我国公共服务领域政府与NGO合作机制研究

【作者】 车峰；

【导师】 荣仕星；

【作者基本信息】 中央民族大学 ， 民族地区公共行政管理， 2012， 博士

【摘要】 随着我国经济的快速发展和社会多元化步伐的加快,公共服务需求的全面快速增长与公共服务短缺、政府公共服务能力不足之间的矛盾日益突出。尤其是备受关注的基础教育、公共卫生、社会保障、环境保护与公共安全等基本公共服务供给不足的问题更为严峻,引起社会各界的广泛关注。与此同时,在全世界“社团革命”背景下,我国正面临着公共管理模式的转变和治理结构的转型。政府和一系列公共行为主体以多元的方式共同承担对公共事务管理的责任,NGO作为治理的主体之一,正扮演着越来越重要的角色。在公共服务供给中,NGO以其显著的公益性、志愿性、非营利性、灵活性等特点,显示了比政府具有低成本、高效率、灵活多变的优势,成为参与公共服务供给、解决公共服务需求的一种新制度安排和提供机制。因此,政府与NGO在公共服务领域中加强合作,对完善公共服务供给体系,提高公共服务质量和水平,推进公共服务均等化,形成良好的治理结构具有重要的意义。新中国成立60多年来,随着经济社会的不断发展,受我国经济、政治、社会体制变革,政府对NGO态度以及NGO自身成长的影响,我国公共服务领域中政府与NGO的关系经历了多次变迁,大致可以分为三个阶段：1949年—1978年,高度依附、垄断供给阶段；1978年—2006年,推动分离、协作供给阶段；2006年至今,培育服务、合作供给阶段。总的来说,我国政府与NGO的合作关系从无到有,在不断推进、深化,趋向是由不良结构上升为良性结构。目前公共服务中我国政府与NGO合作的类型主要有三种：协商参与、委托授权、服务外包和政府购买。但是,直到现在我国社会领域仍基本处于政府的全面控制之下,一元统摄的历史文化传统和制度安排仍制约着当今政府与NGO的合作关系,这使得双方的合作具有很强的“中国特色”,即政府与NGO之间是“强者”和“弱者”间不对等的依附性合作关系。究其原因,在于现阶段体制和制度的不完善,政府与NGO之间互动合作关系的建立还存在很多困难：政府和NGO合作环境缺乏、政府管理出现错位、非政府组织发展遭遇瓶颈等。美国、英国、菲律宾和香港地区的政府与NGO合作都较为成功,考察这些国家和地区政府与NGO合作的实践经验可知,要建立二者的良性合作关系,需要为NGO参与公共服务提供平等的机会；为合作营造良好的政策、法律环境；政府对NGO要扶持与监管并重；政府要积极推动购买NGO服务。根据我国公共服务供给中政府与NGO合作的现状,在借鉴海外经验的基础上,我们应该从系统的角度出发,在主体(非政府组织类型)、过程(公共服务过程)、结果(公共物品的类别)这三个维度上全面建立起一整套政府与NGO深度多层次合作的机制。现阶段构建我国政府与NGO合作机制的主要对策是：完善NGO发展的法律框架,创造支持合作的法制环境；完善NGO发展的政策框架,创造支持合作的政策平台；完善政府对NGO的监管,创造支持合作的管理体制；加强NGO自身建设,增强合作的能力。更多还原

【Abstract】 With the rapid development of China’s economy and the acceleration of the pace of social diversity, the contradictions have become increasingly prominent which between the comprehensive rapid growth of demand for public services and the shortages of supply and capacity of government public service. Especially for the subjects of insufficient of basic public service such as basic education, public health,social security, environmental protection and public security which are concerning becoming more severe and arousing extensive concern of all circles in society.In the meantime, China is facing a shift of the public administration mode and governance structure against the backdrop of the worldwide "community revolution". Government and a serious of public behavior take the responsibility of public affairs in multiple ways, NGO is playing an increasingly important role as one of the main body of governance. In the public service, NGO is showing the advantages of lower cost, higher efficiency and more flexibility than government with its features like public, voluntary, nonprofit and flexibility, and becoming a new institutional arrangement and provide mechanism involved in public service and the demand of public service. Therefore, aiming at improving the public service system, enhancing the quality and standard of public service and promoting equalization of public service, it has a great significance for the government to strengthen the cooperation with NGO.Since the establishment of the People’s Republic of China, As the economy progress and society advances, and influenced by reform of the system of economy, society and politics, attitude of the government towards NGO and the NGO’s growth, the relationship of our government and NGO in the field of public service have been through many changes which could be divided into three stages:the first stage was in1949-1978, with a high degree of dependence and monopoly supplement; the second stage was in1978-2006, which set its goals to promote the separation and collaborative supplement; the last stage was aiming at developing the service and the cooperation supplement since2006. Overall, the cooperative relations between the government of China and NGO started from scratch, constantly advancing, with a deepening trend increased by poor structure to benign structure. Nowadays, there are three main types of cooperation between the government and NGO for current public service in our country:consultative participation, entrust authorized, service outsourcing and governmental purchases.However, our society is still in a complete control of the government, and an unifying the historical and cultural traditions and institutional arrangements still restrict the relationship between the government and NGO, which makes the cooperation has an obvious "Chinese characteristics", which means that the cooperative relationship between the government and NGO is an unequal dependent relations of cooperation between the "strong" and the "weak". The reason is that nowadays the system is still imperfect, and there are still many difficulties in the establishment of cooperative relations between government and NGO:the lack of cooperation environment, the dislocation of government management, the bottlenecks in development of NGO.The cooperation between the government and NGO in the United States, Britain, Philippines and Hong Kong are successful. Through the investigation of the practical experience in these countries and regions, it shows that to establish the benign cooperation relations, it needs to provide an equal opportunity for NGO in participating in public service, create a good policy and legal environment, get the support and supervision of NGO capacity from the government and the government would actively promote the purchase NGO service.According to the present cooperative situation among the government and NGO in the public service system in our country, based on the reference to overseas experience, we should proceed from the systematic point of view, and establish a comprehensive set of government and NGO depth multi-level cooperation mechanism in the three dimensions of the category:subject(NGO types), process (public service process) and the results (public goods categories)Nowadays, the main countermeasures to build the mechanisms for cooperation between our government and NGO could from aspects of improving the legal framework of the NGO development, and creating a legal environment that supports cooperation; improving the policy framework, and creating a policy platform to support cooperation; heightening the government regulation of NGO, and creating a management system that supports cooperation; strengthening the NGO self-construction to enhance their cooperative ability.更多还原