Research On The Role Of The National Bureau Managed By The Ministries And Commissions Of The State Council

Article 6 of the Administrative Establishments and Regulations of Authorized Strength Management of the State Council has clearly stipulated that the state administrative organs managed by the component department of the State Council shall be managed by the component department of the State Council,be in charge of particular businesses and exercise administrative functions.Since the establishment of the national bureau managed by the ministries and commissions directly under the State Council in 1993,it has been carried out their work in relatively independent,reducing the departments and matters directly governed by the State Council,and also helping to reduce the division of responsibilities between departments.The matters which originally coordinated between departments has changed into coordinated between the supervisory ministry and national bureau.This kind of effective organization pattern established by the state organs can help to improve administrative efficiency.According to the "Notice of the State Council on the Establishment of the National Bureau for the Management of Ministries and Commissions" issued by the State Council on March 22,2018,the State Council currently has 16 national bureaus under the management of the ministries and commissions,which are regulated by 11 State Council's component departments or subordinate agencies respectively.The adjustments of the National Bureau have traditionally obeyed and served the requirements of the overall reform of the institutions and the functional transformation of the State Council.Looking at the six institutional reforms of the State Council since 1993,the establishment of the National Bureau shows the coexistent characteristics of "flexibility" and "stability".By clarifying the National Bureau policy document of the Party Central Committee and the State Council since 1988,the author has clearly outlined the top-level design of the responsibility relationship between the National Bureau and the competent ministries from the perspective of the central government,and clarified the National Bureau's operating mechanism in the respects of the leadership system,request procedures and legislative powers as well as human resources,materials and finances,which have formed the basic background information for the analysis of the whole text.In order to get accurately and objectively the evaluation of the National Bureau and the operating mechanism of its competent ministries,the author conducted a full coverage interview and questionnaire survey on the national bureau and found an obvious problem between the two parties in which the "executed in the decision-making" of the constitutional competent ministries and the "real" role of"decision in execution" of the National Bureau.Part of the National Bureau actually equaled as the secondary ministries,because they are similar to the competent ministries in terms of functional allocation and institutional settings,not having a reasonable judgment standard in the duties of competent ministries,and so as to effects both functions.The following four specific aspects are:in terms of organizational structure,both of the National Bureau and the competent ministries belong to the divisional organization,but they don't realize effectively the "separation of policy-making from administrative management",and the management of the competent ministries to the National Bureau is far enough.Some competent ministries and related departments don't pay more attention to the independence of the National Bureau,regarding the National Bureau as subordinate ministries and directly affiliated units;in terms of organizational power,the definition of duties between them is not clear,and there are overlapping duties and powers.The authority of the competent ministries to manage the National Bureau's business is not enough,lacking the capacity of leading the major decision-making and the coordination of important matters;in terms of human resources,the management talents of the competent ministries in overall planning are insufficient;in terms of organizational culture,the cultural integration of the competent ministries and the national bureaus is difficult,and the awareness of "integrated departments" is not so strong.In terms of role-orientation,the author believes that the competent ministries should undertake the responsibility of comprehensive decision-making,and the National Bureau should assume the professional execution responsibility and establish an operating mechanism that coordinating well with each other and restraining each other,which perfects the decision-making,execution,and supervision rights.From the perspective of theory,on the one hand,decision-making and executive rights are distinct,and the departments of decision-making and executive have different forms of existence and interaction;on the other hand,under the background of the reform of the national system,the two parties have achieved the appropriate separation of the integrated decision-making and professional implementation in their role-orientation,with the inner demands and theoretical motivations in politics,society,economy,management and other aspects.Meanwhile,the public organization theory such as organizational reorganization provides a theoretical analysis tool for application and the author creates a theoretical analysis model for the whole text by it.After identified the problems,clarified the role-orientation and mastered the theoretical tools,the author tried to explore the institutional relationship between the National Bureau and its competent ministries under the guidance of the role of"should be".The author firstly conducted an empirical analysis of the "commonness"and "individuality" in the respects of institutional settings,staffing and guarantee mechanisms of 16 National Bureaus,introducing the current interaction between the two parties from the "general" level,classifying the evaluation of the institutional relationship between the National Bureau and the competent ministries based on the research data.In particular,the Food Bureau is a typical example of a relatively harmonious relationship with the institutions of the competent ministries,while the Civil Aviation Administration relatively exists many problems.By analyzing deeply the two typical cases of positive and negative,the main reasons for the problems are further explored and acquired the experiences that formed the "should"role-orientation of the comprehensive decision-making and professional execution,which have universal guidance.Although overseas countries don't have the institutional settings and organizational categories that are completely consistent with the functions of the National Bureau managed by the competent ministries,some countries have the super-ministry system that dynamically integrated between the cabinet and related separate institutions,this situation is similar to our National Bureau's organizational structure managed by the competent ministries.Particularly,from the perspective of interaction relationship of "decision to execution",western countries' central(federal)government organization structures that composed of a comprehensive government and specialized executive agencies have an important reference value to study how to better realize the role-orientation of the comprehensive decision-making and professional execution for our country's competent ministries and the National Bureau.The existence of inner independent institutions managed legally by the Cabinet of some countries provides a useful empirical reference and research perspective for optimizing the relationship between the two parties.Through the introduction of the related situation of foreign countries,especially the central government structure of the United Kingdom,the author also selects the US Department of Transportation and its Federal Aviation Administration as a typical case analysis,and finally forms reference and inspiration of the "overseas experience" for optimizing the role-orientation of the national bureau managed by the competent ministries.To promote fundamentally the role-orientation of the national bureau and to better optimize the institutional relationship between the National Bureau and the competent ministries,we should take into full consideration between the overall requirements of optimizing the organizational structure of the government and promoting the reform of the super ministry system.The general idea is,to adjust and define the responsibilities of the competent ministries and the National Bureau as the priority,to follow the efficient and uniform principles among decision-making,executive,and supervisory rights that coordinate well with each other and restraining each other,to divide rationally the responsibilities of the two parties and its operation and coordination mechanism as the main contents,to allocate scientifically the institutional specifications and staffing of the National Bureau,to cultivate high-quality comprehensive management and professional execution talents,to enhance the leadership and integration of culture,and to form a mechanism with defined powers and responsibilities,reasonable division of labor and coordinated operation.