我国社会组织功能定位与管理体制的演变——基于国务院政策文件库的分析

The Role and Management System of Social Organization in China: Analysis Based on the Policy Documents

功能定位及由此决定的管理体制是影响我国社会组织发展的一个关键问题。现有研究缺乏历史演变维度以及对经济等因素的分析,基于对国务院政策文件库提及社会组织的各领域政策文件的文本分析,本文发现:改革开放以来,我国社会组织的功能定位随着国家发展的阶段性中心任务不断调整,先后经历了服务于搞活经济、完善市场经济体系、加强社会建设、推进国家治理现代化四个阶段,逐渐从经济主体、社会建设主体向国家全方位建设主体转变。相应地,社会组织管理先后经历了宽松放养体制、双重管理体制确立、双重管理体制小突破、后双重管理体制四阶段。在这个过程中,国家发展利用社会组织的逻辑日益超越管制防控逻辑,国家对改革发展与风险管控两大任务的平衡影响着社会组织管理政策的具体调整。

The role and the management system are two key issues in terms of the development of the social organization. Existing research lacks the analysis of historical dimensions and economic factors. Based on policy documents analysis related to social organizations, we find that since the reform and opening up, the role of China’s social organizations has been continuously adjusted with the central task of national development, and has experienced four stages: serving to invigorate the economy, improving the market economic system, strengthening social construction and promoting the modernization of national governance. Accordingly, China’s organizations have experienced loose management systems, dual management systems, incomplete dual management systems, and post dual management systems. In this process, the logic of cultivation and utilization of social organization become more and more dominant compared to control logic. The state’s balance between development and risk control affects the specific adjustment of social organization management policies.