一、问题的提出行政机关最主要的角色被设定为执行法律和政策,但这并非行政机关职能的全部。为了执行法律或上级政策以及行使宪法或组织法授予行政管理职能,行政机关还在不断制定政策、调整政策,以及在法律或政策实施活动中进行各种政策性决策。日本学者松下圭一就曾指出,“所谓行政,不再是目前为止错误理解的‘法的执行’,而是各层次政府决定的‘政 First, the issue put forward The most important role of the executive authorities is set to implement the law and policy, but this is not the full function of the executive. In order to implement law or superior policies and to exercise constitutional or organizational law to grant administrative functions, administrative agencies are constantly formulating policies, adjusting policies and making various policy decisions in law or policy implementation activities. Japanese scholars Kyu Kyu once pointed out: ”The so-called administration is no longer the“ law enforcement ”misunderstood so far, but a ’government administered by all levels of government