中国高校办学自主权制度演进及基本特征分析

Analysis on the Basic Characteristics of the Evolution of Autonomy System of Running Universities in China

1978年以来,我国高校办学自主权成为政府与大学关系的核心问题。梳理改革开放以来国家正式制度中涉及中国高校自主权的主要政策与法规文本,发现改革开放四十年高校办学自主权"回归"演进中有五个不同历史阶段:第一阶段,1978-1985年,以政府颁布《中共中央关于教育体制改革的决定》为标志,面对思想解放,提出高校办学自主权"回归";第二阶段,1986-1993年,以政府颁布《中国教育改革和发展纲要》为标志,面对思想纷争,争取市场主体地位与更多"名义"自主权;第三阶段,1994-1998年,以全国人大颁布《高等教育法》为标志,面对两轨体制的转型困境,确认高校法人地位与有限自主权的"名义"法律保障,在招生就业体制、投资体制、管理体制改革等领域高校办学自主权迈出制度性突破;第四阶段,1999-2011年,以政府颁布《国家中长期教育改革和发展规划纲要(2010-2020年)》为标志,原有涉及多方利益的存量改革固化,改革增量创新难度加剧,造成高校行政权力与学术权力之困,也迫使学校寻求自主权确权的制度创新;第五阶段,2012-2017年,以十九大报告《决胜全面建成小康社会,夺取新时代中国特色社会主义伟大胜利》为标志,面对全球治理浪潮,政府简政放权,探索确立完善现代大学制度与大学治理结构,碎片化自主权"回归"诉求转换为整体现代大学制度建设。高校自主权的演进始于突破计划经济管理体制、纠结于转型中的两轨制、转换于公共治理理念框架的实践,这将改变政府与学校就办学自主权的"分权"或"放权"的"线性"循环局限,转入到参与大学办学相关利益方关于权利、义务、责任、理念的制度重塑与学术生态培育的新阶段。

Since 1978,the running autonomy of colleges and universities in China has become the core benchmark of the relationship between the government and universities.Combing through the main policies and regulations related to the autonomy of Chinese colleges and universities since the reform and opening up,it is found that there are five different historical stages in the"return" of the running autonomy of colleges and universities in the past 40 years:in the first stage,1978-1985,marked by the government’s promulgation of the Decision of the CPC Central Committee on the Reform of the Education system,the original planning system was refused and the"return " of the autonomy of colleges and universities was proposed to the government in the face of ideological emancipation;in the second stage,from 1986 to 1993,marked by the government’s promulgation of outline of China’s Education Reform and Development,universities strived for the dominant position of the market and more"nominal" autonomy in the face of ideological disputes;in the third stage,from 1994 to 1998,marked by the higher Education Law promulgated by the National people’s Congress,in the face of the transformation dilemma of the two-track system,the nominal legal safeguard of the legal person status and limited autonomy of colleges and universities was confirmed and institutional breakthroughs could been seen in the autonomy of colleges and universities in the fields of enrollment and employment system,investment system,management system reform and so on;in the fourth stage,from 1999 to 2011,marked by the government’s promulgation of the Outline of the National Medium-and Long-Term Education Reform and Development Plan(2010-2020),previous reform involving multi-interests solidified while the new reform aggravated the difficulty of innovation,which not only caused the difficulty of administrative power and academic power in colleges and universities,but also forced the school to seek the institutional innovation of self-determination;in the fifth stage,from 2012 to2017,marked by the report Winning a Decisive Victory in Building a Moderately Prosperous Society in an All-round Way and Winning the Great Victory of Socialism with Chinese Characteristics in a New Era in the 19 th Plenary Session,in the face of the wave of global governance,the government took drastic measures to simplify administration and delegate power to explore a perfect modern university system and governance structure,which transformed the demand of fragmented autonomy"return " into the construction of complete modern university system.The evolution of the autonomy of colleges and universities begins with the practice of breaking through the planned economic management system,entangles in the two-track system in transition,and changes to the framework of the concept of public governance.This transformation will change the limitation of the"linear" cycle of"the separation of powers " or"decentralization" between the government and the school into a new stage of institutional reshaping and ecological cultivation of a group of rights and obligations of the stakeholders involved in running a university.