行政改革本质上是一次对权力和权利进行重新界定的制度变迁过程 ,在更深层的意义上 ,它是一个利益关系变动过程。制度变迁的初始条件及“路径依赖”决定了当前中国行政改革具有渐进性、过渡性及滞后性特征 ,改革的难点是行政权力的重新界定与规范运行 ,这是一种“非帕雷托改变” ,必然改变原有的利益分配格局 ,由此而产生的“摩擦成本”使改革更显复杂 Administrative reform is essentially a process of institutional change that redefines power and rights. In a deeper sense, it is a process of changing interest relations. The initial conditions of institutional change and “path dependence” determine the gradual, transitional and lagging characteristics of China’s current administrative reform. The difficulty of reform lies in the redefinition and standardization of administrative power. This is a “non-Pareto change ”, Inevitably change the original pattern of distribution of benefits, the resulting“ friction costs ”make the reform even more complicated