我国大学章程文本建设的问题分析

Analysis on the Problems of University Charters' text Construction in China

大学章程的颁布不是终点,而是实现依法治校、不断构建和完善以大学章程为核心的学校制度体系的起点。但就已经被核准的我国大学章程的文本分析来看,存在多方面的问题:一是章程语言不规范,用语缺乏明确性和严谨性。作为教育部部门规章的大学章程应归属于国家法律体系的框架内,大学章程的语言应具备法律语言的规范性要求。二是章程内容的法律效力问题。由作为大学章程的下位法规定上位法应规定的内容,会导致这些规定本身缺乏法律效力,没有强制性的约束力。三是章程规定的高校内部法律关系不明确。章程对高校内部法律关系主体权利义务的模糊处理或简单规定,不仅会给这些权利的实现以及义务履行带来不确定性,也使得章程的指导性和可操作性降低。四是章程文本结构和内容趋同,缺乏个性。大学章程的低辨识度导致我国高校章程陷入千校一面的困境。五是章程内容的弹性和应有内容的缺失导致执行风险。章程文本除了要体现学校的自然信息和基本制度等实然性内容外,还应包括一些执行层面的细则,应体现章程执行和监督阶段的应然性要求。六是普遍缺乏对大学本质特征和使命的观照。大学根本使命的体现并非是简单地在章程某一款条文中的生硬规定,而是要将以人为本的思想融于章程文本之中,用制度化的方式将其彰显出来。

The promulgation of university charters is not the end,but the beginning of managing education according to law and improving constantly the system with the core of charters in university. Through analyzing the charters approved by Ministry of Education of the People＇s Republic of China,we can know that there are still many problems. First of all,the languages of charters are not standardized,and lack of clarity and rigor. As the regulations of the Education Department,the university charters should be vested in the framework of the national legal system; the language of the university charters should have the normative requirements of the legal language. Secondly,there is a problem of the low efficiency of the law in partial contents in charters. The content of upper law is defined by university charters as the inferior law,which will lead to the lack of legal effect and lower legal efficiency. Then,the university internal legal relationship is not clear in charters. The fuzzy treatment and the simple rules of the main rights and obligations of the legal relationship in charters,will not only make the realization of these rights and performance of obligations uncertainty,but also reduce the guidance and operability of the charters. Furthermore,the text structure and content is similar in charters of different universities,and the charters are lack of personality. The low degree of recognition of the university charters leads to the dilemma that all universities are the same. Additionally,due to the lack of the contents which should have,there is the implement risk in the charters.Except that the charters should reflect the natural information of the university and the basic system,it should also include some implementation details. Finally,there is lack of the university＇s essential characteristics and mission of care. The embodiment of university fundamental mission is not simply to be in a certain article of the charters,but put the thought of people-oriented into the charters,and demonstrate it in a systematic way.