从慈善失灵到规制失灵:募捐准入的理论逻辑与路径选择

From“Philanthropic Failure”to Regulatory Failure:Theoretical Underpinnings of and Regulatory Options for Entry Regulation of Fundraising

近年来,募捐规制在多个国家成为慈善法领域的关注焦点。募捐准入是其中的重要议题。《慈善法》的出台和互联网募捐的兴起推动了我国网络慈善的快速发展。然而,有鉴于募捐领域仍存在诸多问题,迫切需要探索募捐准入背后的理论逻辑,并审视规制路径的选择。以“慈善失灵”这一概念为中心搭建理论框架,有助于揭示当前募捐准入的问题所在和深层原因,并为转型方向带来启示。深入考察域外立法以及我国20世纪90年代起募捐准入的演进可知,《慈善法》并未延续早期地方立法确立的规制路径,转而采用主体许可制。在互联网募捐背景下,主体许可制在应对慈善失灵上的局限性进一步凸显,未来应向行为备案制转型,并重新审视“非法募捐”的规制立场。

In recent years,fundraising regulation has become the focus of attention of charity law globally.Entry regulation of fundraising is an important issue in fundraising regulation.The enactment of Charity Law in 2016,coupled with the rise of online fundraising,led to rapid development of Internet philanthropy in China.In view of the problems existing in the fundraising sector,however,there is an urgent need to explore the theoretical underpinnings of entry regulation,and to critically evaluate its regulatory options.This study builds a theoretical framework based on the conceptualization of“philanthropic failure,”which sheds light on problems in entry regulation and their underlying causes,as well as directions for reform.By closely examining entry regulation of fundraising in other jurisdictions and relevant regulatory history in China since the 1990s,this study shows that the 2016 Charity Law adopts a license-based approach centered around fundraisers’qualifications,departing from regulatory approaches introduced by local legislation prior to 2016.The inability of the current regulatory approach to cope with philanthropic failure manifests itself most clearly in online fundraising.This study proposes that a record-keeping system that focuses on fundraising activities should be put in place instead,and that it is necessary to re-evaluate the regulatory stance on“unlawful fundraising.”