行政組織編的編纂方向:功能與結構－－兼議行政組織編對整體型行政的回應

The Direction of the Section of administrative organizations: Function and Structure———The Response of the Section of Administrative Organizations to Holistic Administration

行政組織法的功能在於建構客觀組織秩序，在秩序理念之下，行政組織法在行政法中佔據中心地位，直接服務于國家治理體系和治理能力現代化，行政基本法典應當對行政組織單獨設編，填補當前行政組織制度存在的缺漏和不足。行政組織編有自身相對獨立的建構邏輯，我國公共行政的整體型特性，決定了客觀組織秩序的建構應當以保障職能科學、規範的“組織化分解”為核心。在“有助於職能實現”的導向下，將有關“組織化分解”的手段均納入行政組織編的調整範疇，建立“總則+分則”的體系。總則遵循“提取公因式”路徑，聚焦於個別性職能與整體性職能的實現，分則致力於調整特定領域的組織制度和組織手段。在結構設計時，行政組織編尚須區分一般行政機關與黨政合設合署機構，以不同的路徑處理與黨的組織法規的關係。

The function of administrative organization law is to construct objective organizational order. Under the concept of order, administrative organization law occupies a central position in administrative law and directly serves the modernization of national governance system and governance capacity. The basic administrative code should have a separate section for administrative organizations to fill the gaps and shortcomings of the current administrative organization system. The compiling of the section of administrative organizations has its own relatively independent logic, the holistic nature of public administration in China determines that the construction of objective organizational order should be concentrating on the scientific and normative 'organized decomposition' of functions. Under the guidance of 'facilitating the realization of functions', all means of 'organized decomposition'should be included in the scope of the section of administrative organization, by which construct a system of 'general rules + sub -rules'. The general rules follow the path of 'extraction of axioms', focusing on the realization of single functions and overall functions, while the sub-rules are devoted to adjusting the organizational system and means of organization in specific areas. In the structural design, based on the distinguishing of the general administrative organs and the Party and government joint agency, the section of administrative organization maytakedifferent pathsto deal with the relationship with the party’s organizational rules .