中国欧盟商会关于《中华人民共和国境外非政府组织管理法（草案二次审议稿）》的建议
2015-06-04 | Beijing
总体评价General Comments
中国欧盟商会（以下简称欧盟商会）很荣幸有此机会就《中华人民共和国境外非政府组织管理法（草案二次审议稿）》（以下简称《草案》）提交建议。欧盟商会很高兴看到通过该法案，非政府组织的活动以及其所起到的重要作用都将得到认可。在过去的30年内，中国经济发展迅速，境内和境外的非政府组织都对此作出了巨大的贡献。当下中国经济正步入“新常态”阶段，非政府组织作为企业的重要商业伙伴，无疑将在中国的未来发展及改革开放进程中扮演更重要的角色。
The European Chamber of Commerce in China (European Chamber) appreciates the opportunity to comment on the second draft of the PRC Foreign Non-governmental Organisation (NGO) Management Law. The European Chamber is encouraged to see that the activities of NGOs are being recognised through legislation and that the important role they play is being clarified. Over the last three decades, China’s economy has developed rapidly and NGOs, both domestic and foreign, have made significant contributions to this process. As China’s economy prepares to enter the ‘new normal’ era, NGOs, as important partners of business, are expected to play a greater role in China’s further development and opening up.
境外非政府组织在商会会员公司的日常运营中起到了不可或缺的作用。我们的会员和外国行业协会、大学、环保组织、科技机构以及其他《草案》广泛定义下的其它非政府组织有着密切的合作。我们的会员依靠这些机构来开展信息交流、调研、市场开发和创新等活动。同时，这些境外非政府组织在会员公司的企业社会责任活动中也扮演着重要角色。
Foreign NGOs play an integral part in our members’ daily operations in China. Our members frequently work with foreign industry associations, universities, environmental organisations, science and technology institutes and other NGOs as widely defined under the draft Foreign NGO Management Law. Our members rely on such organisations for information sharing, research, market development, innovation creation amongst other reasons. These foreign NGOs also play an important role in their corporate social responsibility activities.
根据此项《草案》，境外非政府组织在华的运营将会面临更多行政类的负担。商会对于《草案》中某些关键词条的定义含糊、运营复杂化、以及行政、金融、人力资源等方面的繁冗要求感到尤其顾虑。境外非政府组织可能会因此放弃留在或进入中国，进而使中国经济失去这一重要的催化力量、令中国企业失去其值得信赖的合作伙伴，欧盟商会对此表示遗憾。
As is, the draft Foreign NGO Law is expected to greatly increase the administrative costs for foreign NGOs. Specific concerns include ambiguous definitions of key terms as well as increased operational complexity and bureaucracy in the form of administrative, financial and human resources related requirements. As a result, the Chamber regrets that foreign NGOs will find it less appealing to stay or come to China, thereby depriving the China’s economy of an important catalyst and China’s businesses of a trusted partner.
此外，《草案》也会对日益国际化的中国本土企业产生影响。一些境外非政府组织，比如外国行业协会或商贸发展机构，正在与中国企业合作，共同解决其境外业务所面临的挑战。新出台的境外非政府组织法案和这一国际化的趋势背道而驰，也不符合本届政府在经济对外开放上的总方针。从长期来看，该法案应当反映出公众参与和国际合作的价值，服务于中国经济的可持续和创新发展模式。
The draft legislation has an impact on Chinese enterprises that are increasingly international as well. Foreign NGOs such as foreign industry association or trade promotion agencies are partnering with Chinese enterprises in addressing business challenges they face abroad. The new law on foreign NGOs doesn’t sit well with these international ambitions, nor with the current administration’s appeal for an open economy. The law should be able to encompass the long-term instrumental value of public participation and international collaboration for a more sustainable and innovative Chinese economic development model.
综上所述，尽管商会欢迎并支持政府规范和完善对境外非政府组织活动的管理，《草案》仍需进一步的考虑，以确保境外非政府组织给中国带来的整体利益和价值能够在国内被充分和有效地吸收。
In conclusion, while streamlining and improving the regulation of the activities of foreign NGOs is welcomed, further deliberation on the draft law should be given to ensure that overall benefits value that foreign NGOs bring to China can be fully and effectively digested within China, and not jeopardized and deterred as result.
以下，我们列出了几项会员企业所关心的主要问题。
Below we have summarised some major concerns submitted by our members.
1. 定义含糊 Ambiguities in Definition
《草案》二次审议稿中的一些条款定义不明，其中包括但不仅限于“境外非政府组织”、“活动”和“政治活动”等。
In the second draft of the law, some items lack clear definition, including, but not limited to, ‘NGO’, ‘activity’ and ‘political activity’.
非政府组织 NGO
《草案》第3条中写道，境外非政府组织可以在经济、教育、科技、卫生、文化、体育、环保、慈善等领域依法开展有利于公益事业发展的活动。“等”这一用词较为模糊，结合整个文件的强硬措辞，可能会使一些并不明确属于以上类别的组织可能对其身份感到担忧，特别是那些未在中国注册登记、但已经和中国建立了某些关系或已开展相关活动的组织（详见下一部分）。
In Article 3, it states that foreign NGOs in fields such as economics, education, science and technology, health, culture, sports, environmental protection and charity work may conduct activities beneficial to the development of public welfare causes in accordance with the law. The wording “such as” is non-exhaustive and combined with the overall strong wording of the document, may leave other organisations that do not clearly fit into such categories in doubt with regards to their status, particularly with regards to organisations that are not yet registered in China but do have some relations or activities related to China (see next section).
活动 Activity
《草案》中关于“活动”的含糊定义也是一大问题。欧盟商会非常担心中国政府将只允许那些已在中国注册登记、或者已取得临时活动许可的非政府组织在华开展活动。根据《草案》中作列出的范围，即便是一些简单的日常活动，譬如来华访问交流、开会或达成合作协议，都可能会受到影响。
The unclear definition of ‘activity’ in the draft law is also problematic. The European Chamber is very concerned that the Chinese Government would only allow foreign NGOs that have registered in China or have successfully applied for a temporary permits to conduct any activity whatsoever. Even relevantly simple activities such as visits to China for exchanges, in-China meetings or conferences, or forming partnership agreements could be considered within the scope of this draft law.
此外，如果某非政府组织因对法律草案的误读而涉嫌违反规定或进行非法活动，其将面临严厉的惩罚——公安机关可进入其办公室和活动场地进行搜查，调查其银行活动记录，并处以罚款、中止活动、扣留乃至驱逐。这样强势的措辞会对境外非政府组织产生较深远的影响和威慑。
Furthermore, if a NGO is suspected of violating, or conducting an illegally ill-defined activity difference because of a misinterpretation of the draft law, it appears it would face heavy penalties – the police could enter and search its office or activity venue, investigate its bank activities and order fines, suspensions, detentions and expulsions. Such strong and forceful wording has a far-reaching impact and is seen as major deterrent to foreign NGOs.
2. 运营问题 Operational Concerns
业务主管单位 Supervisory Department
根据《草案》，公安机关将负责境外非政府组织代表机构的登记、许可和年度检查，其他政府部门则发挥辅助支持的作用。尽管欧盟商会赞同政府对境外非政府组织的监督结构规范化的出发点，我们建议登记、许可和审查流程均由负责非政府组织在华注册的民政部来监管。
According to the draft law, the registration, licensing and annual inspection of foreign NGO’s representative offices (ROs) in China will be handled by public security organs, while other competent authorities will play a supporting role. While the European Chamber appreciates the government’s initiative of standardising the supervision structure of foreign NGOs, we also advocate that the procedures for registration, licensing and inspection to be supervised by the Ministry of Civil Affairs that handles NGO registrations in China.
资金问题 Funding Issues
《草案》中的部分条款和金融及资金问题紧密相关。境外非政府组织及其代表机构不得在中国大陆进行募捐或者接受捐赠。未设立代表机构的境外非政府组织，如果选择通过临时许可开展活动的，需要将所有活动资金转入其中国合作伙伴的银行账户。从某种程度上看，这极大地限制了对境外非政府组织的资金支持，因此可能阻碍其在中国开展更多的活动，或者获得更大的影响力。
Some articles are closely related to financial and funding issues. Foreign NGOs and their ROs must not solicit contributions or accept donations within the Chinese mainland. Foreign NGOs that do not establish representative offices but chose to operate through temporary permits would need to channel all funds for their activities through the bank accounts of their Chinese partners. To some extent, such items largely restrict the financial support of foreign NGOs and might inhibit them from undertaking more activities or having greater influence.
财务、人力资源和税收问题 Finance, HR and Taxation Issues
从第29条到第35条，草案谈及了一系列会计准则、税收以及人力资源相关的问题。其中一些规定并不适用于境外非政府组织。譬如，财政部并没有适用于非政府组织或非盈利组织的一套财务制度和会计准则。此外，目前中国的财务会计制度也并不适用非政府组织的财务核算和税务申报。境外非政府组织代表机构在中国境内聘请工作人员或者招募志愿者，应当委托当地外事服务单位的要求（第32条），将导致非政府组织无法选择雇佣其真正希望聘用的人员。对于境外非政府组织代表机构中境外工作人员的人数比例限制也是被视为一项不近人情的规定。
From Article 29 to Article 35, the draft law introduced a series of stipulations on accounting rules, taxation as well as HR related issues. Some of these rules and regulations are not applicable to foreign NGOs. For example, the Ministry of Finance (MoF) has no corresponding financial system or accounting standards for NGOs or NFPs. Moreover, current financial and accounting systems in China do not fit financial accounting and tax declarations of NGOs. The requirements on recruiting through local foreign affairs organization (Article 32) might result in foreign NGO’s inability to recruit the people they want. Quota restrictions on foreign personnel also perceived to be unwelcoming.
以下为欧盟商会会员公司针对《草案》中具体条目的评价及建议。如您需要我们就以下建议作进一步的澄清，请与商会政府事务高级经理傅鹤蕾女士联系（电话：(021) 6385 2023转124；传真：(021) 6385 2381；邮箱: hlfu@europeanchamber.com.cn）。
The following section contains comments on specific articles of the revised law, collected from the European Chamber’s member companies. Should you require further clarification, please kindly contact Ms. Helei Fu, Senior Government Affairs Manager. (Tel: Tel: 86 (21) 6385 2023 ext. 124, Fax: 86 (21) 6385 2381, Email: hlfu@europeanchamber.com.cn).