慈善捐赠遇冷的制度逻辑与破局路径

中国慈善捐赠规模正在萎缩。2024年公益慈善组织接收慈善捐赠总额比上一年下降12.30%，2025年基金会年度总量首次出现负增长1。与此同时，监管强度在不断升级——基金会中心网收录的1763份基金会年度工作报告中，已有31%在2025年收到整改通知书或改进建议书1。

这种下行态势与近年来的制度调整密切相关。2024年7月出台的《慈善组织公开募捐管理办法》规定，每一项公开募捐活动应当单独备案，一个募捐备案编号不得开展多项公募活动1。专家指出，强化监管虽然有助于防止公益滥用，但在执行层面存在制度困境，可能反而抑制了慈善的活力。

为打破这一僵局，建议应平衡规范与活力，具体措施包括减少事前资格审批、将监管重点转向公益财产使用去向，以及解绑监管部门与慈善组织间的连带责任1。这些改革方向旨在在防范风险的同时，恢复公众和机构的捐赠热情。

Charitable giving in China has entered a period of significant contraction, with public welfare organizations experiencing a sharp drop in donation receipts. In 2024, charitable organizations saw their total donations decline by 12.30% compared to the previous year, while 2025 marked the first instance of negative growth in the total number of foundations.1 Among 1,763 foundation annual reports recorded by the Foundation Center, 31% have already received rectification notices or improvement recommendations in 2025.1

The downturn reflects deepening structural challenges within China's philanthropic landscape. Analysts point to a crisis of public trust and overly stringent regulatory measures as primary drivers of the decline.1 The revised Charity Law has introduced enhanced supervisory frameworks intended to prevent misuse of public funds, yet these measures have created regulatory dilemmas that inadvertently constrain charitable activity.1 In July 2024, authorities issued the Public Fundraising Management Measures for Charitable Organizations, which requires each public fundraising campaign to be registered separately, stipulating that a single fundraising registration number cannot be used to conduct multiple public fundraising activities.1

Experts propose a rebalancing approach to break this impasse. Recommendations include reducing preliminary qualification screenings, redirecting regulatory focus toward monitoring the actual use and allocation of charitable assets, and decoupling the joint liability that currently binds regulatory departments to charitable organizations.1 Such reforms aim to restore activity and resilience to the sector while maintaining necessary oversight protections.