走向“合规性监管”——改革开放40年来社会组织管理体制发展回顾与展望
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摘要
改革开放后逐步形成的"双重管理"体制在有效稳定社会组织发展秩序的同时,阻碍社会组织的数量增长和质量提升。对"双重管理"体制的调整和变革以放松特定类型社会组织的登记、允许行业协会商会适度竞争、加强事中事后监管、建立综合监管体系等为主要内容,初步呈现从"掌控型监管"向"合规性监管"转型的趋势。当前,社会组织监管体制中仍然存在政策体系不完备、准入管理未从根本上放松、对社会组织的日常管理干预过多、同业监管难发展、社会组织自我监管动力不足等问题。"合规性监管"体制的最终形成有赖于改革的持续推进,需要建构以非营利监管为核心的政策体系,进一步放松准入管理,发挥党建引领社会组织发展的作用,为同业监管的发展创造制度条件,放松竞争限制、促进社会组织自律。
"The Dual Management"which gradually formed after the Reform and Opening-Up has effectively stabilized the development order of social organizations, while also has hindered the quantity growth and quality improvement of social organizations. The main contents of the adjustment and reform of "the Dual Management"system include relaxing the registration of specific types of social organizations, allowing business associations to compete moderately, strengthening post-event supervision system, and establishing a comprehensive supervision system, which preliminarily presents the trend of transition from "Control Supervision" to "Compliance Supervision". At present, there are still some problems in the supervision system of social organizations, such as incomplete policy system, strict access management, excessive interference in the daily management, difficulties in the development of industry supervision, and insufficient motivation for self-regulation of social organizations.The establishment of the "Compliance Supervision"system depends on the continuous advancement of reform. It is required to construct a policy system with non-profit supervision as the core, further relax access management,and let the Communist Party guide the development of social organizations, create institutional conditions for the development of inter-industry supervision, relax competition restrictions and promote the self-regulation of social organizations.
"The Dual Management"which gradually formed after the Reform and Opening-Up has effectively stabilized the development order of social organizations, while also has hindered the quantity growth and quality improvement of social organizations. The main contents of the adjustment and reform of "the Dual Management"system include relaxing the registration of specific types of social organizations, allowing business associations to compete moderately, strengthening post-event supervision system, and establishing a comprehensive supervision system, which preliminarily presents the trend of transition from "Control Supervision" to "Compliance Supervision". At present, there are still some problems in the supervision system of social organizations, such as incomplete policy system, strict access management, excessive interference in the daily management, difficulties in the development of industry supervision, and insufficient motivation for self-regulation of social organizations.The establishment of the "Compliance Supervision"system depends on the continuous advancement of reform. It is required to construct a policy system with non-profit supervision as the core, further relax access management,and let the Communist Party guide the development of social organizations, create institutional conditions for the development of inter-industry supervision, relax competition restrictions and promote the self-regulation of social organizations.
引文
[1]郁建兴,周俊.后双重管理体制时代的行业协会商会发展[J].浙江社会科学,2013,(12):53-61,77,15.
[2]康晓光,韩恒.分类控制:当前中国大陆国家与社会关系研究[J].社会学研究,2005,(6):73-89.
[3]邓正来,丁轶.监护型控制逻辑下的有效治理——对近三十年国家社团管理政策演变的考察[J].学术界,2012,(3):5-26.
[4]刘鹏.从分类控制走向嵌入型监管:地方政府社会组织管理政策创新[J].中国人民大学学报,2011,(5):91-99.
[5]王名.中国民间组织30年:走向公民社会[M].北京:社会科学文献出版社,2008:21.
[6]王勇.全国直接登记社会组织已超3万[N].公益时报,2015-03-17(03).
[7]SUCHMAN M C. Managing legitimacy:Strategic and Institutional Approaches[J]. Academy of Management Review,1995,20(3):571-610.
[8]OLIVER C. Strategic Responses to Institutional Processes[J]. Academy of Management Review,1991,16(1):145-179.
[9]保罗·迪马吉奥,沃尔特·鲍威尔.关于铁笼的再思考:组织场域中的制度性同形与集体理性[C]//保罗·迪马吉奥,沃尔特·鲍威尔.组织分析的新制度主义.姚伟,译.上海:上海人民出版社,2008:68-87.
[10]PACHE A C&SANTOS F. Embedded in Hybrid Contexts:How Individuals in Organizations Respond to Competing Institutional Logics[J]. Research in the Sociology of Organizations,2011,39(8):3-35.
[11]MAMMAN A. The Adoption and Modification of Management Ideas in Organizations:Towards an Analytical Framework[J]. Strategic Change,2002,11(7):379-389.
[12]BOXENBAUM E&BATTILANA J. Importation as Innovation:Transposing Managerial Practices across Fields[J].Strategic Organization,2005,3(4):355-383.
(1)主要政策包括《民政部关于探索建立社会组织第三方评估机制的指导意见》(2015)、《国家税务总局关于明确社会组织等纳税人使用统一社会信用代码及办理税务登记有关问题的通知》(2016)、《社会组织登记管理机关行政执法约谈工作规定(试行)》(2016)、《社会组织登记管理机关受理投诉举报办法(试行)》(2016)、《社会组织信用信息管理办法》(2018)等。
(1)6大类是指:经济类(工商业服务、农业及农村发展、职业及从业组织)、社会类(社会服务)、环境类(生态环境)、文化类(文化、体育、法律、宗教、科技与研究、教育、卫生)、国际类(国际及涉外组织)和其他。
(2)《意见》将可直接登记的公益慈善组织规定为“提供扶贫、济困、扶老、救孤、恤病、助残、救灾、助医、助学服务的公益慈善类社会组织”。
[2]康晓光,韩恒.分类控制:当前中国大陆国家与社会关系研究[J].社会学研究,2005,(6):73-89.
[3]邓正来,丁轶.监护型控制逻辑下的有效治理——对近三十年国家社团管理政策演变的考察[J].学术界,2012,(3):5-26.
[4]刘鹏.从分类控制走向嵌入型监管:地方政府社会组织管理政策创新[J].中国人民大学学报,2011,(5):91-99.
[5]王名.中国民间组织30年:走向公民社会[M].北京:社会科学文献出版社,2008:21.
[6]王勇.全国直接登记社会组织已超3万[N].公益时报,2015-03-17(03).
[7]SUCHMAN M C. Managing legitimacy:Strategic and Institutional Approaches[J]. Academy of Management Review,1995,20(3):571-610.
[8]OLIVER C. Strategic Responses to Institutional Processes[J]. Academy of Management Review,1991,16(1):145-179.
[9]保罗·迪马吉奥,沃尔特·鲍威尔.关于铁笼的再思考:组织场域中的制度性同形与集体理性[C]//保罗·迪马吉奥,沃尔特·鲍威尔.组织分析的新制度主义.姚伟,译.上海:上海人民出版社,2008:68-87.
[10]PACHE A C&SANTOS F. Embedded in Hybrid Contexts:How Individuals in Organizations Respond to Competing Institutional Logics[J]. Research in the Sociology of Organizations,2011,39(8):3-35.
[11]MAMMAN A. The Adoption and Modification of Management Ideas in Organizations:Towards an Analytical Framework[J]. Strategic Change,2002,11(7):379-389.
[12]BOXENBAUM E&BATTILANA J. Importation as Innovation:Transposing Managerial Practices across Fields[J].Strategic Organization,2005,3(4):355-383.
(1)主要政策包括《民政部关于探索建立社会组织第三方评估机制的指导意见》(2015)、《国家税务总局关于明确社会组织等纳税人使用统一社会信用代码及办理税务登记有关问题的通知》(2016)、《社会组织登记管理机关行政执法约谈工作规定(试行)》(2016)、《社会组织登记管理机关受理投诉举报办法(试行)》(2016)、《社会组织信用信息管理办法》(2018)等。
(1)6大类是指:经济类(工商业服务、农业及农村发展、职业及从业组织)、社会类(社会服务)、环境类(生态环境)、文化类(文化、体育、法律、宗教、科技与研究、教育、卫生)、国际类(国际及涉外组织)和其他。
(2)《意见》将可直接登记的公益慈善组织规定为“提供扶贫、济困、扶老、救孤、恤病、助残、救灾、助医、助学服务的公益慈善类社会组织”。