公益组织参与灾害治理研究

【作者】 康晓强；

【导师】 秦绍德；

【作者基本信息】 复旦大学 ， 马克思主义中国化研究， 2010， 博士

【摘要】 从古自今,灾害与人类社会如影随形,相伴相生。“灾”与“害”不是必然的因果关系,“灾”未必致“害”。灾害本身是自然界演化、发展的必然产物,离开了承载主体的人与社会就无所谓因“灾”致“害”。灾害的本质是自然环境对人类的破坏性影响。灾害不仅直接影响建设、民生,还会导致社会关系的变化。影响全社会的灾害,要动员全社会来治理,这不仅包括政府,也包括各种社会力量。其中,公益组织就是一种重要的社会力量。公益组织以社会公益为目标取向,追求不特定多数人乃至全体人民的利益。公益组织基于公益的使命与价值逻辑,会更加关怀社会弱势群体的生活。因此,参与灾害治理成为许多公益组织的当然抉择。但是,公益组织作为一种重要的社会力量要能够参与到灾害治理中来并有效发挥一定的社会功能,其自身的成长也是至关重要的。改革开放以来中国公益组织的发育与发展为其在灾害治理中发挥社会功能奠定了主体性资源与现实基础。公益组织在灾害治理活动中发挥了政府所没有或难以起到的作用体现了其独特价值与重要地位,这是政府重视公益组织的现实基础,也是公益组织存在的现实依据。基于不同的分工与功能定位可将参与灾害治理的公益组织分为运作型、协调型与资助型三种类型。当然,这三种类型的边界也不是完全独立、截然分开的,彼此也存在千丝万缕的关联。加强、优化不同类型公益组织在灾害治理中的协同协作,对提升灾害治理绩效具有积极效应。合法的法律身份是公益组织生存之基、立足之源。公益组织是否能够、在多大程度上参与灾害治理,一方面需要灾害治理体制的认可和吸纳,灾害治理体制规约了公益组织参与灾害治理的制度空间,另一方面需要汲取和使用足够的社会资源,这是现实经济基础。从表面上看,公益组织参与灾害治理的制度环境涉及政府与公益组织之间的关系,实质上反映的是执政党与公益组织之间的关系。因此,在中国语境下探讨公益组织参与灾害治理的制度环境,还需关注执政党与公益组织的关系形态。公益组织参与灾害治理给我们呈现的是“冰山”露出海面的部分,深藏于“冰山”之下的部分却鲜为人所知,然而却是更为根本、更为本质的决定性动因,这就是支撑其外在行为的思想文化基础。基于目前中国公益组织发展的现实与基础,推进公益组织健康成长需要进行两大层面的建设：一是健全相关法律制度体系,为公益组织成长奠定基本、必要的制度生态与制度环境；二是优化、强化公益组织自身建设,使公益组织成为具有高度社会公信力、社会影响力的规范化社会组织,从而为其更好、更有效地发挥社会功能奠定坚实的内在根基。这两大层面建设在现实发展中是良性互动、相互促进的关系：只有建构一个稳定、健全的制度生态,公益组织才有可能健康成长,不致因外部的“风吹草动”而半途“夭折”；另一方面,只有强化公益组织自身全面、深度建设,也才能使与公益组织相关的法律制度体系日臻完备并在实际社会生活中有效发挥功能,从而推动制度的结构性转型,成为催生中国特色社会主义公民社会的“润滑剂”。因此,未来中国公益组织的成长必然建基于制度环境与能力建设这两根“支柱”之上。公益组织参与灾害治理是新形势下中国发展面临的重要社会现实课题,理应成为马克思主义中国化研究的重要使命。马克思等“老祖宗”在当时社会历史条件下不可能给我们提供现成答案,我们目前所要努力的是运用正确、科学的方法论来解决这一现实课题。系统、全面描述与分析公益组织参与灾害治理的历史发展逻辑,不是本研究的主要任务,也超乎本人的研究能力。本研究主要在于探解公益组织参与灾害治理在中国现实社会发展中的意义、作用及其限度,从而为提升灾害治理绩效提出有针对性的政策建议。更多还原

【Abstract】 Natural disasters get along with human beings from ancient times to the present. A hazard is just one of the causes of a disaster, that is to say, a hazard doesn’t cause a disaster inevitably. Disasters are the inevitable outcome of the evolution of the nature. It makes no difference whether it is a disaster if not taking account of the human beings. The essence of the disaster is the destructive influence of the nature on the human beings. Disasters not only have a direct effect on building and the people’s livelihood, but also result in the change of the social relations. Disasters affect the whole society, so we should mobilize the whole society to governance, including not only the government but also a great variety of social forces. Among them, non-governmental organizations are important social forces. Non-governmental organizations are oriented by the public interest and pursue the majority as well as all the people’s interests. Based-on the mission and value of the public interest, non-governmental organizations will pay more attention to the disadvantaged in society. As a result, a large multitude of non-governmental organizations will take part in the disaster governance without the slightest hesitation. However, it is crucial for their own growth if non-governmental organizations want to be able to participate in disaster governance and to play a certain social function as an important social force. Since the reform and opening up in 1978, Non-governmental organizations’rapid development lay the groundwork for their participation in the disaster governance.Non-governmental organizations execute unparalleled functions in the disaster governance that the government can’t replace, so this is the basis that the government attaches great importance to non-governmental organizations and this is also the basis that non-government organizations exist. By different functions and positions non-governmental organizations can be divided into three types——operating, coordinating and sponsoring. These three types are not independent from each other. In order to improve the performance of the disaster governance, these three types should strengthen and optimize cooperation among each other.Legal identity is essential to non-governmental organizations. The extent that non-governmental organizations participate in the disaster governance depends on the recognition and acceptance of the disaster governance system that regulates non-governmental organizations as well as on gathering and utilizing social resources. Superficially, non-governmental organization’s involvement in the disaster governance reflects the public relations with the government. In fact, it reflects the public relations with the reigning party. The involvement shows us only the tip of the iceberg above the sea. Under the sea is the fundamental motivation, i.e. ideology and culture.Based on the circumstances and fundamentals of development of non-governmental organizations in china, we need to improve the status quo in two aspects. The first is to compile a complete set of laws and regulations that is essential to provide non-governmental organizations with legal identity. The other aspect is to optimize and strengthen the self-construction of non-governmental organizations with the purpose of establishing their good reputation. Thus, non-governmental organizations can effectively execute social functions. These two aspects are interactive in two-way improvement of each other. On one hand, when a stable and complete legislative environment comes into being, non-governmental organizations can develop into good conditions and prevent themselves from destruction. On the other hand, when non-governmental organizations strengthen self-construction, legal system can be made complete and effective, thus pushing the transition of legal system. As a result, non-governmental organizations will develop on the bases of legislative environment and self-construction.The issue of how non-governmental organizations participate in the disaster governance is critical in current China.’s society and is supposed to be necessary in Marxist research under the circumstances of China’s society. The forerunners of Marxist could not provide solutions then, we need to figure out solutions with correct and scientific methodology. This research focuses on the exploration of the significance, effects and limits of non-governmental organization’s participation in the disaster governance under the conditions of China’s society instead of the comprehensive description of the history about non-governmental organizations’participation in the disaster governance and systematic analysis of developmental course.更多还原