法律是社会秩序调整及社会正义实现的工具。立法对社会秩序的调整及社会正义的实现有着重要意义。法律的理性表现为法律的稳定性、一般性与统一性,而政策的非理性表现为政策的灵活性、特殊性与应急性。立法活动就是理性法律与非理性政策的抗争过程。理性法律与非理性政策的混淆及界分便是立法活动的难题之一,也是立法活动的主题之一。 Law is a tool to adjust social order and realize social justice. Legislation on the adjustment of social order and the realization of social justice is of great significance. The rational representation of law is the stability, generality and unity of law. The irrationality of policy is the flexibility, specialness and emergency of policy. Legislative activity is the process of resistance between rational law and irrational policy. Confusion and demarcation between rational law and irrational policies are one of the problems of legislative activities and one of the main topics of legislative activities.