利益冲突与技术限制:地方社会组织跨部门合作监管失灵的解释

Conflict of Interest and Technical Restraints: An Explanation of the Supervision Failure among Local NonGovernmental Organizations’ Inter-Governance Collaboration

建立基于跨部门合作的综合监管机制是社会组织管理体制改革的重要内容,但在地方实践中普遍面临合作监管失灵的问题。从官员个体视角出发,以H省A市社会组织免税资格认定为案例展开研究发现:在利益层面,由于晋升竞争,且合作监管绩效无法准确识别与测量,利益补偿和考核机制缺失,非民政官员积极推动社会组织跨部门合作监管被视为一种"损己利人"的非理性行为;在技术层面,信息专业性导致官员对社会组织性质理解偏差,参与机制的缺陷限制了信息优势发挥,而部门间信息交流障碍不仅强化了部门间壁垒和信息阻塞,也使非民政官员对社会组织的偏见难以消除。利益冲突和技术限制为理解其他部门在合作监管中的边缘性行动及其行动方式提供了解释,从而也解释了合作监管何以会失灵。

Based on the case study of NGOs'duty-free qualification in the A city of C province,this paper finds that:Structurally,the failure of inter-departmental collaboration is manifested by the absence of policy coordination mechanism,division of departmental supervision projects,imbalance of implementation schemes of supervision,and inadequate integration of individual services.Operationally,the principled engagement among multi-sectors is insufficient,which leads to a failure of reaching consensus on shared interests,purposes and schemes of NGOs'integrated regulation,and the capacity of joint action also cannot be developed.Due to the interests conflicts for promotion competition with and within the same bureaucratic level of officials and multi-levels of the responsible departments,the unidentified and unmeasured performance of collaborative supervision,and the absence of interests compensation mechanism and evaluation mechanism,the behavior of other responsible departmental officials to actively promote the building of the comprehensive supervision system is irrational because it seeks benefits for others at the expense of oneself.At the same time,the professional information causes the deviation of officials'understanding of NGOs'nature,the establishment of participation mechanism makes the information advantage of Civil Administration departments and grassroots Tax Departments unable to exert effects,and the blocks of information exchange among departments not only adds the fuel to the present information blocks and distrust among sectors,but also makes it impossible to eliminate the prejudice of other department officials on social organizations.This study provides a new microperspective for the analysis of cross-sectors collaborative supervision behavior of local NGOs,and provides governance implications for the establishment of a comprehensive governmental supervision system based on inter-governance collaboration.