（一）法律史的发展告诉我们：法学对行政程序问题的关注远远晚于对行政实体规范的研究。这表明并不是国家形成以来人们就能意识到程序对行政行为的重要性。差不多进入到本世纪，先觉者才深深体会到仅仅依靠实体法已难以阻止行政机关滥用权力的弊端；没有行政程序，行政权在行? (A) the development of legal history tells us: Law on the issue of administrative procedures far behind the study of the norms of administrative entities. This shows that people are not aware of the importance of procedures to administrative behavior since the nation was formed. Almost entering this century, the enterprisers realized deeply that it was hard to stop the abuse of power by administrative organs by relying solely on substantive laws. Without administrative procedures and executive power, is it possible?