This article aims to demonstrate that functional standard of opening archives to the public replaces positional standard of national authority as the way to divide archives type, and further promotes that transferring national archives into public archives should be by legislation. Moreover, it guides the relationship of inter-archives should transfer from cut-throat competition arguing about who can represent national authority into healthy competition comparing who can provide better services to the public. Only in this way, to be the countermeasure, the problem of resources belongingness and flowage of national archives can be fundamentally solved.