非营利组织提供公共文化服务的政策研究—以上海为例

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摘要

在文化大繁荣大发展的形势下，非营利组织正急速发展，作为一个重要的社

会组成部分，非营利组织所提供的公共文化服务也受到越来越多的关注。然而，

其仍然处于起步阶段，未来的发展急需政府的政策扶持与引导。

首先，本文聚焦非营利组织中的文化类非营利组织，通过把非营利组织提供

的公共文化服务从整个文化产业研究里单列出来，从而有效地将这两个热点联系

在一起进行相关性的政策研究。

其次，本文运用相关理论分析了非营利组织如何与政府、企业一同构成社会

文化服务中的三大支柱，并逐步成为公共文化服务提供者中不可或缺的一部分。

详细解析了与政府的文化服务以及商业化的文化产品相比，文化类非营利组织提

供公共服务具备了哪些优势，以及其在运作中所面临的困境与挑战，并运用实际

案例进一步分析了导致这些问题和不足的成因。

公共文化是整个社会建设中不可或缺的一部分，并随着社会生产方式和生产

力的进步而不断发展。为了丰富群众日益高涨的公共文化需求，响应国家构建文

化强国的号召，我们必须正确科学地看待非营利组织提供公共文化的现状，及其

发展趋势。政府在传统的公共文化服务中已经无法做到处处包揽，因此应当采用

公共管理手段促进和规范文化类非营利组织的发展，以便其更好地提供公共文化

服务，并逐步提高政策细则的惠及面和覆盖面。这是促进社会主义文化和谐发展

的必然要求，也是社会的稳定的必要条件。同时，这也说明政府正在转变职能，

同各方加强合作，推进社会的文化建设，并不断优化文化民主。

最后，本文以上海为例，详细探讨文化类非营利组织在运用各项现有的政府

相关补贴政策中，所遇到的现实问题和困境，并介绍了目前政策中值得推进和细

化的部分。按照中国社会的实际情况和发展趋势，同时借鉴国外的先进经验和案

例，从注册孵化政策、扶持政策、购买服务政策、监督政策四个方面分别提出了

具体的政策建议。

关键词：非营利组织政策优化公共文化服务

ABSTRACT

In this age of Vigorous Development and Prosperity, NGO (Non-profit

organizations) has achieved robust growth. As an important part of the whole society,

public culture service provided by NGO has gained popularity in the public. However,

as domestic NGO is still at initial stage, Government should provide proper guide and

developed policy to support its further development.

First of all, this thesis focuses on Cultural NGO, and effectively combines Cultural

NGO and Cultural Industry together for policy research, via separating Public Culture

Service from the research of whole Cultural Industry.

Secondly, this thesis adopts relative theories to analyze how NGO, Government,

and Enterprises construct as 3 pillars supporting social cultural service, playing a highly

integral and important role among all public cultural service providers. In addition, this

thesis also makes a detailed research of advantages of cultural NGO, as well as dilemma

and challenges it facing, by comparing public service from cultural NGO to cultural

service of government and commercialization of cultural products. Further

investigations have also been made to analyze these problems and causes of

disadvantages, with the use of actual cases.

Public culture is an integral part of whole social construction, developing with the

progress of social production and productivity. To meet mass demands for public

culture, and making response to the recall of the country for construction of cultural

power, we should take a scientific view upon status that public culture is provided by

NGO, and its development trend. Currently, it’s impossible for Government to do

everything for providing traditional public cultural service. Therefore, public regulation

means should be adopted by Government to promote and standardize development of

Cultural NGO, aimed at providing better public cultural service, and continuously

improving benefits and coverage. It is imperative to promote the harmonious

development of socialism culture; and it’s also a prerequisite to construct a stable

society. Meanwhile, it can also be learnt that Government has made efforts to facilitate

transformation of functions, strengthen cooperation with all parties, to promote

construction of social culture and continuously optimizing cultural democracy.

All in all, this thesis takes Shanghai as an example to explicitly explore practical

problems and difficulties encountered by cultural NGO, when using existing related

subsidy policy. In addition, there are also introductions of policies which need

improvement and refinement. Based on current situation and development trend, as well

as taking advantage of advanced experience and cases, detailed suggestions for policies

can be provided separately from policies of registration incubation, supporting,

purchasing service, and supervision.

Key Words ：Non-profit organizations, Policy optimization, Public

culture service

中文摘要

ABSTRACT

第一章绪论............................................................................................................1

1.1 选题的背景和意义........................................................................................1

1.1.1 社会背景................................................................................................1

1.1.2 选题的意义............................................................................................2

1.2 国内外研究现状............................................................................................3

1.2.1 国外研究现状........................................................................................3

1.2.2 国内研究现状........................................................................................5

1.2.3 研究评述................................................................................................5

1.3 研究思路、研究方法与创新点....................................................................6

1.3.1 研究思路................................................................................................6

1.3.2 研究方法................................................................................................7

1.3.3 研究的创新点........................................................................................8

第二章相关概念界定及相关理论..........................................................................9

2.1 相关概念界定................................................................................................9

2.1.1 公共文化服务的定义 ........................................................................9

2.1.2 文化类非营利组织定义........................................................................9

2.2 非营利组织提供公共文化服务的相关理论基础.......................................10

2.2.1 建设社会主义文化强国的理论..........................................................10

2.2.2 政府失灵理论......................................................................................11

2.2.3 市场失灵理论......................................................................................11

2.2.4 公共选择理论......................................................................................12

第三章非营利组织提供公共文化服务的发展困境及成因分析........................14

3.1 文化类非营利组织的发展困境..................................................................14

3.1.1 规范性困境..........................................................................................14

3.1.2 经费困境..............................................................................................14

3.1.3 人才困境...............................................................................................15

3.1.4 规模化发展困境..................................................................................15

3.2 文化类非营利组织的发展困境成因分析..................................................15

3.2.1 政府资金扶持力度较弱......................................................................15

3.2.2 立法缺失..............................................................................................16

3.2.3 内部管理机制不完善..........................................................................16

3.2.4 公民社会程度弱..................................................................................17

3.3 静安区职工爱好者协会案例分析..............................................................18

第四章非营利组织丰富公共文化服务的政策分析............................................20

4.1 注册孵化政策..............................................................................................20

4.1.1 登记注册..............................................................................................20

4.1.2 孵化基地政策......................................................................................21

4.2 扶持政策......................................................................................................22

4.2.1 资金扶持..............................................................................................22

4.2.2 税收财务扶持......................................................................................24

4.2.3 人才培育扶持......................................................................................26

4.3 购买服务政策..............................................................................................28

4.3.1 政府公益招投标购买..........................................................................28

4.3.2 政府创投购买......................................................................................29

4.3.3 企业资助购买......................................................................................29

4.4 监督政策.......................................................................................................31

4.4.1 双重管理体制......................................................................................31

4.4.2 审查机制..............................................................................................33

4.4.3 问责机制..............................................................................................34

结语..........................................................................................................................36

附录 1 2013 静安区职工文化生活调研问卷......................................................37

附录 2 上海社区公益创投项目申请书................................................................39

附录 3 上海市社会组织规范化建设评估申请书................................................40

参考文献..................................................................................................................41

在读期间公开发表的论文和承担科研项目及取得成果......................................44

致谢........................................................................................................................45

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摘要：

摘要在文化大繁荣大发展的形势下，非营利组织正急速发展，作为一个重要的社会组成部分，非营利组织所提供的公共文化服务也受到越来越多的关注。然而，其仍然处于起步阶段，未来的发展急需政府的政策扶持与引导。首先，本文聚焦非营利组织中的文化类非营利组织，通过把非营利组织提供的公共文化服务从整个文化产业研究里单列出来，从而有效地将这两个热点联系在一起进行相关性的政策研究。其次，本文运用相关理论分析了非营利组织如何与政府、企业一同构成社会文化服务中的三大支柱，并逐步成为公共文化服务提供者中不可或缺的一部分。详细解析了与政府的文化服务以及商业化的文化产品相比，文化类非营利组织提供公共服务具备了哪些优势，以及其在...

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