Create mini congresses for subcommittees. For stuff that's absolutely massive, Congress does a relatively good job of threshing out the issues. They have real debates in the public eye. For smaller issues, it's farmed out to subcommittees, who put the legislation together in back-rooms, usually after "discussing the issue with relavant stakeholders".

It would be to slow to do everything in Congress (that's why they have the subcommittees), but they could prepare the legislation in a much more transparent member. The members wouldn't like it, but that's their problem.

You could also require that bills are only valid if they are well described by their titles. So, you couldn't call stuff "Stop Online Piracy Act" unless you were willing to have in knocked down in the Supreme Court for having a silly name.