从合法性走向最佳性:公立高校与政府分权的逻辑嬗变

From Legitimacy to Optimality:The Logical Evolution of Decentralization between Public Universities and the Government

公立高校与政府分权是一项特殊且复杂的公法议题,总体上经历了从合法性走向最佳性的逻辑嬗变。合法性的分权逻辑关注教育行政规制的合宪性与合法性,而最佳性的分权逻辑重视教育行政规制的有效性与适切性。在合法性的分权逻辑下,国家往往扮演行政指令发布者与行政法治守护者的角色。而在最佳性的分权逻辑下,国家则以质量监管者乃至合作伙伴关系促进者的角色出现。目前,在政府主导的教育立法与修法体制下,我国《高等教育法》还未能从合法性与最佳性两个维度,调整与优化公立高校与政府的分权格局。受“政策思维”的支配,我国公立高校与政府分权,通常表现为政府“渐进放权”的政策行动和有限度的“自我革命”,其与法治意义上的分权仍存在较大距离。未来,我国公立高校与政府分权,需在法治的理念、思维与框架之下,借由《高等教育法》的实施与修订,在合法性逻辑与最佳性逻辑之间实现冲突整合。

As a special and complex issue of public law,the decentralization between public universities and the government generally experiences a logical evolution from legitimacy to optimization.The logic of legal decentralization focuses on the constitutionality and legitimacy of educational administrative regulation,while the optimal decentralization logic attaches importance to the effectiveness and appropriateness of educational administrative regulation.Under the decentralization logic of legitimacy,the state often plays the role of administrative instruction publishers and the administrative role of law protector.Under the decentralization logic of optimization,the state often plays the role of quality regulators and even the partnership promoters.At present,under the system of education legislation and law revision led by the government,China’s Higher Education Law has not yet been able to adjust and optimize the decentralization pattern between public universities and the government from the two dimensions of legitimacy and optimality.Under the domination of"policy thinking mode",the decentralization between public universities and the government in China is usually manifested in the policy action of"gradual decentralization"and the"self-revolution"of the government,which still has a great distance from the decentralization of the rule of law.In the future,the decentralization between public universities and the government in our country should be placed under the concept,thinking and framework of the rule of law.We should promote the conflict and integration between legitimacy logic and optimization logic of the decentralization between public universities and the government through the implementation and revision of Higher Education Law.