本文试图从新制度经济学理论中外在制度的概念界定行政法规,论证其实施过程中的监督重要性、分析其实施过程中监督缺失的主要原因。再通过结合兰考孤儿火灾遇难事件剖析广泛存在的集体行动困境和委托代理问题。政府部门利用信息不对称,从自身角度产生机会主义行为往往导致监督缺失,导致行政管理活动低效或者不合理,产生一系列社会问题。 This paper attempts to define the administrative regulations from the perspective of the new institutional economics theory, and demonstrate the importance of supervision in the process of its implementation and analyze the main reasons for the lack of supervision in the process of its implementation. And then through the combination of Lankao orphans fire victims analysis of the widespread existence of collective action dilemma and agency problem. The use of information asymmetry by government departments and opportunistic behavior from their own perspective often result in the lack of supervision, resulting in inefficient or unreasonable administrative activities and a series of social problems.