中国广告市场的综合治理研究
摘要
本文主要以公共治理理论为依据，通过构建一套适合我国国情、广告市场现状的广告市场综合治理体系，实现对广告市场的综合治理，维护公共利益最大化，提高对广告市场的监管效率，破解广告市场中存在的突出问题，保障广告市场秩序的平稳，促进广告市场的健康发展。基于公共治理理论的广告市场综合治理，必须建立在健全完善的法律法规体系基础上，以保护公共利益、维护公共利益最大化为目标，以政府监管、行业自律和社会监督为基本框架，依托政府为主导的监管力量，辅以社会团体、普通民众、行业组织、市场主体的广泛参与，形成政府监管和社会监督自外向内、行业自律自内向外的共治合力，共同治理广告公共服务产品。但鉴于我国广告市场及监管环境的客观现实，必须要对政府监管、行业自律、社会监督进行改良，使其符合综合治理的基本要求，进而更好的发挥广告市场综合治理的功效。本文通过综合分析目前我国广告市场综合治理中政府监管、行业自律、社会监督的地位作用、基本现状、运行机制及存在问题，在充分借鉴西方国家对广告市场治理经验的基础上，就如何完善我国广告市场的政府监管、行业自律和社会监督提出对策、建议。
In the context of the planned economy era, the advertising industry was once neither recognized nor valued, and even been directly prohibited. Until the late1980s, after the implementation of the reform and opening up policy in China, the advertising industry started getting revived. With the completion of the social progress, economic development, China's advertising industry has experienced gorgeous change from small to large, from weak to strong. Especially after joining international trade organizations, there are more economic connections and merges between China and therest of the world, the world economies become more and more active, which makes the effect of advertising industry increasingly apparent in turns of boosting economicdevelopment, promoting cultural exchange, guiding the consumer spending, pullingmore domestic demand. However, along with the rapid development of the industry,there are also many problems under the halo of the advertising market, mainly lies inthe repeated false and illegal advertisement, the imbalance in the development of the advertising market and the irrational advertising market structure. The fundamentalreasons of difficulty in solving China's advertising market’s problems mainly are thatthe the current advertising market management model’s inability to adapt the rapid development of the advertising market and people’s need to purify the advertising market environment, as well as the irregular development of the advertising market due to the uneven regional economic strength. From the effects of practice, it is an effective way to make a timely improvement for China’s advertising market situation to build a polycentric management system that suits the reality of China's advertising market, the trend of the development of the advertising market and in line with the supervising need of the advertising market.
I. Advertising market polycentric governance system based on the theoryof public governance
Public governance is an official or nongovernmental public organization, withincertain limit, use public authority to maintain order as well as to meet the needs ofthe public, it exercise its power in a variety of institutional relations to guide, controland regulate the activities of citizens so as to promote the public interest to itsmaximum extend. According to this interpretation, as for the governance of theadvertising market in China, it is fully consistent with the research areas of public governance theory in terms of the subject of governance, the object of governance,governance objectives and means of governance, so the introduction of the theory ofpublic governance into the China’s advertising market governance research helps toimprove our current advertising market management model’s enhancements. Inaddition, Fully utilizing the theory of public governance and building a polycentricmanagement system of China's advertising market also comply with the eighteenthNational Congress report’s social management system requirements, which is "theparty leadership, the responsible government, social coordination, publicparticipation, law protection”.
Based on the public governance theory, advertising market’s polycentricmanagement system must be established on the basis of the wholesome legal lawsand regulations system, with the objective of protecting the public interests,maintaining the maximization of public interests, as the basic framework ofgovernment regulation, industry self-regulation and social supervision——relyingon the government as the leading regulatory forth, combined with the broadparticipation of social organizations, the general public, industry organizations,market players to form mutual governance power combined with the outside-in asthe government and social supervision as well as the inside-out as the industry’s self-discipline.
II. Government administration of advertising market polycentricgovernance system in China
Due to government regulatory agencies with market rules formulated, the rightof supervision of market order, market macro-control over the development offunctional advantages，which is to make the government regulation plays animportant role in polycentric governance system of the advertising marketposition—as the core and backbone of advertising market polycentric control system,Government regulation dominates the global advertising market polycentricgovernance system. As the advertising market has the rapid development in the21stcentury, it leads to the government regulation of the advertising market has beenslightly "powerless", the previous regulatory methods and technology has beenunable to adapt to the development changes of the advertising market, invisibleformed certain regulatory failure which leads to the occurrence and spread of illegalbehavior. Therefore, it must have to start from the the government departmentsinstitutional, through a series of reforms, innovation and regulatory ways to improvethe effectiveness of supervision, integrated resource advantage of governmentregulators, the formation of the remediation work together to safeguard the market order smoothly and orderly. In addition, the government regulators should continueto increase efforts to support the policies of the advertising market, by promoting itshealthy development to purify its industry environment, through creating favorabledevelopment atmosphere and reducing the incidence of illegal activity in theadvertising market.
III. Industry self-regulation of advertising polycentric governance system inChina
Industry self-regulation and government regulation are all the important impetusto safeguard the order of the advertising market in advertising market polycentricgovernance system. But unlike government supervision, the direction ofself-discipline is from the inside out, it is through the advertising activities subjectformulate its own code of conduct by the campaign body, stick to the good faithgovernance, operating guidelines, in accordance with the implementation ofself-governance and constraint advertising business activities. However, from theimplementation view of industry self-regulation, the results are unsatisfactory, thereare even some advertising activities subject to satisfy its selfish interests in defianceof the laws and regulations, social morality and professional ethics, advertisingindustry group of the industry influence, weak leadership to the industry members, the lack of method and tool to punish the unscrupulous persons which destroy theindustry image and infringe industry's overall interests, Therefore, we should startfrom changing the function of industry groups, on the one hand, through the reformand innovation, revise industry code of conduct, improve the industry organizationfrom inside, and create industry reputation and authority of industryorganization,enhance the coverage of industry governance, driving the wholeadvertising market order to be holisticly positive; On the other hand, from the mainbody of advertising activities, break institutional barriers hindering the developmentof the industry self-discipline, through the advertising business units, distributionunits for self-examination self checking system, urge its gradually establish a brandconcept, cultivating self-discipline consciousness, adding to advertising marketpolycentric treatment of the " Inner Resources Power".
IV. Social supervision of advertising market polycentric governance systemin china
Social supervision is one of the best tools to safeguard public interests and thepeople's own interests, also to test the effects of advertising market polycentricgovernance "monitor" and "measurement meter". Social supervision through thecriticism,suggestions, complaints and reports, prosecution of advertising activities to supervise advertising campaign. Due to the universality of social supervision subject,the diversity ways of supervision, social supervision is bound to play anincreasingly important role in the advertising governance. Undoubtedly, due tonational quality is uneven in china, the high cost of social supervision, socialsupervision organization play adequate factors affecting to the development ofChina's social supervision. Therefore, first, through education and guidance,gradually improve the national quality of our national, to enhance participation insupervision and ability level; second, through institutional innovation, reduce thecost of social supervision, shorten the cycle of social supervision, enhance theenthusiasm of the people to participate in social supervision; third, it is necessary tosupport and guide the development of the social supervision organizations, Giventheir due rights and obligations, so as to play its role as a link connecting thegovernment and the people, make it to be truly spokesperson whom can reallyreflects the public supervision and appeal.
In summary, polycentric management of public governance theory-basedadvertising market is through the transformation of the advertising marketmanagement model to achieve the maintenance of the public interest and enhanceregulatory efficiency. But in view of the objective reality of China's advertising market and regulatory environment, must be through the improvement ofgovernment regulation, industry self-regulation, social supervision, to bring theminto conformity with the requirements of integrated governance, which play theefficacy of the polycentric management of the advertising market.
In the context of the planned economy era, the advertising industry was once neither recognized nor valued, and even been directly prohibited. Until the late1980s, after the implementation of the reform and opening up policy in China, the advertising industry started getting revived. With the completion of the social progress, economic development, China's advertising industry has experienced gorgeous change from small to large, from weak to strong. Especially after joining international trade organizations, there are more economic connections and merges between China and therest of the world, the world economies become more and more active, which makes the effect of advertising industry increasingly apparent in turns of boosting economicdevelopment, promoting cultural exchange, guiding the consumer spending, pullingmore domestic demand. However, along with the rapid development of the industry,there are also many problems under the halo of the advertising market, mainly lies inthe repeated false and illegal advertisement, the imbalance in the development of the advertising market and the irrational advertising market structure. The fundamentalreasons of difficulty in solving China's advertising market’s problems mainly are thatthe the current advertising market management model’s inability to adapt the rapid development of the advertising market and people’s need to purify the advertising market environment, as well as the irregular development of the advertising market due to the uneven regional economic strength. From the effects of practice, it is an effective way to make a timely improvement for China’s advertising market situation to build a polycentric management system that suits the reality of China's advertising market, the trend of the development of the advertising market and in line with the supervising need of the advertising market.
I. Advertising market polycentric governance system based on the theoryof public governance
Public governance is an official or nongovernmental public organization, withincertain limit, use public authority to maintain order as well as to meet the needs ofthe public, it exercise its power in a variety of institutional relations to guide, controland regulate the activities of citizens so as to promote the public interest to itsmaximum extend. According to this interpretation, as for the governance of theadvertising market in China, it is fully consistent with the research areas of public governance theory in terms of the subject of governance, the object of governance,governance objectives and means of governance, so the introduction of the theory ofpublic governance into the China’s advertising market governance research helps toimprove our current advertising market management model’s enhancements. Inaddition, Fully utilizing the theory of public governance and building a polycentricmanagement system of China's advertising market also comply with the eighteenthNational Congress report’s social management system requirements, which is "theparty leadership, the responsible government, social coordination, publicparticipation, law protection”.
Based on the public governance theory, advertising market’s polycentricmanagement system must be established on the basis of the wholesome legal lawsand regulations system, with the objective of protecting the public interests,maintaining the maximization of public interests, as the basic framework ofgovernment regulation, industry self-regulation and social supervision——relyingon the government as the leading regulatory forth, combined with the broadparticipation of social organizations, the general public, industry organizations,market players to form mutual governance power combined with the outside-in asthe government and social supervision as well as the inside-out as the industry’s self-discipline.
II. Government administration of advertising market polycentricgovernance system in China
Due to government regulatory agencies with market rules formulated, the rightof supervision of market order, market macro-control over the development offunctional advantages，which is to make the government regulation plays animportant role in polycentric governance system of the advertising marketposition—as the core and backbone of advertising market polycentric control system,Government regulation dominates the global advertising market polycentricgovernance system. As the advertising market has the rapid development in the21stcentury, it leads to the government regulation of the advertising market has beenslightly "powerless", the previous regulatory methods and technology has beenunable to adapt to the development changes of the advertising market, invisibleformed certain regulatory failure which leads to the occurrence and spread of illegalbehavior. Therefore, it must have to start from the the government departmentsinstitutional, through a series of reforms, innovation and regulatory ways to improvethe effectiveness of supervision, integrated resource advantage of governmentregulators, the formation of the remediation work together to safeguard the market order smoothly and orderly. In addition, the government regulators should continueto increase efforts to support the policies of the advertising market, by promoting itshealthy development to purify its industry environment, through creating favorabledevelopment atmosphere and reducing the incidence of illegal activity in theadvertising market.
III. Industry self-regulation of advertising polycentric governance system inChina
Industry self-regulation and government regulation are all the important impetusto safeguard the order of the advertising market in advertising market polycentricgovernance system. But unlike government supervision, the direction ofself-discipline is from the inside out, it is through the advertising activities subjectformulate its own code of conduct by the campaign body, stick to the good faithgovernance, operating guidelines, in accordance with the implementation ofself-governance and constraint advertising business activities. However, from theimplementation view of industry self-regulation, the results are unsatisfactory, thereare even some advertising activities subject to satisfy its selfish interests in defianceof the laws and regulations, social morality and professional ethics, advertisingindustry group of the industry influence, weak leadership to the industry members, the lack of method and tool to punish the unscrupulous persons which destroy theindustry image and infringe industry's overall interests, Therefore, we should startfrom changing the function of industry groups, on the one hand, through the reformand innovation, revise industry code of conduct, improve the industry organizationfrom inside, and create industry reputation and authority of industryorganization,enhance the coverage of industry governance, driving the wholeadvertising market order to be holisticly positive; On the other hand, from the mainbody of advertising activities, break institutional barriers hindering the developmentof the industry self-discipline, through the advertising business units, distributionunits for self-examination self checking system, urge its gradually establish a brandconcept, cultivating self-discipline consciousness, adding to advertising marketpolycentric treatment of the " Inner Resources Power".
IV. Social supervision of advertising market polycentric governance systemin china
Social supervision is one of the best tools to safeguard public interests and thepeople's own interests, also to test the effects of advertising market polycentricgovernance "monitor" and "measurement meter". Social supervision through thecriticism,suggestions, complaints and reports, prosecution of advertising activities to supervise advertising campaign. Due to the universality of social supervision subject,the diversity ways of supervision, social supervision is bound to play anincreasingly important role in the advertising governance. Undoubtedly, due tonational quality is uneven in china, the high cost of social supervision, socialsupervision organization play adequate factors affecting to the development ofChina's social supervision. Therefore, first, through education and guidance,gradually improve the national quality of our national, to enhance participation insupervision and ability level; second, through institutional innovation, reduce thecost of social supervision, shorten the cycle of social supervision, enhance theenthusiasm of the people to participate in social supervision; third, it is necessary tosupport and guide the development of the social supervision organizations, Giventheir due rights and obligations, so as to play its role as a link connecting thegovernment and the people, make it to be truly spokesperson whom can reallyreflects the public supervision and appeal.
In summary, polycentric management of public governance theory-basedadvertising market is through the transformation of the advertising marketmanagement model to achieve the maintenance of the public interest and enhanceregulatory efficiency. But in view of the objective reality of China's advertising market and regulatory environment, must be through the improvement ofgovernment regulation, industry self-regulation, social supervision, to bring theminto conformity with the requirements of integrated governance, which play theefficacy of the polycentric management of the advertising market.
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