中国扶痘副会长何道峰

中国扶痘副会长何道峰 政府与非政府组织互动促进减贫 Government-NGO Interaction for Poverty Reduction 中国扶贫基金会副会长 何道峰 He Daofeng Vice President of China Foundation for Poverty Alleviation 这是一个很大的话题15分钟显然不够今天就开个头吧 This is a big topic and can not be clarified within 15 minutes Lets just make a start 一学术层面 政府与非政府的分野及社会根源 I Academic Dimension – Government NGO Division and its Social Root 1非政府组织是市场经济 发展到一定阶段的产物 是一种公共事务社会分工的组织载体 1 NGO is a product of market economy at a certain development period and an organizational carrier of the division of social public affairs 1市场经济之前的农业文明其组织载体主要是家庭和政府 1In the agricultural civilization prior to the market economy the two main organizational forms of the society were family and government 家庭的社会功能私务人类再生产 财富创造 Familys Social Function private affairs reproduction wealth generation 政府的社会功能公务 赋税公共秩序与安全 Governments Social Function public affairs taxes social order and security 2市场经济后 的工业文明和后工业文明 其组织载体分化 2In the Industrial civilization and post industrial civilization after the marketization economy the organizational carriers divided as 家庭 公司 私务 Family Corporation Private affaires 政府 非政府公务 Government NGO Public affaires 3三大部门还是四大部门 Three Sectors or Four Sectors ? 公司 创造社会财富的组织载体 ? Corporations the social carrier for wealth generation ? 家庭 人类再生产及辅助创造财富的组织载体 ? Corporations the social carrier for human reproduction and assistance to wealth generation ? 政 府 处理公共事务的组织载体 ? Government the carrier for public affairs ? 非政府 公民自组织协助政府处理公共事务的组织载体 ? Non-governmental Non-profitable organizations the carrier for citizens autonomous organizations to assist the government in addressing public affairs 2政府与非政府的区别 动员资 源的方式差别 2Differences between government and NGO the difference in mobilizing resources 1政府 运用国家机器赋税 1 Government use state apparatus to mobilize social tax resources 2 非政府 运用社会良知与互动去动员社会志愿 2 NGO use social conscience and interaction to mobilize social volunteering 3产生非政 府组织的社会根源 3(The social root of NGOs birth 1财富与闲瑕的增加 1 The increase of wealth and leisure 2社会同情心与贫富差距的存在 2 Social sympathy and the existence of rich and poor gap 二政府与非政府 组织互动 减贫的国际经验辨析 II Analysis of International Experience in Government-NGO Interaction for Poverty Reduction 1非政府组织天生与政府组织是不平等的互动要跨越传 统的僭越观念 1 Since NGOs and government organizations are innately unequal interaction 2建立信任互动减贫经历了长期的历史过 程 2 It has been a long historical period for establishing mutual understanding and interaction for poverty alleviation 3无数志愿人员 付出了艰辛的努力 而不是等那个假想的政府睡醒 3 Innumerable pioneers had worked so hard and did not wait for the fictitious government to wake up ?卡内基洛克菲勒斯坦福福特等等 Carnegie Rockefeller Stanford Ford etc ?非政府成为公共事务中不可忽视 的力量 NGOs have become a non-negligible new force in social structure ?非政府的行业自律与公信力建设 NGOs sectoral self-discipline and accountability building 三中国政府对非政府组织的 心理困惑及其互动减贫的影响 ? Psychological Perplexity of Chinas Government Organizations on NGOs and Their Impact on Interaction 1中国的非政府组织不是从社会分工中自然发 育出来而是从西方照搬从政府组织中分蘖出来因此具有早产的诸多特性 1 Since Chinas NGOs are separated from governmental organizations by copying the western pattern rather than naturally born from social division they have many abortive features 2定位 2 Definition 帮 助政府找钱扶贫 有用 Helping the government locate money usefulness 老干部发挥余热 放心 Veteran officials contributing and working after their retirement reassurance 3这种定义促 成了快速分蘖及双重管理体制的诞生 3 Such definition facilitated the rapid growth and the emergence of dual administration models for Chinese NGOs 1登记制管理 1 Registration system 2行政部门管理 2 Administration system 四中国非政府组织的困惑及其与政府的互动减贫 ? Perplexities Faced by Chinese NGOs and Their Interaction with Government Organization 1片面定义和双重管理体制导致NGO的政府依赖性 1( Lopsided definition and Dual administration system resulted in the NGOs dependence on government 2NGO的政府依赖性对志愿市场发育的不良影响 2 NGOs dependence on government imposed bad influence on the growth of volunteering market 3缺乏规划与管理使NGO的行业公信力受到质疑 3 Lack of planning and management leads to the query in NGO sectoral accountability 4非政府与政府的互动常常带有很强的跑部和照顾色彩从 而缺乏互动或互动不足 4 The so-called GovernmentNGO interaction is usually featured by lobbying the government and taking care by the government and lack of real interaction or insufficient of interaction 五如何在双轨制下加强NGO与GO的互动来促进减贫 ? How to Strengthen Under the Dual System Interaction Between Government Organizations and NGOs to Facilitate Poverty Reduction 责任来自双方及其幼稚的社会志愿市场随着人均GDP进入快速成长期市场变化 很快机遇与挑战并存 Responsibility lies in both Governments and NGOs and the puerile volunteer market However with Chinas per capita GDP entering a rapid growth period volunteer market will also experience rapid expansion Both chances and challenges existed 1提升对NGO的定位 不仅辅助找钱扶贫就是社会公平良知与和谐创造的新生力量是与政府协同促进 公共事务资源增加范围扩张和效率提升的社会公共事务载体其每个组织的使命 战略和治理水平远比辅助找钱更加重要 First enhance understanding of NGOs definition An NGO is not only the assistant of the government in mobilizing funds for poverty alleviation but also the new force for creating social equity intuitive knowledge and harmony as well as the new carrier for organizing public affairs that works together with the government to promote the increase of resources for public affairs and the expansion and improvement in the efficiency of public affairs The positioning of the mission strategy clients and market as well as governance levels of each NGO should be far more important than mobilizing funds 2逐步强化社会监管弱化行政管理形成替代效应 2 Gradually strengthen public supervision and weaken governmental administration to produce replacement effect 3通过行业管理与公信力识别促进好的NGO 成长坏的NGO消亡 3 Facilitate the growth of good NGOs and the elimination of bad NGOs through sectoral self-discipline and accountability 4非政府组织着力提升治理水平专业技能和公信力水平 4 NGOs focus efforts to improve governance capacity professional skills and accountability level 5对NGO开放政府公共资源形成实质性互动 5 Open governmental and public resources to NGOs and carry out substantial interaction 需要政府非政府志愿市场及社会精英坚持不懈的示范性努力 It needs the unremitted and demonstrative efforts of governments NGOs volunteers and social elites 国务院扶贫办与中国扶贫基金会所进行的互动 性探索个案 Case Study Explorations Conducted by State Council Office of Poverty Alleviation and China Foundation for Poverty Alleviation 11996年国务 院扶贫开发领导小组的决策改革基金会管理体制从会长负责制到秘书长负责制 1 In 1996 State Council Leading Group for Poverty Alleviation and Development decided reform the system of CFPA change the president responsibility system to the executive director responsibility system 实质会长会议与秘书处专业团队共同治理重大决策与日常经营管理分离 Essence a joint system of governance by the team of veteran officials led by the President and the professional team led by young executive director to separate the major decision-making from the daily management 21999年国务院扶贫办批准中国扶贫基金会不设行政级别取消事业编制 2 In 1999 State Council Office of Poverty Alleviation approved CFPA to remove its administrative level and the state wage payroll system 实质弱化行 政管理强化社会监管 Essence Weaken the governmental administration and strengthen social supervision 32000年国务院扶贫办积极倡导将 坚持政府 主导引入NGO参与中国政府扶贫项目机制促进NGO参加扶贫公益资源竞争创新扶 贫模式提高扶贫效率写入国家十年扶贫纲要 3 In 2000 the State Council promulgated the Program for Poverty Alleviation for the first ten years of 21st century Adhere to government leadership introduce NGOs to participate in the implementation of poverty alleviation programs of the Chinese Government facilitate NGOs to participate in competitions for public-good resources for poverty alleviation develop innovative poverty alleviation models and improve poverty alleviation efficiency 42001年国务院扶贫办支持中国扶贫基金会就此议题召开 300多家中外NGO与政府参 加的中国NGO扶贫国际会议出版了《NGO扶贫历史使命》系列丛书联合发表了《北 京宣言》 4 In 2001 supported by the State Council Office of Poverty Alleviation CFPA held the International Conference on NGOs Poverty Alleviation Policy in China with over 300 governmental and NGO participants published the series on the Historical Mission of NGOs for Poverty Alleviation and issued the Beijing Joint Declaration 52000-2005年在国务院扶贫办支持下中国扶贫基金会2000-2005年在国务院扶贫办支持下 中国扶贫基金会先后在云南福建宁夏辽宁重庆河北山西等地渐进式地推动政府 与非政府组织合作通过签约-委托-风险管理等有效的安排 促使政府将扶贫 资金委托非政府组织管理政府则将精力集中于扶贫资金使用效率研究扶贫效益 监管和资金风险监管方面 Between 2000 and 2005 supported by the State Council Office for Poverty Alleviation CFPA promoted in a progressive manner cooperation between government and non-government organizations in Yunnan Fujian Ningxia Liaoning Chongqing Hebei Shanxi and others urging the government to entrust the management of poverty alleviation funds to NGOs through the effective institutional arrangements such as signing contracts-entrusting-risk management while the government concentrated its efforts on studies of use efficiency of poverty alleviation funds supervision of poverty alleviation benefits and regulation of funding risks 通过这种积极探索目前这些省份委托中国扶贫基金会管理用于小额信贷 扶贫项目和母婴平安扶贫项目的资金累计超过5000万元开创了政府组织与非政 府组织合作互动与减贫的先河 Through such positive explorations the accumulative amount of funds entrusted by these provinces to be managed by CFPA and used for Micro Finance Poverty Alleviation Project and Maternal and Infant Health Project has outnumbered 50 million yuan setting the first example of cooperation and interaction between government and non-government organizations for poverty alleviation 2005年国务院扶 贫办与世界银行共同主办中国发展市场项目旨在以支持创新扩大服务惠及穷人 为主题该项目委托中国扶贫基金会承办该项目虽然最终因世界银行筹款原因仅 有 30个民间草根NGO获赠款65万美元但该项目通过政府组织与非政府组织的 有效互动与合作使975家全国各地的草根NGO组织卷入该项目的申请通过项目竞 赛知识论坛和项目展示加强了非政府草根组织之间及其与政府组织的充分互动 产生了较大的社会影响力 In 2005 State Council Office for Poverty Alleviation and the World Bank jointly sponsored China Development Marketplace Project with the objective to support innovations expand service and reach the poor The project was implemented by CFPA Although the project received only US650000 grants from the World Bank for 30 grassroots NGOs through effective interaction and collaboration between government and non-government organizations it attracted 975 grassroots organizations nationwide to apply for project funds strengthened effective interaction among non-government grassroots organizations and their interaction with government organizations through competitions knowledge forum and project demonstrations hence producing significant social impacts 2006年基于国务院扶贫办与财政部和亚洲开发银行于2005年2 月共同签署的合作备忘录在江西开展非政府组织政府合作项目该项目将政府用 于村级综合扶贫的资金委托中国扶贫基金会进行项目规划和制订招标并通 过市场招标方式对NGO草根组织开放政府则回归到扶贫监测和资金监控的位置 上来亚洲开发银行提供技术援助 In 2006 based on the MOU signed in February 2005 between State Council Office for Poverty Alleviation Ministry of Finance and Asian Development Bank the NGO-government Partnership in Village-level Poverty Alleviation was implemented in Jiangxi The project entrusted government funds for comprehensive poverty alleviation at the village level to CFPA to conduct project planning and development bidding proposals It also opened to NGOs through the approach of open bidding while the government was responsible only for poverty alleviation monitoring and funding supervision and control The Asian Development Bank provided technical assistance 该项目首次开放1000万元资金共计20个村庄的综合扶 贫标的经过公开招标评委独议评标和投票共有10家草根组织中标项目通过合约 规范能力建设团队建设和入村工作有效地搭建了村民与项目设计管理专家之间 村民之间非政府组织与政府组织之间积极沟通与互动的平台将公共扶贫资源的 使用和管理首次置于公开化的社会监督之下开创了政府与非政府组织互动以促 进减贫的先河 The project opened for the first time 10 million yuan for comprehensive poverty alleviation bids at 20 villages Through open bidding independent evaluation by the Bid Evaluation Committee and voting 10 grassroots organizations won the bids Through contracts capacity building team building and village work the project effectively set up a platform for active communication and interaction between villagers and project design and management experts among villagers and between non-government and government organizations and brought for the first time the use and management of public poverty alleviation resources under open social supervision setting the first example interaction between government and non-government organizations for poverty reduction 2005年12月江西项目正式启动2006年 2月17日召开评标会最终选出 6家NGO作为第一批项目执行单位 我们是否可以从国务院扶贫办上述一系列试验中得到 启示呢 Can we obtain some enlightenments from the series of pilots mentioned above carried out by the State Council Office for Poverty Alleviation 筛查孕妇 信息管理 孕期管理 住院分娩 项目资助 每一位孕产妇 手中均有获得项目资助的 《受援卡》 图12006中国发展市场评选结果揭晓暨赠 款仪式 图2世界银行副行长傅兰妮中国财政部副部长李勇 国务院扶贫办副主 任王国良在磋商项目进展情况 图3财政部副部长李勇国务院扶贫办副主任 王 国良在 2006中国发展市场评选结果揭晓暨赠 款仪式上为捐赠机构颁奖 图4世 界银行中国局杜大伟局长中国民政部民间 组织管理局李勇副局长国务院扶贫办 吴忠司长为 2006中国发展市场项目展示剪彩 图52006中国发展市场入围项目 展示 图6世界银行中国局副局长刘晓云女士 为中国扶贫基金会颁发纪念奖碑 图7获奖机构在中国发展市场评选结果揭晓暨赠款仪式上领取获奖证书 图 82006中国发展市场知识论坛 2006年4月项目专家在南昌对项目执行NGO 进行村级规划的培训 亚行首席代表涩市彻先生在国务院扶贫办 江西省扶贫办 陪同下去宁都县沙子岭进行 项目点的考察并走访贫困农户 项目执行机构NGO 深入江西项目点运用各自机构的经验采取参与式的方式到项目村开展工作 各项 目执行 NGO按照与村民一起制订的规划进入项目村实施项目这些项目涵盖了修 路建桥饮水建沼气池人才培养等等 谢 谢 矛盾和摩擦 contradictions and onflicts