事业单位是我国主要承担公共服务职能的公共机构，改革开放以来，我国事业单位的改革一直在不同层面上持续推进，但许多深层次的体制机制问题尚未解决。必须依法分类推进事业单位改革，以提高公共服务的效能效率，促进社会和谐。应当将行使行政监管与执法职能以及进行营利活动的公办组织从事业单位剥离，将其定性为相对独立承担公共服务职能的组织，从组织结构角度分为两类。公务法人作为公法人，独立履行法定任务和承担相应责任，同时必须遵守国家法律并接受国家的监督。公务法人的治理结构主要有两部分组成，即决议机关和执行机关。决议机关为理事会，负责对重大问题的审议、决策，理事一般包括相关政府机构代表、雇员代表、用户代表、独立专家等。执行机关为主席或总经理，主要负责日常管理工作。另一类是执行机构。执行机构不具有独立的法律人格，法律责任由所属政府部门承担，但为保障执行机构的活力与效率，应赋予其一定的自主权，并对其运作机制进行改革，例如可从公务员队伍之外招聘职业经理人作为首席执行官，按照其与相关政府部门签订的框架协议进行管理，相关政府部门依据框架协议定期对其绩效进行考评。目前事业单位改革主要依据各相关部门或地方制定的关于事业单位改革的政策性文件分散推进，难以避免部门和地方视角的局限性，很多需要由中央政府决断的重要事项也难以在其中规定，建议下一阶段的事业单位改革应由中央做整体规划、统一部署和综合协调，为保证改革方案的科学性和权威性，应由全国人大常委会制定《事业单位改革法》或者至少由国务院制定综合性的《事业单位改革条例》，明确事业单位改革的目标、原则和步骤，规定推进事业单位的负责机构和利害关系人、专家与公众参与改革的方式、途径，设定未来事业单位的组织形态、治理结构、活动原则和监督机制等。

Reform of the Administrative System

and the Rule of Law in AdministrationLi Honglei, Law Institute， CASS

Abstract:In July,2007,the State Council convened a national meeting to push forward administration according to law in local governments at the levels of municipality and county.The State Council adopted the Regulation on the Organization Establishment and Staffing Administration of Local Peoples Governments at All Levels and the Regulation on the Punishment of Civil Servants of Administrative Organs.The Rules on the Settlement of Personnel Disputes was also enacted.These regulations and rules improved Chinese legal systems of administrative organization and civil servants.The legislative affairs department of the governments cleared up the outdated,unlawful,and improper administrative rules,and some local congresses or governments enacted supervision procedures of administrative rules.The State Council required the discretion guidelines for administrative punishment be established,and some local governments have met the requirement.The reform on comprehensive administration of law was furthered actively.In order to construct open and transparent governments,the State Council issued the Regulation on the Disclosure of Government Information.The Regulation on the Implementation of the Administrative Reconsideration Law was adopted by the State Council as well.The administrative law enforcement responsibility system and the administrative accountability system were pushed forward.The Report to the Seventeenth National Congress of the Communist Party of China pointed out the future direction of reform of administrative system and administrative law.But some cases and events showed that there were still many difficulties and problems in constructing governments ruled by law in China.

Key Words: Administration According to Law; Administrative Regulation; Administrative Enforcement of Law;Reform of Administrative System