论清代皇帝决策的法律机制

On the Legal Mechanism of the Emperor’s Decision-making in Qing Dynasty

中国古代,皇权与中央权力集中体现为皇帝决策权。清代统治者借鉴汉唐宋明历代政治法律实践的经验教训,并根据自身的治国理政需要,构建具有鲜明特色的皇帝决策法律机制。首先,基于"皇权无上限"的原则,法律明确规定皇帝的决策权范围,赋予各级机构对于皇帝决策权范围之外相关事项的直接决定权。其次,法律严格设定"本章批答""御门听政"两种不同的决策方式,既针对不同决策事项各有分工,又在特殊情形下相互衔接;同时,推进"题奏进呈""内阁票拟""部院议奏"等决策环节规范化,整体上使得皇帝决策程序制度化、可预期。再次,基于统治阶级整体利益与国家长远利益的考虑,清代皇帝注重在决策过程中发挥法律作为决策依据的作用。朝廷部院通过"议准""议驳",实施对于决策建议的"合例性"审核,既为皇帝合法决策提供选择方案,也有效提升地方督抚、部院大臣等各级官员的法律意识。清代皇帝决策法律机制的实施,使得以皇帝为代表的最高统治集团在处理各类复杂问题、突发事件的同时,保持法律与制度的稳定性,有效构建有利于统治阶级整体利益的国家秩序,并对维系"大一统"的国家政治格局发挥积极作用。基于皇权至上的专制体制以及法律仅仅作为统治工具的治理原则,清代皇帝决策法律机制从制度设计到实际运行也存在种种不足。

In ancient China,the power of the Emperor and the central government closely reflects the decision-making power of the Emperor.The rulers of the Qing Dynasty learned from the experience and lesson in the political and legal practice of the previous Dynasties,and constructed the legal mechanism of the Emperor’s decision-making with remarkable characteristics according to the requirements of governance and administration of state affairs.Firstly,the extent of the decision-making power of the Emperor is stipulated by law based on the principle"Imperial power is infinite",and the administrative machineries are granted direct decision-making power except the affairs belongs to decision-making power of the Emperor.Secondly,as the way of decision-making,the instructions of the Emperor to official documents and the discussions about government affairs chaired by the Emperor are strictly stipulated by the law.The law stipulates not only the division among the administrative machineries aimed at different affairs,which need to make a decision,but also the interconnection under special situations.Meanwhile,some procedures are normalized,such as"the ministers’suggestion to the Emperor","ministers’review and suggestion for the receiving document","ministers’discuss and report to the Emperor".Therefore,the procedure of decision-making of the Emperor realizes institutionalized and predictable.Thirdly,in order to guarantee the overall interests and long-term interests of the ruling class,the laws as the basis for the decision-making are taken seriously by the Emperor.As a legality review of the decision-making,the ministers’discuss and agreement of the suggestion to the Emperor and their suggestion that the Emperor should not agree with some certain affairs can not only provide options of the decision-making for the Emperor,but also heighten law awareness of the governors,the magistrates of the provinces and the ministers.By means of the legal mechanism of decision-making of the Emperor,the Emperors in Qing Dynasty could solve many kinds of complex problems and deal with emergencies.Meanwhile,the stability of the law and the institution will be maintained to guarantee the overall interests of the rulers and the unity of the country.However,due to the absolute monarchy and the law as a tool of the rulers,there are many shortcomings of the institution and its function of the legal mechanism of decision-making of the Emperor in Qing Dynasty.