当今世界“彰显陌生人之间真情”的现代慈善事业风起云涌。慈善募捐是慈善理念下慈善组织为了增进公益而向社会募集资金、财物并进行公益分配、使用、管理的行为总称。募捐的本质是向社会“聚”善财又向社会“散”善财的过程，涉及“聚财—散财—理财”三大领域，是撬动社会公益，凝聚慈善资源的重要杠杆，也是对社会财富的第一次分配和第二次分配的重要补充。新的时代背景下，慈善募捐与政府行政募捐、企业公募筹资以及个人私益募捐有本质区别，与公益捐赠、公益募捐、社会募捐有相通、相同之处，但也有“发起主体的法定性”“宗旨目标的公益性”“内部治理的自主性志愿性”“组织运行的非营利非分配性”的核心要素。

慈善募捐的制度定位是人民权力延伸与民主化展现的社会权力在慈善组织中的运用。基于此，社会组织以社会权力为行为依据的而实施的慈善募捐应当关进“笼子”，纳入法治范畴。制度化的慈善募捐是树立公益诚信，保证公益有效性的重要环节，也是继《中华人民共和国慈善事业法》出台之后我国慈善法制建设的重点领域。目前，中国慈善募捐制度建设的“结”在于：国家层面的募捐法制建设滞后，地方层面的规范建设参差不齐。泛道德、强政治的窠臼以及新慈善本身的模糊与试错，导致规范化的慈善募捐成为社会的稀缺资源。

中国慈善募捐制度建设的“解”，需要基于以上的“结”，努力让慈善募捐秉承理性、平等的现代慈善公益观，借鉴美国、英国、澳大利亚、日本、港台的域外经验，兼顾中国传统慈善募捐历史资源的同时，对近年来湖南、江苏、广东、上海先行先试的分散、碎片的地方募捐规则进行全面整合。

落实中国“慈善募捐制度整合与规则体系完善”命题可以从三个层面展开：“公正的体制安排（特别是相对于政府权力的社会权力的‘自主、自愿’定位）、妥当的行为规范（保障社会组织募捐的自主性的同时克服随意性，针对‘募、捐、用’进行行为边界的设计和监管体系的构建）以及德才兼备的职业担纲者（特别是整合募捐成员进行封闭管理的‘追踪、反馈、公示’，落实社会组织高级管理人员的忠实和勤勉义务）”。

其中，妥当的募捐行为规范是探讨的重点。募捐行为是募捐组织的募、捐、用行为的总称，因此可以针对募捐在组织中的输入以及向社会的输出的关键节点进行把控：首先，募捐在一个社会组织中的输入，需要该组织本身的“正规性”为前提，同时该组织在章程中有清晰的募捐使命陈述，还要有社会组织“权力机构、执行机构、监督机构”彼此独立又相互制约的平衡与科学的内部治理结构；其次，募捐通过组织向社会的输出，则要“无方案不募捐”、无计划不接受，对募捐成员进行封闭的管理，同时开放募捐形式，更重要的是透明的募捐过程的保障。

我国《慈善法》之下的慈善资金链制度系统，需以“规范募捐”“保障私权”“维护公益”为基本宗旨，以募捐行为的“标准化、透明化”为制度调整核心，严格立法监管“两头”：社会组织面向社会的募捐环节（聚财）和募捐财产的支出环节（散财）。募捐法制建设在脱离政治窠臼的社会治理创新中“公开募捐权”的同时，对慈善募捐进行募捐环节管理，把募款准入（募捐组织募捐的民政许可、监督，劝募师的执业许可）、募捐款物使用的信托与限制（公益慈善与商业营利的边界）、信息披露（信息披露的主体以及信息披露的内容）的规则进行明确。在立法体制上，以中央与地方两级正式法律法规制度对社会权力的赋权、限权进行安排，落实募捐社会组织劝募过程“公开”，慈善募捐宗旨“公益”，慈善资源分配“公信”。未来贯彻公开、公益、公信（三公）原则的慈善募捐制度群建设，不仅要让慈善募捐组织有明确的实体授权规范的同时有程序性的操作指引，也要在强化内部治理、硬化外部监管的同时落实募捐责任。

关键词：慈善法 社会组织 慈善募捐 公益捐赠

Abstract

Charitable collection is the summary of behaviors that charity organizations raise funds and property from the society for charitable purpose,and the process of public allocation,exploitation and management to promote the development of commonweal cause.Charitable collection essentially is to raise and allocate charitable assets from/to the society,involving how to raise,allocate and manage assets,as the lever to promote public service and collect the charitable resources,also the important supplement to the first and secondary allocation of social wealth.Nowadays charitable collection has the essential difference from the government Administrative fund -raising,the corporate public offering and individual private charitable donation,and some commonness with charitable donation,charitable solicitation and social donation,but also the central characteristics of legality of initiator,objectives for public benefit,autonomy and voluntariness in internal governance,non-profit and non-distribution in organization operation.

Legal orientation of charitable collection is the extension of the people's right and the presence of democratization in application of social power in charitable organization.Therefore,charitable collection of social organization should be included in the rule of law.Institutionalization of charitable collection is of great importance to build up commonweal faith and ensure the effectiveness,and also the key area in charity legal system construction of China.At the present,the crux of charitable collection system construction of China is the backward charity legal system construction at the national level and the irregularity of local regulations.It is the Stereotype of panmorality and power politics,confusion and trial-and-error of new charity itself that makes the regularized charitable collection to be the scarce social resources.

As to the solution of China's charitable collection system construction,it is the need of insisting on rational and equal contemporary philanthropy in charitable collection,learning the experience of America,British,Japan and HongKong and Taiwan,retaining traditional historical resources of charitable collection of China,meanwhile comprehensive integration of local regulations of pilot programs such as Hunan,Jiangsu,Guangdong,Shanghai,Beijing and Shenzhen.

To implement institutionalization of charitable collection,discussion in three aspects can be done: the just system,especially the social power positioning autonomously and Voluntarily comparing to the government power;appropriate code of conduct ensuring the autonomy of social organization in charitable collection and avoiding the randomness,establishing the behavior boundaries and regulatory system on collection,donation and exploitation;and the professional leading force with both ability and integrity,particularly integration of members of the charitable collection for implementing tracking,feedback and publication of the loyalty,diligence and obligation of senior management of the social organization.

The paper will focus on the appropriate behavior regulations of charitable collection.Charitable collection is the summary of collection,donation and exploitation of charity organization,therefore it can be regulated on the key nodes in inflow and outflow of organization.（1）Inflow of charitable collection requires regularization of social organization,and the charter of organization must clearly prescribes the missions of charitable collection,and the scientific and rational internal governance structure with policy-making institution and supervising institution and executive Institution mutual checks and balance;（2）charitable collection requires no program no conduct,no plan no acceptance,closed management to members of charitable collection,and to open the charitable collection form,and more importantly to ensure the transparency of the charitable collection process.

In the future,the basic principles of the charity fund chain system under the China Charities Act should be regularization of charitable collection,protection of private rights,and safeguard of commonweal,with the standardization and transparency of charitable collection as the system adjustment core,strict legislation to regulate two ends,viz.,social organization conducts charitable collection（fundraising）from the society and expenditure of charitable collections（fund allocation）.Charitable collection legal system construction need to open the right of charitable collection,regulate the segments of charitable collection,establish the regulations of charitable collection admittance,tax system,exploitation of charitable collection assets and information publication.In short,charitable collection needs work out clear-cut operation guidance,while implement strict regulations and punishments to create ethos and the standards of morality.

Key words: Charities Act,Social organization,Charitable collection,Charitable donation

In today's world, modern philanthropy that "shows the true love between strangers" is on the rise. Charitable fundraising is a general term for charitable organizations that collect funds and property from the society and distribute, use and manage them for public welfare in order to enhance public welfare. The essence of fundraising is the process of "gathering" good wealth to the society and "dispersing" good wealth to the society, involving the three major areas of "gathering wealth - scattering wealth - financial management", which is an important lever for leveraging social welfare and condensing charitable resources, and is also an important supplement to the first and second distribution of social wealth. Under the background of the new era, charitable fundraising is essentially different from government administrative fundraising, enterprise public fundraising and individual private fundraising, and has similarities and similarities with public welfare donations, public welfare fundraising and social fundraising, but also has the core elements of "the statutory nature of the initiating entity", "the public welfare of the purpose and purpose", "the autonomy and voluntariness of internal governance" and "the non-profit non-distribution of organizational operation". The institutional orientation of charitable fundraising is the extension and democratization of people's power and the use of social power in charitable organizations. Based on this, charitable fundraising carried out by social organizations based on social power should be put in a "cage" and included in the scope of the rule of law. Institutionalized charitable fundraising is an important link in establishing public welfare integrity and ensuring the effectiveness of public welfare, and it is also a key area in the construction of China's charitable legal system after the promulgation of the Charity Law of the People's Republic of China. At present, the "knot" of China's charitable fundraising system is that the construction of the legal system for fundraising at the national level lags behind, and the construction of norms at the local level is uneven. The imperfection of pan-morality and strong politics, as well as the ambiguity and trial and error of the new charity itself, have led to standardized charitable fundraising becoming a scarce resource in society. The "solution" to the construction of China's charitable fundraising system needs to be based on the above "knots", strive to make charitable fundraising adhere to the rational and equal modern concept of charity and public welfare, learn from the extraterritorial experience of the United States, Britain, Australia, Japan, Hong Kong and Taiwan, take into account the historical resources of traditional Chinese charitable fundraising, and fully integrate the scattered and fragmented local fundraising rules that have been piloted in recent years in Hunan, Jiangsu, Guangdong and Shanghai. The implementation of China's proposition of "integration of charitable fundraising system and improvement of rule system" can be carried out from three levels: "fair institutional arrangements (especially the 'autonomous and voluntary' positioning of social power relative to government power), appropriate behavioral norms (ensuring the autonomy of social organizations' fundraising while overcoming arbitrariness, and designing and constructing a regulatory system for the design of behavioral boundaries for 'fundraising, donation, and use'), and professional leaders with both ability and integrity (especially the 'tracking, feedback, and closed management of fundraising members) publicity', to implement the duty of loyalty and diligence of senior managers of social organizations)". Among them, appropriate fundraising behavior norms are the focus of discussion. Fundraising behavior is a general term for the fundraising, donation, and use behavior of fundraising organizations, so it can be controlled for the input of fundraising in the organization and the output to the society: first, the input of fundraising in a social organization requires the "formality" of the organization itself as the premise, and the organization has a clear fundraising mission statement in the charter, and there must also be a balance and scientific internal governance structure of the social organization's "power organs, executive agencies, and supervisory bodies" that are independent of each other and mutually restrictive; Secondly, through the export of fundraising to the society through the organization, it is necessary to "no plan and no fundraising", no plan to accept, closed management of fundraising members, and at the same time open fundraising forms, and more importantly, the guarantee of a transparent fundraising process. The system of charitable capital chain under China's Charity Law needs to take "regulating fundraising", "protecting private rights" and "safeguarding public welfare" as the basic purpose, take the "standardization and transparency" of fundraising as the core of system adjustment, and strictly legislate and supervise the "two ends": the fundraising link of social organizations facing the society (gathering money) and the expenditure link of fundraising assets (scattered wealth). While the establishment of the legal system for fundraising, while "public fundraising rights" in social governance innovation that is divorced from political rigidity, it manages the fundraising link of charitable fundraising, and clarifies the rules for fundraising access (civil affairs license and supervision of fundraising organizations and solicitation practitioners), trust and restrictions on the use of fundraising materials (the boundary between public welfare charity and commercial profit), and information disclosure (the subject of information disclosure and the content of information disclosure). In terms of the legislative system, formal laws and regulations at the central and local levels are used to arrange the empowerment and limitation of social power, and implement the "openness" of the fundraising process of social organizations, the purpose of charitable fundraising is "public welfare", and the distribution of charitable resources is "public". In the future, the construction of charitable fundraising systems and groups that implement the principles of openness, public welfare, and public trust (three public) should not only allow charitable fundraising organizations to have clear entity authorization norms and procedural operational guidelines, but also implement fundraising responsibilities while strengthening internal governance and hardening external supervision. Keywords: Charity Law, Social Organizations, Charitable Fundraising, Public Welfare Donations, AbstractCharitable Collection is the summary of behaviors that charity organizations raise funds and property from the society for charitable purpose, and the process of public allocation,exploitation and management to promote the development of commonweal cause. Charitable collection essentially is to raise and allocate charitable assets from/to the society,involving how to raise,allocate and manage assets,as the lever to promote public service and collect the charitable resources,also the important supplement to the first and secondary allocation of social wealth. Nowadays charitable collection has the essential difference from the government Administrative fund -raising,the corporate public offering and individual private charitable donation,and some commonness with charitable donation,charitable solicitation and social donation,but also the central characteristics of legality of initiator,objectives for public benefit,autonomy and voluntariness in internal governance,non-profit and non-distribution in organization operation. Legal orientation of charitable collection is the extension of the people's right and the presence of democratization in application of social power in charitable organization. Therefore,charitable collection of social organization should be included in the rule of law. Institutionalization of charitable collection is of great importance to build up commonweal faith and ensure the effectiveness,and also the key area in charity legal system construction of China.At the present,the crux of charitable collection system construction of China is the backward charity legal system construction at the national level and the irregularity of local regulations. It is the Stereotype of panmorality and power politics,confusion and trial-and-error of new charity itself that makes the regularized charitable collection to be the scarce social resources. As to the solution of China's charitable collection system construction,it is the need of insisting on rational and equal contemporary philanthropy in charitable collection,learning the experience of America,British,Japan and HongKong and Taiwan,retaining traditional historical resources of charitable collection of China,meanwhile comprehensive integration of local regulations of pilot programs such as Hunan,Jiangsu,Guangdong,Shanghai,Beijing and Shenzhen.To implement institutionalization of charitable collection,discussion in three aspects can be done: the just system,especially the social power positioning autonomously and Voluntarily comparing to the government power; appropriate code of conduct ensuring the autonomy of social organization in charitable collection and avoiding the randomness,establishing the behavior boundaries and regulatory system on collection,donation and exploitation; and the professional leading force with both ability and integrity,particularly integration of members of the charitable collection for implementing tracking,feedback and publication of the loyalty,diligence and obligation of senior management of the social organization. The paper will focus on the appropriate behavior regulations of charitable collection. Charitable collection is the summary of collection,donation and exploitation of charity organization,therefore it can be regulated on the key nodes in inflow and outflow of organization.（1）Inflow of charitable collection requires regularization of social organization,and the charter of organization must clearly prescribes the missions of charitable collection,and the scientific and rational internal governance structure with policy-making institution and supervising institution and executive Institution mutual checks and balance; （2）charitable collection requires no program no conduct,no plan no acceptance,closed management to members of charitable collection,and to open the charitable collection form,and more importantly to ensure the transparency of the charitable collection process. In the future,the basic principles of the charity fund chain system under the China Charities Act should be regularization of charitable collection,protection of private rights,and safeguard of commonweal,with the standardization and transparency of charitable collection as the system adjustment core,strict legislation to regulate two ends,viz.,social organization conducts charitable collection（fundraising）from the society and expenditure of charitable collections（fund allocation）. Charitable collection legal system construction need to open the right of charitable collection,regulate the segments of charitable collection,establish the regulations of charitable collection admittance,tax system,exploitation of charitable collection assets and information publication. In short,charitable collection needs work out clear-cut operation guidance,while implement strict regulations and punishments to create ethos and the standards of morality. Key words: Charities Act,Social organization,Charitable collection,Charitable donation（AI翻译）