志愿失灵及其矫正中的政府责任

【作者】 孙婷；

【导师】 李俊清；

【作者基本信息】 中央民族大学 ， 民族地区公共行政管理， 2011， 博士

【摘要】 现代社会的志愿服务除了传统的慈善和扶弱济贫功能外,还在提高公民素质、培养社会责任感、促进公民参与、治理社会、推动社会文明等方面起着重要作用,有效发挥着矫正市场失灵和政府失灵的功能。但从世界各国志愿实践看,如同市场失灵和政府失灵一样,志愿组织也非现代社会治理的“完美工具”,同样存在着“志愿失灵”的现象,这就需要政府发挥自身优势,在矫正志愿失灵方面发挥其应有的作用。志愿失灵是志愿组织在提供志愿服务、满足社会需求等方面所产生的功能缺陷和效率困境。萨拉蒙认为,“志愿失灵”包括慈善组织能力的不充分、慈善的特殊性、慈善的父权性和慈善的业余性。萨拉蒙的“志愿失灵”理论是基于对西方社会福利国家的实践考察。然而,基于与西方社会不同的国情背景和志愿组织不同的成熟程度,我国的“志愿失灵”发生的机理和表象呈现着一定的“中国特色”。在政府主导型的社会发展模式下,中国式“志愿失灵”诸多表现与政府有着密切的联系。国内各地区基于历史条件、社会背景和资源禀赋等各方面的差异,在志愿服务实践中有着不同的发展历程和模式探索,呈现有一定的地区“特色”。但总体而言,在各地志愿服务发展过程中,政府的作用都是不容小觑的。与其它地区相比,北京志愿服务工作在申奥以前并没有呈现出太明显的领先优势,但在奥运会这个巨大发展契机的推动下,北京志愿服务发展速度和规模令世人瞩目,它已成为中国志愿服务的重要示范标志。以北京市为例开展志愿失灵问题的探讨不仅有利于促进对北京市志愿服务事业瓶颈问题的重视和关注,而且在全国也有着一定的普遍借鉴意义。经过对北京志愿服务发展的考察可知,现阶段北京志愿服务模式是以“自上而下”运作为主体,以“自下而上”运作为有效补充,政府在其中的主导推动作用非常突出。北京志愿失灵突出表现在志愿服务资金不足、人力资源缺乏、运作不规范和“官方色彩”浓重等几个方面。从深层原因分析,志愿失灵的种种表现与政府行为有着不可分割的联系。在中国特有的社会环境下,政府志愿服务相关制度供给不足和不规范的政府管理模式,是形成“中国式”志愿失灵的关键原因。考察志愿服务发达国家和地区的发展经验可知,政府和志愿组织结成了实质上的“伙伴关系”,志愿组织在确保民间独立性质的基础上,形成了“民办、官协”的发展模式。“民办”是充分发挥志愿服务事业自身优势的前提,但同时需要政府通过支持和监管等方式从中协助,以确保志愿服务事业良性发展的正确方向。政府是社会志愿服务事业的规划者和政策制定者,同时也是志愿服务的资助者、服务购买者,通过对其的政策规划、资助和服务购买,政府能实现对志愿服务的有效监管和督导,并充分发挥政府自身优势矫正志愿失灵。要真正发挥政府优势,实现矫正志愿失灵的功效,必须结合中国实践,首先重新恰当定位政府和志愿组织的关系,明确政府在其中的责任,为实践中政府在志愿服务中的具体作为提供明确而清晰的指引方向。合作制衡关系是中国政府和志愿组织未来关系定位的发展方向。合作制衡即是分工基础上的合作,在合作的同时,彼此牵制、互相监督和约束。无论是合作还是制衡,在政府和志愿组织关系模式的设计中有一基本的前提,即双方地位的独立平等。这是合作制衡关系区别于传统的控制从属关系的核心特征。在合作制衡关系模式下,政府需要重新定位在矫正志愿失灵中的职能,明晰其该作为和不该作为的职责界限。在实践中政府需要强化制度供给职能、扶持职能、环境营造职能、监管职能,对之前缺位的职能予以有效弥补,同时,放弃之前对志愿组织过多过细的具体事务和运作的干预,摈弃越位的领导控制职能,以最终实现其应尽职能的圆满归位。政府履行矫正志愿失灵责任的政策路径主要有增强和完善志愿服务相关制度供给、加强志愿服务相关政府机构建设、加大对志愿服务鼓励、扶持和引导的力度和构建完善的志愿服务监管体系等方面。更多还原

【Abstract】 Voluntary service in modern society has played an important role not only in traditional charity and poverty alleviation but also in improving civil competence, cultivating social responsibility, promoting citizen participation, strengthening social governance and promoting the social civilization. It has run effectively the function of the correction in market failure and government failure. However, according to international experience, voluntary organization is also not a "perfect tool" of ensuring good governance in modern society. There is also "voluntary failure" phenomenon existed as market failure and government failure. Thus the important role of government is to take its own advantages and then correct the voluntary failure.Voluntary failure can be defined as function defect and efficiency dilemma of voluntary organizations in providing voluntary service and meeting the social needs. Salamon proposed that voluntary failure can be summarized as follows:inadequate capacity of charitable organization, the charity’s particularity, the patriarchal nature and the amateur nature. The theory is constructed based on the study of western society’s practice. However, based on different social circumstances, the mechanism and the appearance of voluntary failure in china has showed certain "Chinese characteristics". A lot of performance of "Chinese voluntary failure" is closely linked with the government.The various domestic regions have different progressive history of voluntary service. Those present a certain area "characteristic". But overall, during voluntary service’s development process, the role of government should not be minimized. Compared with other regions, the voluntary service work in Beijing has not shown too obvious leading advantages before the Olympic bid. Olympic Games became the great opportunities of development of volunteer service in Beijing. Because of remarkable developing speed and scale, volunteer service of Beijing has become China’s important symbol of voluntary service. Case study of Beijing voluntary failure not only can promote attention and discussion of bottleneck problem in Beijing voluntary service, but also has the universal significance around nationwide. Currently the modes of voluntary service in Beijing have been recognized as the combination of "dominant up-down execution" and "attached down-up execution". The government has proved its leading role of advancing the development of voluntary service in Beijing.The salient difficulty involved with volunteer failure in Beijing has included as insufficient funds, lack of human resources, operational irregularities and administrative tendency. Analysis from the deep reason, all the above factors are inextricably linked with government performance. Therefore the key factors to voluntary failure in China can be attributed to the lack of perfect institutional law system and standardized administrative modes of government.According to international experience, the government and voluntary organizations has joined a virtual "partnership". Upon the guarantee of their independence, volunteer organizations have shaped two models: "civilian-run model" and "official-assist model". It means that volunteer organizations can take full advantage of folk character, but at the same time, it needs government’s assistance to support and supervise. Government’s assistance can ensure the development of volunteer services toward the right direction. To correct voluntary failure, government should not only play the role of the planners and policy makers of social volunteer service, but also the role of the bankroller and service buyers of volunteer service. We should properly re-orient the relationship between the government and voluntary organizations. It can indentify government’s responsibility in voluntary service and guide government’s action in practice. The future direction of the relationship between government and voluntary groups should be emphasized on the cooperative balance. The cooperative balance can be defined as both the cooperation upon the diffusion and the mutual restraint within the cooperation. Whether cooperation or balances, there is a basic premise that the separate and equal status of both parties. This is the core characteristics different from traditional control subordinate relationship.To shape the relationship between cooperation and balance relationship, government needs to redefine its function in correcting voluntary failure and then clarify boundary of responsibility and action. In practice, the government needs to strengthen the function of institution supply, support, environment construction and supervision. Meanwhile, government should not put too much intervention on volunteer organizations as before, instead, adjust its leading advantage to achieve the ultimate goal of making the government return its original position. Policy methods of correcting voluntary failure may contain several aspects, such as improving the legal system related to voluntary service, strengthening the construction of relevant government agencies, enhancing the encouragement, promotion and instruction efforts on voluntary service, and finally constructing perfect the supervised system perfectly.更多还原