权利实体与联结程序:高校“授权”逻辑的二元结构

Right Entity and Connection Procedure:The Dual Structure of“Authorization”Logic in Colleges and Universities

“田永案”基于法律授权条款确立了我国高校“授权组织”地位,但从判例发展来看这种“授权”理论会引发行政权扩张的风险,并延伸至实践,引发高校行为定性争议。2018年《最高人民法院关于适用〈中华人民共和国行政诉讼法〉的解释》第24条第1款、第3款的分类规定及被授权组织主体要素之差异性表明,高校所授之“权”是与传统“高权”相对的“特殊权利”,这是授权的“权利要素”;高校行政诉讼被告规则同时具有“程序要素”层面意涵。授权在“权利要素”和“程序要素”方面的双层法治结构,为高校授权理论提供了一种符合大学自主性发展规律的法释义框架。该解释方案可通过指导案例发挥其应用价值,并作为推进事业单位和行业协会分类改革的支撑学说,助力整个公共行政管理领域“放管服”改革的有序推进。

The “Tian Yong Case” established the status of “authorized organization” of colleges and universities in China based on the terms of legal authorization, but from the perspective of the development of precedents, this “authorization” theory will lead to the risk of administrative power expansion, and qualitative disputes over the behavior of colleges and universities in practice. At present, the academic interpretation of the authorization theory and the theory of “public legal person” are facing the dilemma of insufficient legitimacy. The classification provisions in Paragraphs 1 and 3 of Article 24 of the Interpretation of the Administrative Procedure Lawissued in 2018 and the differences in the main elements of authorized organizations show that the “power” granted by colleges and universities is a “special right” opposite to the traditional “high power”,which is a “right element” of authorization. The defendant rules of administrative litigation in colleges and universities also have the meaning of “procedural elements”. The two-tier legal structure of authorization in terms of “right elements” and “procedure elements” provides a legal interpretation framework for the university authorization theory in line with the law of the development of university autonomy. The interpretation scheme can play its application value by guiding cases and serve as a supporting theory to promote the classification reform of public institutions and industry associations, helping to orderly promote the reform of “decentralization, management and service” in the whole field of public administration.