行政包干的组织基础

回应“行政包干”的缘起问题，针对“成本衡量”说，本文建议从行政机体本身的特性和历史关系，说明发包制的存在。由于政府的多元角色、多中心控制权的组织关系以及对执行工具的依赖，政府系统逐渐发展出具有灵活适应性的、不同于单一科层体系的、能够利用上述组织环境的方法，来推进任务的执行。“行政包干制”顺势于不言自明的控制权范围，通过默许、交换和隐形授权，将目标和利益不同的组织容纳于一体，形成了今天治理体系中混合共生的形态。因此，政府行政体系的组成结构、其内部真实的组织关系和多元角色是发包制产生的基石。

The Organized Foundation of Administrative Subcontract

As a response to the issue of the origin of “administrative subcontract” in China, different from the “cost measuring” explanation, this paper suggests that the roots of the subcontracting system could be found in the body of the administrative organization, its own characteristics and historical ties. Due to its multi roles, its multi centered organizational form, and its dependence on organizational implement tool, the government system has gradually developed a flexible and adaptable way which is capable of employing the above mentioned organizational environment to perform tasks. This has made it different from a single bureaucratic system. Taking advantage of the self evident control power, “administrative subcontract system” manages to gather organizations with different goals and interests by means of acquiescence, exchange and invisible authorization, which ends up forming a mixed system of governance we can see today. Therefore, the structure of government administrative system, its internal organizational relationships and its multi roles, is the cornerstone based on which the sub contracting system comes into being.