机构与编制的问题历来是行政管理实践中所遇到的最棘手的问题之一。建国以来,我国进行过几次较大规模的机构改革,但是,其收效甚微,始终没有打破“精简——膨胀——再精简——再膨胀”的恶性循环。面对这种情况,在很长一个时期内,无论是理论上,还是实践中,都使我们陷入了极大的困惑之中。理论工作者在探索,实际工作者在实践,人们付出了极大的努力,试图回答和解决机构精简的恶性循环这一难题。如果我们不能从理论上揭示出 Institutional and organizational issues have always been one of the most difficult issues in executive management. Since the founding of the People’s Republic, China has conducted several large-scale structural reforms. However, it has had little success and has never broken the vicious circle of “streamlining-expansion-streamlining-re-expansion.” Faced with this situation, for a very long period of time, both in theory and in practice, have plunged us into great confusion. When theoretical workers are exploring and actual workers are practicing, people have exerted tremendous efforts to answer and solve the problem of the vicious cycle of institutional simplification. If we can not be theoretically revealed