2023 NPC Lectures: #4 Xi on the People’s Congress System

The topic of this lecture, fourth in a series of 2023 lectures delivered to the 170 members of the Standing Committee of China’s 3000-member strong unicameral national legislature the National People’s Congress (NPC), is the application of Xi Jinping Thought to the work of the NPC.

Translations in this series:

• 2023 NPC Lectures: #1 PRC Constitutional System and Practice
• 2023 NPC Lectures: #2 NPC Standing Committee Organization and Procedures
• 2023 NPC Lectures: #3 Improving the Socialist Legal System with Chinese Characteristics
• 2023 NPC Lectures: #4 Xi on the People’s Congress System
• 2023 NPC Lectures: #5 NPC Budget and State Asset Supervision
• 2023 NPC Lectures #6: Archaeology and Chinese Civilization Origins Research, Political Purposes
• 2023 Lecture to NPC #7: Xi Jinping Thought and Building China’s New Energy System

A month or two after these lectures were given they were edited and no doubt reviewed before they were published in canonical form on the website of the National People’s Congress. I’ve noticed that we don’t see transcripts of speeches by Chinese leaders, but rather summaries and paraphrases of the speech. Only later are they published. This reminds me of Party School Professor Zhang Xuebo’s 2017 article Observations on the History of Rule by Document 1982-2017 where he discusses the PRC being ruled by a hybrid law/Party documents, leader speech texts going through an intense discussion and review before later emerging in canonical form as holy writ. Perhaps that is the reason for often not publishing leader speeches at the time delivered verbatim in the press but only in paraphrase.

Highlights

Among the highlights are calls for ideological self-confidence despite criticisms of the Chinese political system by outsiders. Excerpts from the translation below:

1. Throughout history, there have been numerous examples worldwide where choosing the wrong path of political development led to social upheaval, national division, and the demise of people and government. Designing and developing a national political system must consider the organic unity of history and reality, theory and practice, form, and content. One cannot imagine suddenly transplanting a political system from another country onto one’s own. Copying and transplanting another country’s political system will not work; it will be incompatible with the local conditions and may even jeopardize the nation’s future and destiny. The reason why the socialist political system with Chinese characteristics works, has vitality, and is effective is because it has grown from the social soil of China.
2. The facts fully demonstrate that Chinese socialist democratic politics has formidable vitality, and the development path and political system of socialism with Chinese characteristics are the correct path that conforms to the conditions of China, ensuring that the people are the masters of the country. As the General Secretary said, “In terms of the political system model, we must firmly hold onto our principles and not waver, no matter which way the wind blows from the east, west, south, or north.” “The Chinese people should have this confidence, and every Chinese person should have this confidence.” 
3. The General Secretary systematically expounded the Party’s position, ideology, and basic viewpoints on democracy, clarifying myths and revealing the true nature of the Party’s “democratic view” and the inherent logic of the operation of China’s political system. It is a counterattack, rejection, and qualitative transcendence of Western-style democracy, demonstrating the Party’s leadership and the people’s unwavering confidence and determination to follow the socialist political development path of China with Chinese characteristics and develop socialist democratic politics.
4. The General Secretary pointed out that the world is undergoing unprecedented changes not seen in a century, and that institutional competition is an important aspect of the competition in comprehensive national strength. Institutional advantage is a crucial advantage for a country to gain strategic initiative; stability in the system ensures stability in the country, and strength in the system leads to a strong nation. In the new era and on the new journey, we must unwaveringly uphold and advance the system of the people’s congresses, keep pace with the times, ensure the comprehensive implementation and effective operation of this system, fully leverage the advantages and efficacy of the fundamental political system of the country, rely on the power of the system to resist risks and challenges, and unite wisdom and strength from all its aspects so as to promote the construction of a strong country and serve China’s national rejuvenation.

A Chinese critique of whole process democracy: On Whole Process Democracy

Numbered Exhortations

As has become even more common under Xi, there are a number of numbered quasi-religious moral exhortations (the Party like a religion is the ultimate source or keeper of moral values) among them better-known and lesser-known ones:

• “The Four Self-confidences” sige zixin  四個自信
• Four Things to Look For and the Four Things to Look For Even More” “四个要看，四个更要看”
• “Eight Whethers” “八个能否”
• 三个有效保证 “The Three Effective Guarantees”
• “Six Must Upholds”  “六个必须坚持”

In a few passages that seemed especially interesting I added the Chinese language text for the benefit of the sinoliterate. Sino-illiterates 中文文盲 will need to either stick to my translation or resort to the wisdom of Wiser Ones.

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Lecture Series on the Work of the 14th National People’s Congress Standing Committee – Fourth Lecture

Update Date: August 2, 2023

In-depth Study and Implementation of General Secretary Xi Jinping’s Important Thoughts on Upholding and Improving the People’s Congress System

十四届全国人大常委会履职学习专题讲座第四讲

更新日期： 2023-08-02

深入学习贯彻习近平总书记关于坚持和完善人民代表大会制度的重要思想

宋 锐

By Song Rui, a member of the Party Group of the NPC Standing Committee and Director of the Office of the Secretariat of the NPC Standing Committee.

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

Chairman, Vice Chairmen, Secretary-General, and fellow Members:

Since the 18th National Congress of the Party, the Party Central Committee, with Comrade Xi Jinping at its core, has attached great importance to and comprehensively strengthened the Party’s leadership over the work of the People’s Congress. This has led to historic achievements in the People’s Congress system, making it more mature and well-established. General Secretary Xi Jinping has put forward a series of new ideas and requirements regarding socialist democratic politics, the People’s Congress system, and the work of the People’s Congress. This has formed his important thoughts on upholding and improving the People’s Congress system, providing guidance and fundamental principles for adhering to, improving, and effectively running the People’s Congress system in the new era.

General Secretary Xi Jinping’s important thoughts on upholding and improving the People’s Congress system constitute a comprehensive, systematic, scientific, and open theoretical system. The origins of this important thought can be traced to key speeches and instructions, including:

• The speech commemorating the 30th anniversary of the promulgation and implementation of the current constitution in 2012, 
• The speech at the celebration of the 60th anniversary of the National People’s Congress in 2014, the speech at the Central People’s Congress Work Conference in 2021,
• The signed article commemorating the 40th anniversary of the current constitution in 2022, relevant speeches at central meetings, and
• Important instructions on the constitution, legislative work, and the establishment of standing committees by local People’s Congresses over the past 40 years. 
• Additionally, it encompasses the contents of the reports from the 18th, 19th, and 20th National Congresses of the Party, as well as
• Various central committee documents related to People’s Congress work since the 18th National Congress.

In terms of content, General Secretary Xi Jinping’s important thoughts cover three main aspects: the level of road and direction, including

• The important discourse and requirements for political development, 
• The whole-process people’s democracy, and the overall rule of law; the level of the People’s Congress system, including the nature, status, characteristics, advantages, efficacy, and principles of the People’s Congress system; and 
• The level of People’s Congress work, including the deployment and requirements for the exercise of the People’s Congress powers, the conduct of work, and the strengthening of self-construction.

Now, I will report on some of our understanding and experiences in studying and implementing these important thoughts from these three aspects.

I. In-depth study and comprehension of General Secretary Xi Jinping’s important discourse on the political development path and the whole-process people’s democracy, maintaining a firm and clear stance on major issues concerning the future and destiny of the Party and the country.

(1) Upholding the correct path of political development is a major issue that concerns the fundamental and overall situation. General Secretary Xi Jinping pointed out, “The thinking that guides the planning and advancement of China’s socialist democratic political construction plays a fundamental, overall, and long-term role in the country’s political life.” 

Throughout history, there have been numerous examples worldwide where choosing the wrong path of political development led to social upheaval, national division, and the demise of people and government. Designing and developing a national political system must consider the organic unity of history and reality, theory and practice, form, and content. One cannot imagine suddenly transplanting a political system from another country onto one’s own. Copying and transplanting another country’s political system will not work; it will be incompatible with the local conditions and may even jeopardize the nation’s future and destiny. The reason why the socialist political system with Chinese characteristics works, has vitality, and is effective is because it has grown from the social soil of China. 古今中外，由于政治发展道路选择错误而导致社会动荡、国家分裂、人亡政息的例子比比皆是。设计和发展国家政治制度，必须注重历史和现实、理论和实践、形式和内容有机统一，不能想象突然就搬来一座政治制度上的“飞来峰”。照抄照搬他国的政治制度行不通，会水土不服，会画虎不成反类犬，甚至会把国家前途命运葬送掉。中国特色社会主义政治制度之所以行得通、有生命力、有效率，就是因为是从中国的社会土壤中生长起来的。

The facts fully demonstrate that Chinese socialist democratic politics has formidable vitality, and the development path and political system of socialism with Chinese characteristics are the correct path that conforms to the conditions of China, ensuring that the people are the masters of the country. As the General Secretary said, “In terms of the political system model, we must firmly hold onto our principles and not waver, no matter which way the wind blows from the east, west, south, or north.”

“The Chinese people should have this confidence, and every Chinese person should have this confidence.” As the political organ under the leadership of the Party, the People’s Congress must prioritize political considerations. It must take the lead in firmly adhering to the “Four Self-Confidences” and resolutely follow the path of the socialist political development of China with Chinese characteristics. Regarding the so-called “constitutionalism,” multi-party rotation in power, and the “separation of powers” in the West, we must be highly vigilant and firmly resist; we must not fall into their traps. [Note: “The Four Self-confidences” sige zixin  四個自信“confident in our chosen path, confident in our guiding theories, confident in our political system, and confident in our culture.”  End note.]

(2) Democracy is a common value of all humanity and an important principle that the Communist Party of China and the Chinese people have consistently adhered to. General Secretary Xi Jinping has clearly outlined the “Eight Whethers” “八个能否” criteria for assessing whether a country’s political system is democratic and effective. The evaluation of whether a country’s political system is democratic and effective mainly depends upon:

1. Whether the country’s leadership can orderly and legally transfer power, 
2. Whether all people can manage state and social affairs, economic and cultural matters according to the law, 
3. Whether the people can express their interests freely,
4. Whether all aspects of society can effectively participate in national political life, 
5. Whether national decisions can be made scientifically and democratically,
6. Whether various talents can enter the national leadership and management system through fair competition, and 
7. Whether the ruling party can effectively lead state affairs in accordance with the constitution and laws, and 
8. Whether the exercise of power can be effectively restricted and supervised by the people. 

The formulation of the “Eight Whethers” criteria is an original theoretical contribution to the construction of China’s socialist democratic politics and the development and progress of human democracy. By comparing and contrasting with these criteria, we can clearly see that China has made decisive progress in addressing these issues, fully demonstrating the superiority of China’s socialist political development path and political system compared to Western-style democracy.

The General Secretary pointed out that democracy is not a decoration or ornament; it is not used for display but to solve the problems that people need to address. Hence, he put forward the “Four Things to Look For and the Four Things to Look For Even More” “四个要看，四个更要看” standards whether a country is democratic or not depends upon whether the people have truly become masters in their own house.

1. We should look to see whether the people have the right to vote, but even more important is to look at whether they have broad rights to participate in society.  
2. We should look to see what verbal promises were made during the election process but even more important is to see how many of those promises were fulfilled after the election.
3. We should look to see what political procedures and rules are stipulated by the system and laws, and even more, see whether these systems and laws are genuinely enforced. 
4. We should look to see whether the rules and procedures for exercising power are democratic and, even more, see whether power is genuinely supervised and constrained by the people. 

The “Four Things to Look For and the Four Things to Look For Even More”   complement and develop the “Eight Whethers” criteria. Through practice and  comparison, we can clearly see the reality and effectiveness of Chinese democracy and the limitations and hypocrisy of Western-style democracy.

The Chinese Communist Party has always held high the banner of People’s Democracy. The General Secretary elaborated on the Party’s Five Basic Viewpoints on Democracy: 

1. People’s democracy is the lifeblood of socialism. Without democracy, there is no socialism, no modernization of socialism, and no great rejuvenation of the Chinese nation. 
2. The essence and core of socialist democratic politics are the people being masters of the country. The development of socialist democratic politics is about reflecting the will of the people, safeguarding the rights of the people, and stimulating the creative vitality of the people by ensuring that the people are masters of the country through the institutional system. 
3. The development path of socialist democratic politics with Chinese characteristics is the correct path that conforms to China’s conditions and ensures that the people are masters of the country. It is the inevitable result of the historical logic, theoretical logic, and practical logic of the long-term struggle of the Chinese people since modern times. It is a necessary requirement for adhering to the Party’s essential nature and practicing the fundamental purpose of the Party. 
4. The people exercise their rights through elections and voting, and comprehensive consultations among various aspects of the people take place before major decisions. These are the two important forms of socialist democracy in China, constituting the institutional characteristics and advantages of socialist democratic politics in China.
5. The key to developing socialist democratic politics is to give full play to the characteristics and advantages of China’s socialist democratic politics, continuously promote the institutionalization, standardization, and proceduralization of socialist democratic politics, and provide more perfect institutional guarantees for the prosperity and stability of the Party and the state.

The General Secretary systematically expounded the Party’s position, ideology, and basic viewpoints on democracy, clarifying myths and revealing the true nature of the Party’s “democratic view” and the inherent logic of the operation of China’s political system. It is a counterattack, rejection, and qualitative transcendence of Western-style democracy, demonstrating the Party’s leadership and the people’s unwavering confidence and determination to follow the socialist political development path of China with Chinese characteristics and develop socialist democratic politics.

(3) Creatively putting forward the significant concept of whole-process people’s democracy. Whole-process people’s democracy is a great creation by the Communist Party of China, led by unity and guiding the Chinese people in pursuing, developing, and realizing democracy. It is a major achievement in the theoretical innovation, institutional innovation, and practical innovation of socialist democracy, promoted by the Party Central Committee with Comrade Xi Jinping at its core. The introduction of this significant concept is closely related to the work of the National People’s Congress (NPC). 

In November 2019, during an inspection of the grassroots legislative contact point of the NPC Standing Committee’s Legal Work Committee in Hongqiao Street, Changning District, Shanghai, General Secretary Xi Jinping pointed out, “We are taking a path of socialist political development with Chinese characteristics, and people’s democracy is a form of whole-process democracy.” 

At the Central People’s Congress Work Conference in October 2021, General Secretary Xi Jinping systematically elaborated on the significant concept of whole-process people’s democracy for the first time. He emphasized that China’s whole-process people’s democracy not only has a complete institutional process but also involves comprehensive participation in practice. 

All the people exercise democratic rights through lawful democratic elections, consultations, decision-making, management, and supervision. They manage state affairs, economic and cultural undertakings through various means and forms, realizing a unified process of democracy and outcomes, procedural and substantive democracy, direct and indirect democracy, and the unity of people’s democracy and the will of the state. It is a democracy that covers the entire process, all aspects, and all dimensions, making it the broadest, most authentic, and most effective form of socialist democracy. The report to the 20th National Congress of the Party proposed that whole-process people’s democracy is the essential attribute of socialist democratic politics and the essential requirement for Chinese-style modernization.

General Secretary Xi Jinping pointed out, “The system of the People’s Congress is an important institutional framework for realizing China’s whole-process people’s democracy.” This represents a new positioning and new requirements for the system of the People’s Congresses, as well as a new topic and task for adhering to, improving, and operating the system of the People’s Congress in the new era. In my understanding, the role of an important institutional framework is reflected in the fact that the system of the People’s Congress, as the fundamental political system of the country, is an important way for the Chinese people to be masters of the country and the highest form of realization. The operation of the system of the People’s Congress covers various aspects such as democratic elections, democratic consultations, democratic decision-making, democratic management, and democratic supervision, making it a crucial practical platform for whole-process people’s democracy. The People’s Congress formulates and amends the constitution and laws, supervises the implementation of the constitution and laws, providing solid legal guarantees for whole-process people’s democracy.

General Secretary Xi Jinping has made clear requirements for the People’s Congress in practicing and developing whole-process people’s democracy: 

1. Under the leadership of the Party, continuously expand orderly political participation of the people, strengthen the rule of law, protection of human rights, and ensure that the people enjoy extensive rights and freedoms in accordance with the law. 
2. Ensure that the people exercise their election rights according to the law, elect representatives through democratic elections, and ensure that the people’s rights to information, participation, expression, and supervision are implemented in all aspects and links of the work of the People’s Congress, ensuring that the voices of the people are heard in every link of decision-making, execution, and supervision of the Party and the state. 
3. Improve the People’s Congress’s platforms and carriers for expressing democracy and public opinion, perfect the working mechanisms for absorbing public opinion and gathering collective wisdom, promote People’s Congress consultations and legislative consultations, and unify various social opinions and public sentiments into the fundamental interests of the broadest people. 
4. Strengthen research and propaganda on socialist democracy with Chinese characteristics and the system of the People’s Congress, clarify the characteristics and advantages of China’s political system, and tell the story of Chinese democracy well.

II. Thoroughly study and implement General Secretary Xi Jinping’s discourse on the system of the People’s Congress, persistently uphold, improve, and operate the system of the People’s Congress well in the new era.

General Secretary Xi Jinping’s important thoughts on upholding and improving the system of the People’s Congress, as well as his discourse on the system of the People’s Congress in the new era, expand and deepen the scientific connotation, essential characteristics, and practical requirements of the system of the People’s Congress. It marks a new height in our Party’s understanding of the laws governing the development of socialist democratic politics and the strengthening of the state power system.

(1) Deeply manifests the historical logic, theoretical logic, and practical logic of implementing the system of the People’s Congress in China. General Secretary Xi Jinping pointed out, “The implementation of the People’s Congress system in China is a great creation by the Chinese people in the history of human political systems, a basic conclusion drawn from the profound lessons of China’s political life since modern times, and a historical result of more than a hundred years of vigorous transformation and development in Chinese society. It is an inevitable choice for the Chinese people to rise and become masters of their own destiny.” 

This important discourse fully reflects the twists and turns, as well as the hardships, in China’s correct political development path since modern times, revealing profoundly that the implementation of the system of the People’s Congress is a historical choice and the people’s choice.

General Secretary Xi Jinping stated,

• “The system of the People’s Congress, which is implemented in China, is a good system that conforms to China’s national conditions and realities, reflects the socialist nature of the state, ensures that the people are the masters of the country, and guarantees the realization of the great rejuvenation of the Chinese nation. It is a great creation by the Party, leading the people, in the history of human political systems. It is a brand-new political system of significant importance in the political development history of our country and even the world.”
• “In the 60-plus years, especially in the more than 40 years of reform and opening up, the system of the People’s Congress has provided important institutional guarantees for the Party to lead the people in creating miracles of rapid economic development and long-term social stability.” 

By evaluating the system of the People’s Congress with terms like “good system,” “great creation,” “brand-new political system,” and “important institutional guarantee,” it fully illustrates the significant status and profound significance of this system in China’s national governance system and in the history of political development at home and abroad. We must cherish and uphold over the long term the fundamental political system that our Party has painstakingly established, which has been tested by long-term practice,  continually improve it, and comprehensively implement it.

(II)  Characterizes the remarkable advantages and tremendous effectiveness of the system of the People’s Congress with the term “The Three Effective Guarantees.” “三个有效保证” General Secretary Xi Jinping stated at the Central People’s Congress Work Conference: The system of the People’s Congress, under the leadership of the Communist Party of China, 

• Upholds the basic principles of Marxist state theory, adapts itself to the national system of people’s democratic dictatorship; and 
• Effectively guarantees the country’s advancement along the socialist path;
• Insists that all state power belongs to the people, maximally ensuring that the people are the masters of the country, unifying the  leadership of the Party, the people’s mastery, and governance according to law.

This effectively ensuring that the country’s governance breaks free from historical cycles of chaos and prosperity; it correctly handles a series of major political relationships related to the country’s future and destiny, achieves the unified and efficient organization of the state, maintains national unity and ethnic solidarity, and effectively ensures that national political life is both dynamic and orderly. The “The Three Effective Guarantees” succinctly characterize the essential nature and advantageous effects of the system of the People’s Congress, fully illustrating the supportive role of this system in the national governance system and governance capacity.

(III) Clearly defines the major principles for upholding, improving, and operating the system of the People’s Congress with the term “Six Must Upholds”  “六个必须坚持”   The “Six Must Upholds” proposed by General Secretary Xi Jinping at the Central People’s Congress Work Conference have rich connotations, serving as both experiential summaries and major principles that must be firmly grasped and consistently followed.

1. Must uphold the leadership of the Communist Party of China. Adhere to the core role of the Party in overall coordination, resolutely uphold the authority and centralized unified leadership of the Party Central Committee, ensure the comprehensive implementation and effective execution of the Party’s theory, line, principles, and policies in national work. Strengthen and improve the Party’s leadership, be adept at making the Party’s propositions become the will of the state through legal procedures, ensure that candidates recommended by the Party organization become the leading personnel of state organs through legal procedures, and ensure that the Party exercises leadership over the state and society through state organs, maintaining the authority of the Party and the state, and maintaining the unity of the entire Party and the entire nation.
2. Must uphold the institutional system to ensure the people are the masters of the country. Must uphold the centrality of the people, insist that all state power belongs to the people, support and ensure that the people exercise state power through the People’s Congress, improve the democratic system, enrich democratic forms, broaden democratic channels, ensure the people’s equal participation and equal development rights, develop a more extensive, fuller, and sounder whole-process people’s democracy.
3. Must uphold the comprehensive governance according to law. Adhere to the path of socialist rule of law with Chinese characteristics, build the system of socialist rule of law with Chinese characteristics, construct a socialist rule of law state, promote various undertakings and work in accordance with the Constitution and laws, safeguard social fairness and justice, respect and protect human rights, realize the legalization of all state work. The system of the People’s Congress is an important institutional platform for comprehensive governance according to law, and the People’s Congress should exercise its legislative, supervisory, and other powers in accordance with laws and procedures, playing a good role in the comprehensive governance according to law.
4. Must uphold democratic centralism. Adhere to the unified exercise of state power by the people through the People’s Congress, with people’s congresses at all levels elected through democratic elections, being responsible to the people and subject to people’s supervision. Various state organs such as administrative, supervisory, judicial, and procuratorial organs at all levels are formed by people’s congresses, responsible to people’s congresses, and subject to the supervision of people’s congresses. The reasonable division of powers of decision-making, execution, and supervision is both coordinated and coordinated, ensuring that state organs exercise their powers and perform their duties in accordance with statutory powers and procedures.
5. Must uphold the political development path of socialism with Chinese characteristics. Adhere to the organic unity of the leadership of the Party, the people’s mastery, and governance according to law, with the core being to adhere to the Party’s leadership. The system of the People’s Congress is the fundamental political system arrangement that ensures the Party’s effective governance of the country by leading the people according to law. We can draw on beneficial achievements of human political civilization but must not copy Western political system models. The major conclusion that the system of the People’s Congress is a fundamental political system arrangement featuring the “organic unity of the three” is the most concentrated, comprehensive, and important summary of the nature, status, and role of the system of the People’s Congress. The operation of the People’s Congress, all its work, can find direction and follow it from the “organic unity of the three.”
6. Must uphold the modernization of the national governance system and governance capacity. The system of the People’s Congress is an important part of the socialist system with Chinese characteristics and an important part of the national governance system. It is necessary to adhere to and improve the system of the People’s Congress, continuously promote the institutionalization, standardization, and proceduralization of socialist democratic politics, and better transform institutional advantages into governance effectiveness within the whole process.

The General Secretary pointed out that the world is undergoing unprecedented changes not seen in a century, and that institutional competition is an important aspect of the competition in comprehensive national strength. Institutional advantage is a crucial advantage for a country to gain strategic initiative; stability in the system ensures stability in the country, and strength in the system leads to a strong nation. In the new era and on the new journey, we must unwaveringly uphold and advance the system of the people’s congresses, keep pace with the times, ensure the comprehensive implementation and effective operation of this system, fully leverage the advantages and efficacy of the fundamental political system of the country, rely on the power of the system to resist risks and challenges, and unite wisdom and strength from all aspects to promote the construction of a strong country and national rejuvenation.

III.  Deeply study and implement the deployment requirements of General Secretary Xi Jinping on strengthening and improving the work of the people’s congresses, and strive to create a new situation in the work of the people’s congresses in the new era.

The General Secretary has provided many instructions and requirements on the work of the people’s congresses, especially outlining Six Key Tasks at the Central People’s Congress Working Conference. It is necessary to earnestly study and implement the deployment requirements of the General Secretary and the Party Central Committee, adhere to the principles of summarizing, inheriting, improving, and elevating, carry forward past achievements, uphold the right path while innovating, perform duties in accordance with the law, and comprehensively improve the quality and level of the work of the people’s congresses.

The first task is to comprehensively implement the Constitution to uphold the authority and dignity of the Constitution. Since the 18th National Congress of the Party, with Comrade Xi Jinping as the core, the Party Central Committee has placed the Constitution and its implementation in a prominent position in the governance of the country. The General Secretary emphasized that the Constitution is the fundamental law of the country, the general program for governing the country, and the concentrated expression of the will of the Party and the people. It holds the highest legal status, authority, and efficacy; to uphold the rule of law, it is necessary to uphold the rule of the Constitution. The comprehensive implementation of the Constitution is the primary task and fundamental work of comprehensively governing the country according to law and building a socialist rule of law country.

The General Secretary has personally led and promoted a significant amount of work in the implementation of the Constitution: the fifth amendment to the current Constitution, improvement of related legal systems, implementation of the pardon system stipulated by the Constitution, and the establishment of laws such as the Heroes and Martyrs Protection Law and the National Anthem Law. The implementation of constitutional oaths and constitutional interpretation mechanisms has been carried out. In line with the decisions of the Party Central Committee, the National People’s Congress and its Standing Committee have established and improved the legal system and enforcement mechanisms for safeguarding national security in the Hong Kong Special Administrative Region, enacted the Hong Kong National Security Law, and improved the electoral system in Hong Kong, providing a solid legal guarantee for maintaining the constitutional order of the Special Administrative Region and ensuring the stability and long-term implementation of the principle of “one country, two systems.” Legislation related to Hong Kong by the National People’s Congress is a fulfillment of the responsibilities granted by the Constitution and the Basic Law and should be viewed from the perspective of implementing the Constitution.

In December of last year, on the occasion of the 40th anniversary of the promulgation and implementation of the current Constitution, General Secretary Xi Jinping published an important article, comprehensively reviewing the historical achievements of China’s constitutional system construction and implementation, summarizing the regular understanding of China’s constitutional system construction, and proposing the overall requirements and key tasks for the comprehensive implementation of the Constitution in the new era. This includes: strengthening the comprehensive leadership of the Party in constitutional work, giving full play to the core role of the Constitution in legislation, improving the institutional system to ensure the comprehensive implementation of the Constitution, promoting the standardization and proceduralization of constitutional supervision, enhancing the capacity and quality of constitutional review and filing, implementing the constitutional interpretation procedure mechanism, and strengthening constitutional theoretical research and education. We must deeply study and comprehend these requirements, strengthen our constitutional consciousness, fulfill the mission of the Constitution, and work hard to write a new chapter in the practice of the Constitution in China in the new era.

The second key task is to accelerate the improvement of the socialist legal system with Chinese characteristics to promote development and ensure good governance. The General Secretary attaches great importance to legislative work, making important statements and instructions on multiple occasions, personally researching and promoting major legislation. The General Secretary’s requirements for legislation mainly focus on the following aspects.

First, strengthen the centralized and unified leadership of the Party in legislative work. It is emphasized to strengthen the leadership of the Party in legislative work, improve the decision-making procedures for major issues in legislative work, report to the Party Central Committee for discussion and decision on legislation involving major institutional and policy adjustments. The Party Central Committee proposes amendments to the Constitution to the National People’s Congress in accordance with the procedures specified in the Constitution for constitutional amendments. Major issues related to the formulation and amendment of laws are reported by the Party Committee of the Standing Committee of the National People’s Congress to the Party Central Committee. In 2016, the Party Central Committee issued opinions on strengthening the Party’s leadership in legislative work. The Standing Committee of the Central Political Bureau discusses major legislative matters every year. After the 19th National Congress of the Party, the Party Central Committee established the Comprehensive Law-Based Governance Committee to improve the system and working mechanism of the Party’s leadership in the comprehensive law-based governance, and strengthen the Party Central Committee’s leadership in legislative work.

Second, play the guiding and driving role of legislation. The General Secretary pointed out that comprehensive law-based governance must first have laws to rely on, adhere to the priority of legislation, and play the guiding and driving role of legislation. The General Secretary metaphorically likened reform and the rule of law to “the two wings of a bird and the two wheels of a car,” emphasizing the need to better integrate decision-making on reform and development with decision-making on legislation. This involves deepening reform and improving the rule of law through legislation, ensuring that various fields of reform and innovation are supported by a more perfect legal framework, and ensuring that the development of the country and major reforms are based on the rule of law.

Third,  focus on improving the quality of legislation. The General Secretary pointed out that the expectations of the people for legislation are no longer about whether it exists or not, but about whether it is good, effective, and able to solve practical problems. Not all laws can govern a country, and not all laws can govern a country well. The emphasis on the rule of law requires an improvement in the quality of legislation. The General Secretary stressed, “Development needs high-quality legislation, and legislation also needs high quality. To ensure and promote sustained and healthy economic development through high-quality legislation.” Addressing the tendency toward departmentalization and the phenomenon of power struggles and scapegoating in legislative work, the General Secretary emphasized, “All relevant parties should view legislative work from the perspective of the overall situation of the Party and the country, not be confined to their own so-called interests, and not interfere with legislative work because of this. We must understand that even if the overall interests of the country and the people are small, they are big, and the local interests of departments and industries are small, they are small.”

Fourth,  clarify the focus areas and main tasks of legislation. General Secretary Xi Jinping has proposed strengthening legislation in key areas, emerging fields, and areas involving foreign affairs. It is essential to establish a legal system that urgently addresses the needs of national governance, meets the increasing aspirations of the people for a better life, and safeguards the legal system necessary for national security. Faced with the accelerating evolution of a global situation unseen in a century and the increasingly severe and complex international environment, General Secretary Xi emphasizes the need to coordinate the development of domestic and foreign legal systems, integrate development and security, and promote the construction of a legal system applicable beyond China’s borders. This approach aims to effectively respond to challenges, prevent risks, and safeguard national sovereignty, security, and development interests.

Fifth,  leverage the leading role of the National People’s Congress (NPC) and its Standing Committee in legislative work. General Secretary Xi calls for the improvement of the pattern of party leadership, NPC dominance, government support, and multi-party participation in legislative work. It is essential to optimize the allocation of legislative powers, empower the NPC and its Standing Committee to play a leading role in legislative work, enhance the mechanisms for legislation drafting, argumentation, coordination, and deliberation, and improve the voting procedures for legal drafts. In practice, the leading role of the NPC is mainly reflected in maintaining leadership under the party, formulating legislative plans and tasks, leading the drafting of comprehensive and fundamental laws by NPC specialized committees and working committees, intervening early in laws drafted by other departments, and ensuring effective coordination to prevent the legalization of departmental interests and local protectionism. This helps consolidate consensus, make scientifically informed decisions, and improve the quality of legislation.

Sixth, insist upon scientific, democratic, and lawful legislation. General Secretary Xi emphasizes that the core of scientific legislation lies in respecting and reflecting objective laws, democratic legislation focuses on serving the people and relying on the people, and lawful legislation centers on strictly following statutory powers and procedures. It is necessary to adhere to a systematic view, coordinate legislative reforms, abolish, interpret, and compile comprehensively. This includes perfecting the systems of laws, administrative regulations, supervisory regulations, and local regulations, enhancing the systematic, holistic, coordinated, and timely nature of the legislative system, making the legal system more scientifically sound and unified. Over the years, the NPC and its Standing Committee have established effective mechanisms and practices in scientific, democratic, and lawful legislation. This includes extensive solicitation of legislative projects when formulating legislative plans, developing special plans for legislative revisions, establishing specialized task forces for legislative work, conducting legislative research, discussions, arguments, evaluations, publicly soliciting opinions on legal drafts, setting up grassroots legislative contact points, and emphasizing the role of NPC deputies in legislative work.

The third key task is to effectively use the supervisory powers granted to the NPC by the Constitution, implementing correct, effective, and lawful supervision. General Secretary Xi points out that the important principles of the People’s Congress system and the basic requirements of its institutional design are that the power of any state organ and its staff should be subject to supervision and restraint. He emphasizes the need to better leverage the important role of NPC supervision in the party and state supervision system, allowing the people to supervise power, letting power operate in the sunlight, using the institutional cage to control power, and using the reins of the rule of law to manage power. The purpose of NPC supervision, as stated by General Secretary Xi, is to “maintain the unity, dignity, and authority of the country’s legal system, ensure the effective implementation of laws and regulations, and ensure that administrative, supervisory, judicial, and prosecutorial powers are exercised correctly in accordance with the law.”

General Secretary Xi explicitly requires the NPC to “exercise the supervisory powers granted by the Constitution and laws, implement correct, effective, and lawful supervision.” In my understanding, correct supervision is crucial for upholding the leadership of the party, determining the role of the NPC in supervision, and handling the relationship between the NPC and the “one government, one committee, two houses” system appropriately. It is necessary to exercise the supervisory powers granted by the Constitution and laws, while avoiding overstepping boundaries or assuming others’ duties, truly forming a collaborative effort. Effective supervision is contingent on identifying the right entry points and breakthroughs, genuinely solving problems, advancing work, and perfecting systems. As General Secretary Xi pointed out, “Uphold focusing on the Center, serving the overall situation, highlighting key points, focusing on the major decisions and arrangements of the Central Committee, focusing on what the people think, hope, and wish, and promoting the resolution of prominent contradictions and problems that restrict economic and social development.” Lawful supervision involves supervising in accordance with statutory responsibilities, within statutory limits, and following statutory procedures. It entails the comprehensive use of statutory supervision methods to propel state organs to fulfill their responsibilities and conduct work within the scope defined by the Constitution and laws.

General Secretary Xi and the Central Committee have assigned new responsibilities to the NPC in the areas of budget review supervision and state-owned asset management supervision. They continuously deepen and expand the work of NPC supervision. The Central Committee has issued guiding opinions on key areas of budget review supervision, expanding policies, improving the reporting mechanism from the State Council to the NPC Standing Committee on outstanding issues discovered through audits, establishing a system for the State Council to report on state-owned asset management to the NPC Standing Committee, and strengthening the oversight of local people’s congresses on government debt. Implementing the requirements and decisions of General Secretary Xi and the Central Committee, the work of NPC budget review supervision and state-owned asset management supervision has been thoroughly promoted, playing an important role in managing the people’s “wallet” and commonwealth.

General Secretary Xi proposes to improve the supervision system of the NPC over administrative organs, supervisory organs, judicial organs, and procuratorial organs. Amending the Supervision Law has been included in this year’s legislative work plan.

The fourth task is to fully leverage the role of NPC deputies to respond to the people’s calls and fulfill their responsibilities. General Secretary Xi points out, “The reason why the People’s Congress system has strong vitality and remarkable advantages is crucially rooted in the people.” Fully leveraging the role of NPC deputies has been emphasized by General Secretary Xi since the 18th National Congress. The idea of responding to the calls of the people is put forward by General Secretary Xi and is a significant requirement for the work of the NPC and other state organs. General Secretary Xi deploys the role of NPC deputies in three aspects:

First, requirements for various state organs and their staff. General Secretary Xi states, “Strengthening ties with NPC deputies and the people at all levels of state organs is an inherent requirement of implementing the People’s Congress system, and it is a basic requirement of the people for their elected and appointed representatives.” He emphasizes, “Strengthening ties with NPC deputies and the people is an important aspect of being accountable to the people and subject to the supervision of the people. Listen to the opinions and suggestions of NPC deputies and the people attentively.”

Second, requirements for the NPC Standing Committees at all levels. General Secretary Xi proposes, “Improve the mechanism for members of the NPC Standing Committees at all levels to connect with NPC deputies, facilitate the smooth flow of social sentiment, and reflect and express channels.” He emphasizes, “NPC Standing Committees at all levels should enhance the capacity building of deputies, support and guarantee deputies to perform their duties in accordance with the law, making the role of NPC deputies at all levels an important embodiment of the people’s mastery.“

In accordance with the deployment of the 19th National Congress of the Party, the Second Plenary Session of the 20th Central Committee adopted the “Program for Deepening Reform of Party and State Institutions,” deciding to establish a Deputies’ Work Committee under the NPC Standing Committee. This fully reflects the high regard given by General Secretary Xi and the Central Committee to the work of the NPC and also places higher requirements on the NPC Standing Committee to do well in the work of deputies.

Third, requirements for NPC deputies. General Secretary Xi points out that NPC deputies shoulder the glorious responsibility entrusted by the people and should faithfully represent the interests and will of the people, and participate in the exercise of state power in accordance with the law. “Stabilize political positions, fulfill political responsibilities, strengthen ideological and work style construction, model adherence to the constitution and laws, and be politically insightful.” He emphasizes that deputies should “fully leverage the characteristics and advantages derived from the people, closely connect with the people, serve as a bridge between the party and the state and the people, mobilize positive factors to the maximum extent, resolve negative factors, and demonstrate the style of NPC deputies in the new era.” Regarding deputies’ connection with the masses, General Secretary Xi specifically proposes, “Enrich the content and forms of NPC deputies’ connection with the people, broaden channels of connection, actively respond to social concerns, and better understand the grassroots, gather people’s insights, and benefit the people’s lives.”

The fifth task is to strengthen political awareness in government bodies and enhance the self-construction of the National People’s Congress (NPC). General Secretary Xi Jinping pointed out that at all levels, the NPC and its Standing Committees should “be politically conscious institutions that consciously adhere to the leadership of the Communist Party of China, ensure that the state power is exercised by the people, comprehensively fulfill the responsibilities conferred by the Constitution and laws, and always maintain close ties with the people.” The positioning and requirements of the “Four Organs” 四个机关  reveal the attributes, status, and mission of the NPC from different perspectives.  

[Note: At the November 2021 working conference of the Central People’s Congress, General Secretary Xi Jinping emphasized that “the people’s congresses at all levels and their standing committees should continuously improve their political judgment, political comprehension and political execution, and comprehensively strengthen their self-construction, so that they can become a political organ that consciously adheres to the leadership of the Communist Party of China, an organ of state power that ensures that the people are the masters of their own house, a working organ that comprehensively assumes all the responsibilities conferred on it by the Constitution and laws, and a representative organ that is in close contact with the masses of the people.   End note.]

It is not only the goal and direction for the NPC and its Standing Committees to strengthen their own construction but also the standards and requirements for performing their duties and doing their work effectively. Among the “Four Organs,” 

• First, its position as a state political organ, requires the NPC to clearly articulate its political stance, firmly adhere to the overall leadership of the party, and consciously implement the party’s leadership throughout all aspects of its work. 
• Its position as a state power organ requires the NPC to uphold the principle that all state power belongs to the people, support and guarantee that the people exercise their right to be masters of the country throughout the entire process of development. 
• Its position as a working organ requires the NPC to comprehensively fulfill its statutory responsibilities, promote comprehensive governance according to law, and ensure the orderly advancement of various national undertakings in accordance with the law. 
• Its position as a representative organ requires the NPC to uphold the supremacy of the people, establish a firm awareness of its purpose, always maintain close ties with the people, conscientiously accept the supervision of the people, and serve the people, exercise its power for the people, and fulfill its duties for the people, consciously accepting the supervision of the people.

Regarding self-construction, General Secretary Xi requires optimizing the composition of the NPC Standing Committee and specialized committees, creating a team for NPC work that is politically firm, serves the people, respects the rule of law, promotes democracy, and is diligent and responsible. He also emphasizes the need to strengthen discipline and work style construction, strictly fulfill statutory responsibilities, adhere to statutory procedures, resolutely prevent formalism and bureaucracy, and improve the practical effectiveness of NPC work.

The sixth task is to strengthen the overall leadership of the party in NPC work. General Secretary Xi pointed out, “The system of the People’s Congress is an important institutional vehicle the Party uses to lead state organs, and it is also an important form for the Party to fully promote democracy and implement the mass line in state power.”  总书记指出，“人民代表大会制度是党领导国家政权机关的重要制度载体，也是党在国家政权中充分发扬民主、贯彻群众路线的重要实现形式。”General Secretary Xi makes clear requirements for party committees at all levels: place NPC work in an important position, improve the institutional mechanisms for party leadership in NPC work, regularly listen to reports on the work of the NPC Standing Committee party group, study and solve major issues in NPC work, etc. Support the NPC and its Standing Committee in exercising their powers and carrying out their work in accordance with the law, guide and supervise the “one government, one committee, two houses” to conscientiously accept NPC supervision. Strengthen the construction of the leadership team of the NPC Standing Committee and the work team.

General Secretary Xi has given important instructions multiple times on the NPC’s adherence to the party’s overall leadership. He requires party groups of NPC Standing Committees at all levels to conscientiously implement various systems of the party’s leadership and fulfill the main responsibility for strict party governance. He requires the NPC to clearly articulate its political stance, faithfully implement the decisions and arrangements of the Party Central Committee, and embody the adherence to the centralized and unified leadership of the Party in all aspects and throughout the entire process of work. In practice, NPC work should be planned and promoted around the overall situation of the party and the country, ensuring that the decisions and arrangements of the Party Central Committee and the corresponding party committees at the same level are implemented. Strictly implement the reporting system to ensure that all NPC work is carried out under the leadership of the party. Strengthen the construction of the party within the NPC to ensure that the party’s leadership is fully, systematically, and integrally implemented in all aspects of NPC work throughout the entire process.

General Secretary Xi Jinping’s important thoughts on adhering to and improving the system of the People’s Congress are essential subjects and basic skills for NPC comrades. We must comprehensively and systematically continue to study and implement this important ideology, placing it in the scientific system of Xi Jinping’s Socialism with Chinese characteristics in the New Era and combining it with Xi Jinping’s Thought on the rule of law. We must also combine it with the functions, responsibilities, and work done by the NPC, enhance our sense of duty and mission, and improve our capabilities and skills. We should closely focus on fully implementing the spirit of the 19th Party Congress and do well in the work of the NPC in the new era, making new contributions to adhering to and improving the system of the People’s Congress.

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十四届全国人大常委会履职学习专题讲座第四讲

更新日期： 2023-08-02

深入学习贯彻习近平总书记关于坚持和完善人民代表大会制度的重要思想

宋 锐

来源： 中国人大网  

2023年04月28日 16:18:30

委员长、各位副委员长、秘书长、各位委员:

党的十八大以来，以习近平同志为核心的党中央高度重视、全面加强党对人大工作的领导，推动人大工作取得历史性成就，人民代表大会制度更加成熟、更加定型。习近平总书记围绕社会主义民主政治、人民代表大会制度、人大工作提出一系列新理念新思想新要求，形成习近平总书记关于坚持和完善人民代表大会制度的重要思想，为新时代坚持好完善好运行好人民代表大会制度、加强和改进人大工作指明了前进方向、提供了基本遵循。

习近平总书记关于坚持和完善人民代表大会制度的重要思想，是一个全面系统、科学开放的理论体系。从这一重要思想的渊源来看：主要是总书记的重要讲话和指示批示，包括2012年在纪念现行宪法公布施行30周年大会上的讲话，2014年在庆祝全国人大成立60周年大会上的讲话，2021年在中央人大工作会议上的讲话，2022年纪念现行宪法公布施行40周年的署名文章，在中央有关会议上的相关讲话内容，关于宪法、立法工作、地方人大设立常委会四十周年的重要指示；还有党的十八大、十九大、二十大报告和十八大以来历次中央全会文件的相关内容，以及十八大以来党中央制定或批准的40多个关于人大工作的指导性文件等。从这一重要思想的内容来看：主要是三个层面，一是道路和方向层面，包括政治发展道路、全过程人民民主、全面依法治国的重要论述和要求，这是坚持好、完善好、运行好人民代表大会制度的重要前提和题中应有之义；二是人大制度层面，包括对人民代表大会制度的性质、地位、特点、优势、功效、原则的概括和阐述；三是人大工作层面，包括对人大行使职权、开展工作、加强自身建设的部署和要求。

下面，我从这三个层面，汇报一些学习贯彻的认识和体会。

一、深入学习领会习近平总书记关于政治发展道路、全过程人民民主的重要论述，在事关党和国家前途命运的重大问题上始终立场坚定、旗帜鲜明

坚持好、完善好、运行好人民代表大会制度，做好新时代人大工作，首先要从政治上、大局上看，从坚守党的初心使命，保证党和国家兴旺发达、长治久安的高度来认识和把握。

（一）坚持正确的政治发展道路是关系根本、关系全局的重大问题。习近平总书记指出，“以什么样的思路来谋划和推进中国社会主义民主政治建设，在国家政治生活中具有管根本、管全局、管长远的作用”。古今中外，由于政治发展道路选择错误而导致社会动荡、国家分裂、人亡政息的例子比比皆是。设计和发展国家政治制度，必须注重历史和现实、理论和实践、形式和内容有机统一，不能想象突然就搬来一座政治制度上的“飞来峰”。照抄照搬他国的政治制度行不通，会水土不服，会画虎不成反类犬，甚至会把国家前途命运葬送掉。中国特色社会主义政治制度之所以行得通、有生命力、有效率，就是因为是从中国的社会土壤中生长起来的。事实充分证明，中国社会主义民主政治具有强大生命力，中国特色社会主义政治发展道路是符合中国国情、保证人民当家作主的正确道路。总书记说，“在政治制度模式上，我们就是要咬定青山不放松、任尔东西南北风”；“中国人民应该有这个信心，每一个中国人都应该有这个信心”。人大是党领导下的政治机关，讲政治是第一位要求，必须带头坚定“四个自信”，坚定不移走中国特色社会主义政治发展道路。对于西方所谓“宪政”、多党轮流执政、“三权鼎立”那一套，必须高度警惕，坚决抵制，决不能掉入陷阱。

（二）民主是全人类的共同价值，是中国共产党和中国人民始终不渝坚持的重要理念。对于什么是真正的、有效的民主，总书记旗帜鲜明提出“八个能否”的标准：评价一个国家政治制度是不是民主的、有效的，主要看国家领导层能否依法有序更替，全体人民能否依法管理国家事务和社会事务、管理经济和文化事业，人民群众能否畅通表达利益要求，社会各方面能否有效参与国家政治生活，国家决策能否实现科学化、民主化，各方面人才能否通过公平竞争进入国家领导和管理体系，执政党能否依照宪法法律规定实现对国家事务的领导，权力运用能否得到有效制约和监督。“八个能否”标准的提出，是对中国社会主义民主政治建设、人类民主发展进步的原创性理论贡献。对照“八个能否”标准，中国在解决这些问题上取得决定性进展，充分展现了中国特色社会主义政治发展道路、政治制度的优越性。

总书记指出，民主不是装饰品，不是用来做摆设的，而是要用来解决人民需要解决的问题的，由此又提出“四个要看，四个更要看”的标准：一个国家民主不民主，关键在于是不是真正做到了人民当家作主，要看人民有没有投票权，更要看人民有没有广泛参与权；要看人民在选举过程中得到了什么口头许诺，更要看选举后这些承诺实现了多少；要看制度和法律规定了什么样的政治程序和政治规则，更要看这些制度和法律是不是真正得到了执行；要看权力运行规则和程序是否民主，更要看权力是否真正受到人民监督和制约。“四个要看，四个更要看”是对“八个能否”的补充和发展，通过实践对比，可以清楚看到中国民主的真实、有效和西式民主的局限、虚伪。

人民民主是中国共产党始终高举的旗帜。总书记阐述了我们党关于民主的五个基本观点：一是人民民主是社会主义的生命，没有民主就没有社会主义，就没有社会主义的现代化，就没有中华民族伟大复兴。二是人民当家作主是社会主义民主政治的本质和核心，发展社会主义民主政治就是要体现人民意志、保障人民权益、激发人民创造活力，用制度体系保证人民当家作主。三是中国特色社会主义政治发展道路是符合中国国情、保证人民当家作主的正确道路，是近代以来中国人民长期奋斗历史逻辑、理论逻辑、实践逻辑的必然结果，是坚持党的本质属性、践行党的根本宗旨的必然要求。四是人民通过选举、投票行使权利和人民内部各方面在重大决策之前进行充分协商，尽可能就共同性问题取得一致意见，是中国社会主义民主的两种重要形式，共同构成了中国社会主义民主政治的制度特点和优势。五是发展社会主义民主政治关键是要把我国社会主义民主政治的特点和优势充分发挥出来，不断推进社会主义民主政治制度化、规范化、程序化，为党和国家兴旺发达、长治久安提供更加完善的制度保障。

总书记系统阐述我们党关于民主的立场、理念和基本观点，在民主问题上廓清迷思、正本清源，清晰表明了中国共产党的“民主观”和中国政治制度运行的内在逻辑，是对西式民主的回击、扬弃和质的超越，彰显了我们党领导人民坚定不移走中国特色社会主义政治发展道路、发展社会主义民主政治的自信和底气。

（三）创造性提出全过程人民民主重大理念。全过程人民民主是中国共产党团结带领中国人民追求民主、发展民主、实现民主的伟大创造，是以习近平同志为核心的党中央推进社会主义民主理论创新、制度创新、实践创新的重大成果。这一重大理念的提出与人大工作密切相关。2019年11月，总书记在上海长宁区虹桥街道考察全国人大常委会法工委基层立法联系点时，指出“我们走的是一条中国特色社会主义政治发展道路，人民民主是一种全过程的民主”。在2021年10月的中央人大工作会议上，总书记首次系统阐述了全过程人民民主重大理念。总书记指出，我国全过程人民民主不仅有完整的制度程序，而且有完整的参与实践；全体人民依法实行民主选举、民主协商、民主决策、民主管理、民主监督，依法通过各种途径和形式管理国家事务，管理经济和文化事业，管理社会事务；我国全过程人民民主实现了过程民主和成果民主、程序民主和实质民主、直接民主和间接民主、人民民主和国家意志相统一，是全链条、全方位、全覆盖的民主，是最广泛、最真实、最管用的社会主义民主。党的二十大报告提出，全过程人民民主是社会主义民主政治的本质属性，发展全过程人民民主是中国式现代化的本质要求。

总书记指出，“人民代表大会制度是实现我国全过程人民民主的重要制度载体”，这是对人民代表大会制度的新定位新要求，也是新时代坚持好、完善好、运行好人大制度的新课题新任务。我理解，重要制度载体的作用体现在：人民代表大会制度作为国家根本政治制度，是中国人民当家作主的重要途径和最高实现形式；人民代表大会制度的运行，涵盖了民主选举、民主协商、民主决策、民主管理、民主监督各个方面，是全过程人民民主的重要实践平台；人大制定修改宪法和法律，监督宪法和法律的实施，为全过程人民民主提供坚实法治保障。

总书记对人大践行和发展全过程人民民主提出明确要求：一是在党的领导下，不断扩大人民有序政治参与，加强人权法治保障，保证人民依法享有广泛权利和自由。二是保证人民依法行使选举权利，民主选举产生人大代表，保证人民的知情权、参与权、表达权、监督权落实到人大工作各方面各环节全过程，确保党和国家在决策、执行、监督落实各个环节都能听到来自人民的声音。三是完善人大的民主民意表达平台和载体，健全吸纳民意、汇集民智的工作机制，推进人大协商、立法协商，把各方面社情民意统一于最广大人民根本利益之中。四是加强对中国特色社会主义民主、对人民代表大会制度的研究宣传工作，讲清楚我国政治制度的特点和优势，讲好中国民主故事。

二、深入学习贯彻习近平总书记关于人民代表大会制度的论述要求，在新时代把人民代表大会制度坚持好、完善好、运行好

总书记关于坚持和完善人民代表大会制度的重要思想，拓展和深化了人民代表大会制度的科学内涵、本质特征、实践要求，标志着我们党对发展社会主义民主政治、加强国家政权建设的规律性认识达到了一个新的高度。

（一）深刻揭示了我国实行人民代表大会制度的历史逻辑、理论逻辑、实践逻辑。总书记指出，“在中国实行人民代表大会制度，是中国人民在人类政治制度史上的伟大创造，是深刻总结近代以后中国政治生活惨痛教训得出的基本结论，是中国社会一百多年激越变革、激荡发展的历史结果，是中国人民翻身作主、掌握自己命运的必然选择”。这段重要论述，充分反映了近代以来中国选择正确政治发展道路的曲折和艰辛，深刻揭示了实行人民代表大会制度是历史的选择、人民的选择。

总书记指出，“人民代表大会制度是符合我国国情和实际、体现社会主义国家性质、保证人民当家作主、保障实现中华民族伟大复兴的好制度，是我们党领导人民在人类政治制度史上的伟大创造，是在我国政治发展史乃至世界政治发展史上具有重大意义的全新政治制度”；“60多年来特别是改革开放40多年来，人民代表大会制度为党领导人民创造经济快速发展奇迹和社会长期稳定奇迹提供了重要制度保障”。用“好制度”、“伟大创造”、“全新政治制度”、“重要制度保障”等评价人民代表大会制度，充分表明这一制度在我国国家治理体系中、在中外政治发展史上的重要地位和重大意义。对于党领导人民历尽千辛万苦建立起来、经过长期实践检验的国家根本政治制度，我们要倍加珍惜、长期坚持、不断完善、全面贯彻。

（二）用“三个有效保证”概括了人民代表大会制度的显著优势和巨大功效。总书记在中央人大工作会议上指出：人民代表大会制度，坚持中国共产党领导，坚持马克思主义国家学说的基本原则，适应人民民主专政的国体，有效保证国家沿着社会主义道路前进；坚持国家一切权力属于人民，最大限度保障人民当家作主，把党的领导、人民当家作主、依法治国有机统一起来，有效保证国家治理跳出治乱兴衰的历史周期率；正确处理事关国家前途命运的一系列重大政治关系，实现国家统一高效组织各项事业，维护国家统一和民族团结，有效保证国家政治生活既充满活力又安定有序。“三个有效保证”，精辟概括了人民代表大会制度的本质属性和优势功效，充分说明了这一制度在国家治理体系和治理能力中的支撑作用。

（三）用“六个必须坚持”明确了坚持好、完善好、运行好人民代表大会制度的重大原则。总书记在中央人大工作会议上提出的“六个必须坚持”，每一条的内涵都很丰富，既是经验总结，也是必须牢牢把握、始终遵循的重大原则。

一是必须坚持中国共产党领导。坚持党总揽全局、协调各方的领导核心作用，坚决维护党中央权威和集中统一领导，保证党的理论、路线、方针政策和决策部署在国家工作中得到全面贯彻和有效执行。加强和改善党的领导，善于使党的主张通过法定程序成为国家意志，善于使党组织推荐的人选通过法定程序成为国家政权机关的领导人员，善于通过国家政权机关实施党对国家和社会的领导，维护党和国家权威、维护全党全国团结统一。

二是必须坚持用制度体系保障人民当家作主。坚持以人民为中心，坚持国家一切权力属于人民，支持和保证人民通过人民代表大会行使国家权力，健全民主制度，丰富民主形式，拓宽民主渠道，保证人民平等参与、平等发展权利，发展更加广泛、更加充分、更加健全的全过程人民民主。

三是必须坚持全面依法治国。坚持走中国特色社会主义法治道路，建设中国特色社会主义法治体系，建设社会主义法治国家，弘扬社会主义法治精神，依照宪法法律推进国家各项事业和各项工作，维护社会公平正义，尊重和保障人权，实现国家各项工作法治化。人民代表大会制度是全面依法治国的重要制度平台，人大要行使好立法、监督等职权，在全面依法治国中发挥好职能作用。

四是必须坚持民主集中制。坚持人民通过人民代表大会统一行使国家权力，各级人民代表大会由民主选举产生，对人民负责，受人民监督；各级国家行政机关、监察机关、审判机关、检察机关都由人民代表大会产生，对人大负责，受人大监督；实行决策权、执行权、监督权既合理分工又相互协调，保证国家机关依照法定权限和程序行使职权、履行职责；坚持在党中央统一领导下，充分发挥地方主动性和积极性，保证国家统一高效组织推进各项事业。以上是民主集中制原则在我国政权组织和运行中的集中体现。民主集中制也是人大及其常委会的活动原则，要坚持依法按程序办事，集体行使职权、集体决定问题，在充分听取意见、广泛凝聚共识的基础上作出决策。

五是必须坚持中国特色社会主义政治发展道路。坚持党的领导、人民当家作主、依法治国有机统一，核心是坚持党的领导。人民代表大会制度是坚持党的领导、人民当家作主、依法治国有机统一的根本政治制度安排，保证党领导人民依法有效治理国家。可以借鉴人类政治文明的有益成果，但绝不照搬西方政治制度模式。人民代表大会制度是“三者有机统一”的根本政治制度安排这一重大论断，是对人民代表大会制度性质、地位、作用的最集中、最全面、最重要的概括。人大制度的运行，人大各项工作，都可以从“三者有机统一”中找到方向和遵循。

六是必须坚持推进国家治理体系和治理能力现代化。人民代表大会制度是中国特色社会主义制度的重要组成部分，也是国家治理体系的重要组成部分。要坚持和完善人民当家作主制度体系，不断推进社会主义民主政治制度化、规范化、程序化，更好把制度优势转化为治理效能。

总书记指出，当今世界正经历百年未有之大变局，制度竞争是综合国力竞争的重要方面，制度优势是一个国家赢得战略主动的重要优势；制度稳则国家稳，制度强则国家强。新时代新征程，我们要毫不动摇坚持、与时俱进完善人民代表大会制度，更要保证这一制度得到全面贯彻、有效运行，把国家根本政治制度的优势功效充分发挥出来，依靠制度威力抵御风险挑战，凝聚各方面智慧和力量推进强国建设、民族复兴。

三、深入学习贯彻习近平总书记关于加强和改进人大工作的部署要求，努力开创新时代人大工作新局面

总书记对人大工作有许多指示要求，特别是在中央人大工作会议上提出了6个方面的重点任务。要认真学习贯彻总书记、党中央的部署要求，按照总结、继承、完善、提高的原则，继往开来、守正创新，依法履职、担当作为，全面提升人大工作质量和水平。

第一，全面贯彻实施宪法，维护宪法权威和尊严。党的十八大以来，以习近平同志为核心的党中央把宪法和宪法实施摆在治国理政的突出位置。总书记指出，宪法是国家的根本法，是治国安邦的总章程，是党和人民意志的集中体现，具有最高的法律地位、法律权威、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；全面贯彻实施宪法是全面依法治国、建设社会主义法治国家的首要任务和基础性工作。总书记亲自领导、亲自推动，在宪法实施方面做了大量工作：第五次修改现行宪法，完善宪法相关法律制度，落实宪法规定的特赦制度、国家勋章和荣誉称号制度，制定英雄烈士保护法、国歌法，修改国旗法、国徽法，以立法形式设立国家宪法日，实行宪法宣誓制度，开展合宪性审查工作等。贯彻党中央决策部署，全国人大及其常委会建立健全香港特别行政区维护国家安全的法律制度和执行机制、制定香港维护国家安全法，完善香港选举制度等，维护宪法和基本法确定的特别行政区宪制秩序，为“一国两制”行稳致远提供了更加坚实的法治保障。人大涉港立法，是履行宪法、基本法赋予的职责，要放在宪法实施的高度来看待。

去年12月，在现行宪法公布施行40周年之际，习近平总书记发表重要文章，全面回顾我国宪法制度建设和宪法实施取得的历史性成就，深刻总结我国宪法制度建设的规律性认识，提出新时代新征程全面贯彻实施宪法的总体要求和重点任务。包括：坚持和加强党对宪法工作的全面领导，全面发挥宪法在立法中的核心地位功能，健全保证宪法全面实施的制度体系，推进宪法监督的规范化、程序化建设，提高合宪性审查、备案审查能力和质量，落实宪法解释程序机制，加强宪法理论研究和宣传教育等。我们要深入学习领会，增强宪法自觉，履行宪法使命，为谱写新时代中国宪法实践新篇章努力工作。

第二，加快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。总书记高度重视立法工作，多次作出重要论述和重要指示，亲自研究推进重大立法。总书记关于立法的论述要求，主要有以下几个方面。

一是加强党对立法工作的集中统一领导。强调加强党对立法工作的领导，完善党对立法工作中重大问题决策的程序；凡立法涉及重大体制和重大政策调整的，必须报党中央讨论决定；党中央向全国人大提出宪法修改建议，依照宪法规定的程序进行宪法修改；法律制定和修改的重大问题由全国人大常委会党组向党中央报告。2016年党中央出台关于加强党领导立法工作的意见。中央政治局常委会每年研究讨论重大立法事项。党的十九大后，党中央成立全面依法治国委员会，健全党领导全面依法治国的制度和工作机制，强化党中央对立法工作的领导。

二是发挥立法的引领和推动作用。总书记指出，全面依法治国首先要有法可依，坚持立法先行，发挥立法的引领和推动作用。总书记把改革和法治比喻为“鸟之两翼、车之两轮”，强调要把改革发展决策同立法决策更好结合起来，既通过深化改革完善法治，又通过更完善的法治保障各领域改革创新，确保国家发展、重大改革于法有据。

三是抓住提高立法质量这个关键。总书记指出，人民群众对立法的期盼，已经不是有没有，而是好不好、管用不管用、能不能解决实际问题；不是什么法都能治国，不是什么法都能治好国；越是强调法治，越是要提高立法质量。“发展要高质量，立法也要高质量。要以立法高质量保障和促进经济持续健康发展。”针对立法工作中的部门化倾向、争权诿责现象，总书记强调，“各有关方面都要从党和国家工作大局出发看待立法工作，不要囿于自己那些所谓利益，更不要因此对立法工作形成干扰。要想明白，国家和人民整体利益再小也是大，部门、行业等局部利益再大也是小。”

四是明确立法的重点领域和主要任务。总书记提出，要加强重点领域、新兴领域、涉外领域立法，健全国家治理急需、满足人民日益增长的美好生活需要必备、维护国家安全所急的法律制度。面对世界百年未有之大变局加速演进、国际环境日益严峻复杂的新形势，总书记强调，要统筹推进国内法治和涉外法治，统筹发展和安全，推动我国法域外适用的法律体系建设，用法治方式有效应对挑战、防范风险，维护国家主权、安全、发展利益。

五是发挥人大及其常委会在立法工作中的主导作用。总书记要求“完善党委领导、人大主导、政府依托、各方参与的立法工作格局”，强调“要优化立法职权配置，发挥人大及其常委会在立法工作中的主导作用，健全立法起草、论证、协调、审议机制，完善法律草案表决程序”。实践中，人大的主导作用主要体现在：坚持在党的领导下发挥主导作用；制定立法规划和计划，统筹安排立法任务；人大专门委员会、工作委员会做好综合性、基础性法律的牵头起草工作，对其他部门起草的法律案提前介入，做好组织协调；发挥审议把关作用，有效防止部门利益和地方保护主义法律化，凝聚共识、科学决策，提高立法质量。

六是坚持科学立法、民主立法、依法立法。总书记强调，科学立法的核心在于尊重和体现客观规律，民主立法的核心在于为了人民、依靠人民，依法立法的核心在于严格依照法定权限和法定程序。总书记提出，要坚持系统观念，统筹立改废释纂，全面完善法律、行政法规、监察法规、地方性法规体系；增强立法系统性、整体性、协同性、时效性，使法律体系更加科学完备、统一权威。这些年来，全国人大及其常委会在科学立法、民主立法、依法立法方面形成了有效的机制和做法，包括编制立法规划计划时广泛征集立法项目，制定专项立法修法工作计划，组建立法工作专班，开展立法调研、座谈、论证、评估，法律草案公开征求意见，设立基层立法联系点，重视发挥人大代表在立法工作中的作用等。

第三，用好宪法赋予人大的监督权，实行正确监督、有效监督、依法监督。总书记指出，人民代表大会制度的重要原则和制度设计的基本要求，就是任何国家机关及其工作人员的权力都要受到监督和制约；强调“要更好发挥人大监督在党和国家监督体系中的重要作用，让人民监督权力，让权力在阳光下运行，用制度的笼子管住权力，用法治的缰绳驾驭权力”。总书记提出人大监督的目的：“维护国家法治统一、尊严、权威，确保法律法规得到有效实施，确保行政权、监察权、审判权、检察权依法正确行使。”

总书记明确要求人大“把宪法法律赋予的监督权用起来，实行正确监督、有效监督、依法监督。”我理解，正确监督，关键是坚持党的领导，找准人大监督的定位，妥善处理人大同“一府一委两院”的关系，既要把宪法法律赋予的监督权用起来，同时又不越位、不代行职权，真正形成工作合力。有效监督，关键是找准监督的切入点、突破口，真正解决问题、推进工作、完善制度。正如总书记指出的“坚持围绕中心、服务大局、突出重点，聚焦党中央重大决策部署，聚焦人民群众所思所盼所愿，推动解决制约经济社会发展的突出矛盾和问题”。依法监督，就是要依照法定职责、限于法定范围、遵守法定程序进行监督。统筹运用法定监督方式，推动各国家机关在宪法法律范围内履行职责、开展工作。

总书记、党中央在预算审查监督和国有资产管理监督方面赋予人大新职责，不断深化和拓展人大监督工作。党中央分别就人大预算审查监督重点向支出预算和政策拓展、改进审计查出突出问题整改情况向全国人大常委会报告机制、建立国务院向全国人大常委会报告国有资产管理情况制度、加强地方人大对政府债务审查监督等出台指导性意见。贯彻总书记指示要求和党中央决策部署，人大预算审查监督工作和国有资产管理监督工作深入推进，为管好人民的“钱袋子”和共同财富发挥了重要职能作用。

总书记提出，健全人大对行政机关、监察机关、审判机关、检察机关监督制度。修改监督法已经列入今年立法工作计划。

第四，充分发挥人大代表作用，做到民有所呼、我有所应。总书记指出，“人民代表大会制度之所以具有强大生命力和显著优越性，关键在于深深植根于人民之中。”充分发挥人大代表作用，这是十八大以来总书记反复强调的。民有所呼、我有所应，是总书记提出的，是对人大工作以及其他国家机关工作提出的重大要求。总书记从三个方面对发挥人大代表作用作出部署：

一是对各级国家机关及其工作人员的要求。总书记指出，“各级国家机关加强同人大代表的联系、加强同人民群众的联系，是实行人民代表大会制度的内在要求，是人民对自己选举和委派代表的基本要求”；强调“把加强同人大代表和人民群众的联系作为对人民负责、受人民监督的重要内容，虚心听取人大代表、人民群众意见和建议”。

二是对各级人大常委会的要求。总书记提出，“健全人大常委会组成人员联系本级人大代表机制，畅通社情民意反映和表达渠道”，强调“各级人大常委会要加强代表工作能力建设，支持和保障代表更好依法履职，使发挥各级人大代表作用成为人民当家作主的重要体现。”贯彻党的二十大部署，二十届二中全会通过《党和国家机构改革方案》，决定在全国人大常委会设立代表工作委员会，这充分体现了总书记、党中央对人大工作的高度重视，也对人大常委会做好代表工作提出了更高要求。

三是对人大代表的要求。总书记指出，人大代表肩负人民赋予的光荣职责，要忠实代表人民利益和意志，依法参加行使国家权力。“要站稳政治立场，履行政治责任，加强思想、作风建设，模范遵守宪法法律，做政治上的明白人”；“要充分发挥来自人民、扎根人民的特点优势，密切同人民群众的联系，当好党和国家联系人民群众的桥梁，最大限度调动积极因素、化解消极因素，展现新时代人大代表的风采。”关于代表联系群众，总书记特别提出，“要丰富人大代表联系人民群众的内容和形式，拓宽联系渠道，积极回应社会关切，更好接地气、察民情、聚民智、惠民生”。

第五，强化政治机关意识，加强人大自身建设。总书记指出，各级人大及其常委会要“成为自觉坚持中国共产党领导的政治机关、保证人民当家作主的国家权力机关、全面担负宪法法律赋予的各项职责的工作机关、始终同人民群众保持密切联系的代表机关。”“四个机关”的定位和要求，从不同维度揭示了人大的属性地位和职责使命，不仅是人大及其常委会加强自身建设的目标方向，也是依法履职、做好工作的标准和要求。“四个机关”中，第一位是政治机关，要求人大旗帜鲜明讲政治，坚定坚持党的全面领导，自觉把党的领导落实到人大工作各方面全过程；国家权力机关的定位，要求人大坚持国家一切权力属于人民，支持和保证人民当家作主，发展全过程人民民主；工作机关的定位，要求人大全面担负起法定职责，推进全面依法治国，保障国家各项事业依法有序推进；代表机关的定位，要求人大坚持人民至上，树牢宗旨意识，始终同人民保持密切联系，为人民用权、为人民履职、为人民服务，自觉接受人民监督。

在自身建设方面，总书记要求优化人大常委会、专门委员会组成人员结构，打造政治坚定、服务人民、尊崇法治、发扬民主、勤勉尽责的人大工作队伍。还强调要加强纪律作风建设，既严格履行法定职责，遵守法定程序，又坚决防止形式主义、官僚主义，提高人大工作实效。

第六，加强党对人大工作的全面领导。总书记指出，“人民代表大会制度是党领导国家政权机关的重要制度载体，也是党在国家政权中充分发扬民主、贯彻群众路线的重要实现形式。”总书记对各级党委提出明确要求：要把人大工作摆在重要位置，完善党领导人大工作的制度，定期听取人大常委会党组工作汇报，研究解决人大工作中的重大问题等；支持人大及其常委会依法行使职权、开展工作，指导和督促“一府一委两院”自觉接受人大监督；加强人大常委会领导班子和人大工作队伍建设等。

总书记对人大坚持党的全面领导多次作出重要指示，要求各级人大常委会党组要认真执行党的领导各项制度，落实好全面从严治党主体责任；要求人大旗帜鲜明讲政治，不折不扣贯彻落实党中央决策部署，把坚持党中央集中统一领导体现在工作各方面和全过程。实践中，人大工作要围绕党和国家工作大局谋划和推进，确保党中央决策部署和同级党委的部署安排落到实处。要严格执行请示报告制度，确保人大各项工作在党的领导下进行。要加强人大党的建设，保证党的领导全面、系统、整体地落实到人大工作各方面全过程。

习近平总书记关于坚持和完善人民代表大会制度的重要思想，是人大同志的必修课和基本功。我们要全面系统、持续深入学习贯彻，把这一重要思想放在习近平新时代中国特色社会主义思想的科学体系中去认识和把握，与习近平法治思想结合起来，与人大职能职责和所做的工作结合起来，增强履职责任感使命感，提高履职能力和本领，紧紧围绕全面贯彻落实党的二十大精神做好新时代人大工作，为坚持好、完善好、运行好人民代表大会制度作出新的贡献。

（主讲人系全国人大常委会机关党组成员、办公厅研究室主任）