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中国较早的形成了一个从中央到地方的官僚集团，这个集团及其所代表的阶层有其独立的利益，所以政府的制度安排主要是以这个集团及其所代表的社会阶层的生存和发展为目标。在中国近代社会经济的发展进程中，这个集团及其所代表的社会阶层的利益目标与其它社会阶层的利益目标并不完全一致，而且偏差日益扩大。在这种情况下，统治集团首先考虑的往往不是国家财富的增长和经济结构的优化等社会各个利益集团共同和长远的利益目标，而是政治的目标（如政权的稳定、传统意识形态和伦理道德的维持等等）、这就使其在制度供给方面往往不能满足其他利益集团的要求，甚至成为制度变迁的对立物。近代中国政府的这种行为特征对国家的工业化是十分不利的。
China earlier formed a bureaucratic group from the central government to the local government. The group and the class it represents have their own independent interests. Therefore, the institutional arrangement of the government is mainly based on the existence and development of the group and the social class it represents As the goal. In the course of the development of social economy in modern China, the interests of the group and the social classes it represents do not exactly match the goals of the interests of other social classes, and the deviations are increasingly widened. Under such circumstances, the ruling group should first of all consider not the common and long-term interest targets of various interest groups in society, such as the growth of state wealth and the optimization of economic structure, but the political goals (such as political stability, traditional ideology and ethics Moral maintenance, etc.), which often make it unable to meet the needs of other interest groups in institutional provision and even become the antithesis of institutional change. This kind of behavioral characteristics of the modern Chinese government is very unfavorable to the industrialization of the country.