制度的逐步建立和完善起到了重要的作用。民法典是在改革开放四十多年民事法律不断完备的基础上，对婚姻法、继承法、民法通则、收养法、担保法、合同法、物权法、侵权责任法、民法总则加以编纂而成的。编纂民法典是对现行的民事法律规范进行编订纂修，有几层含义：一是对已经不适应现实情况的规定进行修改完善，二是针对经济社会生活中出现的新情况、新问题作出新规定。三是对不同时间、不同法律中涉及同一事项的规定进行清理，避免法律适用中的交叉和混乱。民法典的编纂为以后成熟法律领域的法典化提供了范本。

3.行政法部门。行政法是规范国家行政管理活动的法律规范的总称，是政府依法行政的法律保障。行政法部门的法律数量是七个部门法中最多的，目前有96件，包括一般行政法，如行政诉讼法、行政处罚法、行政复议法、行政许可法等法律，规定所有行政机关都必须遵守的普遍原则，也包括部门行政法，如行政管理某一方面的法律。行政法的立法宗旨，是在保障政府有效行使行政管理权的同时，保障公民、法人或者其他组织的合法权利不受行政机关及其工作人员的侵犯。我国的行政法通过确立政府与市场、政府与企业、政府与社会之间的关系，明确政府的职责权限和管理方式，确保政府依法全面履行职能，同时发挥不同社会组织和个人的主动性和积极性，创造生机勃勃的社会局面；通过系统地规范和约束行政权力，保障人民赋予的权力用来为人民谋利益。

4.经济法部门。经济法是国家对经济活动进行管理、调控的各种法律规范的总称，目前该部门中有83件法律。经济法的基本功能，一是国家对市场经济的适度干预，二是维护社会公平。所谓国家适度干预，是指在尊重市场经济主体自主权的前提下，为了克服市场经济的盲目性和局限性而进行的适度干预。干预行为必须合法，程序必须完备，经济活动主体必须享有法律明确规定的救济权。维护社会公平是指实体权利和资源配置必须公正，政府对经济活动的干预必须有法可依，政府调控权和经济主体之间的权利必须平衡，排除政府行为的任意性和选择性。我国经济法所确立的制度包括反不正当竞争制度、反垄断制度、市场监管制度、消费者权益保护制度、价格制度、商业银行制度、审计制度、投资制度、政府采购制度、产品质量安全保障制度等，目的是纠正市场经济的弊端，为市场经济的健康发展提供良好的法律环境。例如反垄断和反资本无序扩张的法律制度就是反垄断法和反不正当竞争法。近年来我国平台经济迅速发展，给反垄断和反资本无序扩张提出了新的课题。有的平台企业通过垄断控制了越来越多的资源，凭借掌握的大量数据和算法，从供需两端限制甚至排斥竞争对手，跨界渗透，野蛮生长，侵犯中小企业、个体工商户、小商小贩的权益，对消费者精准算计，赚取利润。监管部门针对突出问题运用反垄断法的相关规定对平台企业进行监管和处罚。市场经济是“看不见的手”，经济法就是“看得见的手”，是政府维护社会主义市场经济秩序的重要手段。

5.社会法部门。社会法是调整劳动关系、社会保障和社会福利关系以及弱势群体保护法律的总称，现行有效的相关法律有27件。根据中央加强社会建设的要求，十三届全国人大设立了社会建设委员会，进一步加强社会领域立法。社会法产生的基础是政府维护社会公平和公民基本人权的职责，它表现为对民法经济自由原则的修正，学术界将之称为“第三领域”，即第一领域为公法，第二领域为私法，第三领域为社会法。市场经济鼓励竞争，忽略人们之间经济条件、个人能力、资源占有、社会地位的差异，而社会法体现国家主动参与社会资源分配，通过政府的有限介入维护社会实质公平。我国社会法部门确立的基本制度包括：劳动基准制度、劳动合同制度、劳动安全制度、劳动报酬制度、社会保障制度、就业促进制度、社会保险制度等等。这些制度的目的在于通过国家义务，达成社会公正，进而促进社会和谐和全面进步。例如，在市场经济条件下，由于劳动关系双方事实上的不平等，劳动者的权利无法通过契约自由得到保障，因此必须由国家确定劳动基准和劳动合同的法定限度，保护劳动者权利。劳动合同法实施以来，在保护劳动者权利方面发挥了巨大的作用。现在也面临着新问题，随着平台经济成为重要的新经济形态，平台用工成为重要的新就业形态。平台经济就业人员工作时间长，劳动强度大，而且多为灵活就业，平台在劳动关系中处于优势地位，造成劳动者权利遭到侵犯而没有相应法律保护的情况。

6.刑法部门。刑法是有关犯罪、刑事责任与刑罚的法律规范的总称。刑法部门的法律有4件，虽然数量不多，但对于保障国家安全，保卫人民民主专政的国家政权安全，保护国家、集体和公民的财产，保护公民的人身权利和民主权利，维护社会秩序，具有重要意义。刑法的功能，一是惩罚犯罪，维护社会正义，二是规范国家刑罚权，罪刑法定。我国刑法规定了危害国家安全罪、危害公共安全罪、破坏社会主义市场经济秩序罪、侵犯公民人身权利民主权利罪、侵犯财产罪、妨害社会管理秩序罪、危害国防利益罪、贪污贿赂罪、渎职罪、军人违反职责罪等十大类犯罪，确立了罪刑法定、犯罪与刑罚相当、自首、正当防卫等制度，以及财产刑、自由刑和生命刑为主的刑罚制度。我国的刑事法律规范除了刑法以外，还有十一个修正案，总共有483个罪名。

7.诉讼与非诉讼程序法部门。诉讼与非诉讼程序法是关于解决社会纠纷的诉讼活动与非诉讼活动的法律规范的总称。我国先后制定刑事诉讼法、民事诉讼法、行政诉讼法等，构成了我国诉讼制度的有机整体。诉讼法的意义在于为司法权设定程序，防止司法权滥用，目的是为受到侵害的权利进行恢复和救济。司法是恢复正义和获得社会公正的最后渠道。由于诉讼法是程序法，因而其使命即在于保证上述六个实体法门类中权利和义务的最终实现，其价值独特而重大。程序法部门除了诉讼程序法之外，还有仲裁法，人民调解法、劳动争议调解仲裁法、农村土地承包经营纠纷调解仲裁法等非诉讼程序法。这些非诉讼程序法分别对应相应的纠纷解决方式。

中国特色社会主义法律体系是统一的，也是分层的。统一而又分层是中国特色社会主义法律体系的一个特点，这和其他国家完全不一样。所谓统一，就是我们国家只有一部宪法，一个国家立法机关，一个中央政府，国家权力在宪法和法律中有清楚明确的规定。另一方面，我国的法律体系又是分层的。宪法法律、行政法规、地方性法规，形成了法律规则的不同层次。我们国家幅员辽阔，各省、自治区、直辖市经济发展状况、人口规模以及所面临的情况差异很大，所以在制度设计上，地方依法享有立法权。根据立法法的规定，省、自治区、直辖市的人民代表大会及其常务委员会根据本行政区域的具体情况和实际需要，在不同宪法、法律、行政法规相抵触的前提下，可以制定地方性法规。设区的市的人民代表大会及其常务委员会根据本市的具体情况和实际需要，在不同宪法、法律、行政法规和本省、自治区的地方性法规相抵触的前提下，可以对城乡建设与管理、生态文明建设、历史文化保护、基层治理等方面的事项制定地方性法规。多年来，享有地方立法权的地方人大及其常委会结合本地实际情况，担当作为，紧紧扣住地方发展需要，回应群众对规则的诉求，发挥地方立法实施性、补充性、探索性特点，制定和修改了一大批地方性法规，为深入推进依法治国，推进治理方式转变和治理能力现代化发挥了重要作用。

一个政治、经济大国也必然是一个法律大国。从国家治理的角度看，法律制度的完备程度反映着执政党依法执政的能力，国家政权的领导力和凝聚力。历史经验证明，国家稳定、社会昌明是法律体系建构的前提。

四、新时代中国特色社会主义法律体系的完善

党的十八大以来，以习近平同志为核心的党中央从坚持和发展中国特色社会主义的战略高度定位法治、布局法治、厉行法治，加强对全面推进依法治国的顶层设计，把建设中国特色社会主义法治体系作为总揽全局、牵引各方的总抓手，推动法治中国建设发生了历史性、转折性、全局性变化，取得了重大理论创新、实践创新、制度创新成果。截止到2023年4月十四届全国人大常委会第二次会议闭幕，我国现行有效法律295件，行政法规599件，地方性法规13000余件，中国特色社会主义法律体系更加科学完备、统一权威，为全面建成小康社会、开启全面建设社会主义现代化国家新征程提供了坚实有力的法治保障。

（一）宪法实施制度体系不断完善

习近平总书记指出：宪法是国家的根本法，具有最高的法律效力。坚持依法治国首先要坚持依宪治国，坚持依法执政首先要坚持依宪执政，坚持宪法确定的中国共产党领导地位不动摇，坚持宪法确定的人民民主专政的国体和人民代表大会制度的政体不动摇。十三届全国人大一次会议通过宪法修正案，对现行宪法作出21条修改，内容非常丰富，包括确立习近平新时代中国特色社会主义思想为国家的指导思想、充实坚持和加强中国共产党全面领导的内容、完善依法治国和宪法实施举措、确立国家监察制度等，夯实了立国兴邦、长治久安的制度根基，使宪法始终保持同时代发展要求同频共振，发挥根本法的规范、引领、推动、保障作用。

宪法的生命在于实施，宪法的权威也在于实施。一是完善宪法相关法，保障宪法实施。制定监察法、监察官法、公职人员政务处分法，修改选举法、全国人大组织法、全国人大议事规则、地方组织法等，确保宪法规定的原则制度得到有效实施。二是加强宪法实施和监督，推进合宪性审查工作。十三届全国人大设立了宪法和法律委员会，其重要职责就是“推动宪法实施、开展宪法解释、推进合宪性审查、加强宪法监督、配合宪法宣传等”。2018年以来，宪法法律委在统一审议监察法、刑事诉讼法、人民法院组织法、人民检察院组织法、外商投资法等法律中，都进行了合宪性审查，这已经成为一项重要制度安排。三是通过备案审查制度维护国家法治统一。维护国家法治统一是宪法实施的一个重要方面。规范性文件备案审查制度就是维护国家法治统一的一项宪法性制度。十二届全国人大常委会将备案审查工作列入每年的工作要点和立法、监督工作计划，五年间共接收报送备案的规范性文件4778件。十三届全国人大常委会围绕贯彻“有件必备、有备必审、有错必纠”的总要求，扩大备案审查监督范围，共接收报送备案的规范性文件7261件。五年间，累计督促推动制定机关修改完善或者废止各类规范性文件约2.5万件。

今年3月修改的立法法，将近年来宪法实施和监督工作中的创新经验和有益做法以法律形式固定下来，明确法律案起草和审议过程中、备案审查工作中的合宪性审查要求，完善主动审查制度，明确专项审查制度、备案审查衔接联动机制、法律法规清理制度，健全保证宪法全面实施的制度体系，更好发挥宪法在治国理政中的重要作用。

（二）法律法规体系更加系统完备

全国人大常委会紧跟党中央重大决策部署，紧贴人民群众美好生活对法治建设的呼声期盼，紧扣国家治理体系和治理能力现代化提出的法律需求实际，有计划、有重点地推进重点领域、新兴领域、涉外领域立法，不断完善中国特色社会主义法律体系，以良法促进发展、保障善治，立法工作呈现任务重、覆盖广、节奏快、质量高的显著特征。

编纂民法典是十二届、十三届全国人大常委会接续奋斗的重大立法成果，作为新中国成立以来第一部以“法典”命名的法律，把我国多年来实行社会主义市场经济体制和加强社会主义法治建设取得的一系列重要制度成果确定下来，是推进全面依法治国、完善中国特色社会主义法律体系的重要标志性立法。与此同时，新时代这十年，改革开放、经济发展、国家安全、卫生健康、公共文化等重要领域的基础性、综合性、统领性法律相继制定出台，生态环境、教育科技等重要领域的法律作出全面系统修改，网络数据、生物安全等新兴领域立法取得突破，涉外领域立法得到加强，涉外斗争法律工具箱逐步充实丰富。

法律体系的完善不仅需要填补立法领域的空白点、薄弱点，也要增强法律体系的系统性和协同性。以生态环境领域立法为例，2018年宪法修正案将“生态文明”写入宪法，全国人大常委会相继制定修改了20余部相关法律，包括全面修订环境保护法，修改完善污染防治、资源保护以及重要流域区域生态保护相关法律，构建形成了更加协调、相互衔接的生态环境保护法律体系。此外，在民法典制定、刑法修改过程中，也根据实践需要相应充实完善环境保护相关内容，统筹推进各项立法，增强法律之间的一致性，更好发挥生态环境保护的法治合力。

党的十八大以来，全国人大及其常委会通过宪法修正案，新制定法律73件，修改法律244件次，作出立法解释10件，通过有关法律问题和重大问题的决定105件次。这些沉甸甸的数据，伴随着中国特色社会主义法律体系日益完备、日臻完善的脚步，也推动着法律体系的系统性、整体性、协同性、时效性进一步增强。

（三）立法体制机制更加成熟完善。

全国人大及其常委会深入推进科学立法、民主立法、依法立法，统筹立改废释纂，遵循和把握立法规律，发挥不同立法形式在完善中国特色社会主义法律体系中的作用。

一是人大在立法工作中的主导作用更加有效。全国人大及其常委会充分发挥在立法各个环节的主导作用，妥善处理各方利益，确保法治公平、权威、有效。比如，编制立法规划、立法工作计划、专项立法工作计划，发挥统筹协调作用；组建立法工作专班，更好发挥专门委员会、工作委员会牵头起草基础性、综合性、全局性重要法律草案的作用；完善立法项目征集、立法重大利益调整论证咨询、法律草案通过前评估等制度等。党委领导、人大主导、政府依托、各方参与的立法工作格局进一步成熟定型。

二是立法形式更加丰富。综合运用立改废释纂等多种立法方式，发挥不同立法形式在完善中国特色社会主义法律体系中的重要作用。立法实践中，既有民法典这样的“大块头”，也有全面禁止野生动物非法交易和食用的决定、反食品浪费法这样的“小快灵”。针对涉及重大改革的立法工作，着力发挥立法引领和推动作用，通过及时作出授权决定和改革决定、打包修改相关法律等方式，确保重大改革于法有据。

三是立法主体进一步扩展。2015年修改立法法，赋予设区的市地方立法权，并对地方立法权限范围作出明确规定。2023年修改立法法，将国家监察委员会制定监察法规、上海市人大及其常委会制定浦东新区法规、海南省人大及其常委会制定海南自由贸易港法规纳入立法法予以规范，同时扩大设区的市立法权限范围，扩大部门规章制定主体。

四是立法生动体现全过程人民民主要求。不断拓展人民群众有序参与立法的途径和渠道，确保从立法项目的确定到法律草案的起草、审议、通过等各个环节都能听到来自人民群众的声音，确保立法反映人民群众的共同意志和要求。继法律草案在一审之后向全社会公开征求意见之后，法律草案在二审之后再次公开征求意见已经成为常态。党的十八大以来，共有230多件次法律草案向社会公开征求意见，约131万人次提出390多万条意见建议。截至目前，全国人大常委会法工委共设立了31个基层立法联系点和1个立法联系点，人民群众通过立法联系点对153部法律草案、立法工作计划等提出19290余条意见建议，3500余条意见建议被不同程度采纳吸收。

法律是治国之重器，良法是善治之前提。立善法于天下，则天下治；立善法于一国，则一国治。新时代的十年，以习近平同志为核心的党中央带领全国各族人民谱写了实现中华民族伟大复兴的恢弘画卷，浓墨重彩书写了全面依法治国的宏伟篇章。以宪法为核心、与推进国家治理体系和治理能力现代化相适应的中国特色社会主义法律体系与时俱进、不断完善，国家和社会生活各方面总体上实现了有法可依，在深刻变革的社会大背景下形成了安定和谐的社会法律秩序，宪法法律成为引领、规范、推动和保障改革开放和社会主义现代化建设的强大法治力量。这是我们取得的重大成就，也是我们继续前进的新起点。

今年是全面贯彻落实党的二十大精神的开局之年，也是十四届全国人大及其常委会依法履职的第一年。未来五年是全面建设社会主义现代化国家开局起步的关键时期，立法任务艰巨繁重。赵乐际委员长在第十四届全国人大常委会第一次会议上的讲话指出，要推动中国特色社会主义法律体系更加科学完备、统一权威。十四届全国人大常委会立法规划编制工作已经启动，正在向各个方面广泛征集立法项目，将突出重点领域、新兴领域、涉外领域立法，完善以宪法为核心的中国特色社会主义法律体系。根据全国人大常委会2023年度立法工作计划，今年围绕坚持和完善人民代表大会制度、构建高水平社会主义市场经济体制、实施科教兴国战略、推进文化自信自强、保障和改善民生、推动绿色发展、完善社会治理体系、完善国家安全法治体系等8个方面，安排了17件继续审议的法律案和18件初次审议的法律案。还有一些预备审议项目，如条件成熟也可能提起审议。

新征程上，我们要坚持以习近平新时代中国特色社会主义思想为指导，全面贯彻落实党的二十大精神，深入贯彻习近平法治思想，深入推进科学立法、民主立法、依法立法，不断完善以宪法为核心的中国特色社会主义法律体系，更好发挥宪法在治国理政中的重要作用，为在法治轨道上全面建设社会主义现代化国家提供有力法律支撑。

(主讲人系全国人大宪法和法律委员会主任委员）

About 高大伟 David Cowhig

After retirement translated, with wife Jessie, Liao Yiwu's 2019 "Bullets and Opium", and have been studying things 格物致知. Worked 25 years as a US State Department Foreign Service Officer including ten years at US Embassy Beijing and US Consulate General Chengdu and four years as a China Analyst in the Bureau of Intelligence and Research. Before State I translated Japanese and Chinese scientific and technical books and articles into English freelance for six years. Before that I taught English at Tunghai University in Taiwan for three years. And before that I worked two summers on Norwegian farms, milking cows and feeding chickens.
This entry was posted in History 历史, Ideology 思想, Law 法律, Politics 政治 and tagged , , , , , , , , , , , , , . Bookmark the permalink.