地方公办高等教育办学三主体的法律关系

Legal Relationships among the Organizer,Regulator and Manager of Local Higher Education

从法律层面界定高等教育举办者、管理者、办学者之间的关系,涉及高等教育改革的核心层面。举办者与办学者的法律关系可通过高校章程进行梳理,管理者权力可借助权力清单厘清。地方公办高校的管理者应为省级教育行政部门,举办者应为一定层级的地方各级人民政府及部门,一般为省级人民政府。应将地方公办高校的举办者和办学者都定位为公法人,它们之间互不隶属,其法律关系通过公法上的权利义务进行界定。当前的实际是举办者和管理者分享了针对办学者的管理权力,而管理者的权力与地方公办高校的权利之间又存在交叉,因此应将重点放在有关高等教育管理的单行法律规范,对其进行全面整理完善。

It is imperative to define the legal relationships among the organizer, regulator and manager of higher education.The legal relationships between the organizer and manager can be sorted out through the university charter, and the power of the regulator can be clarified through the power list. The regulator of local public universities should be provincial educational administration, and the organizer should be local government or department at various levels and generally provincial-level government. Ideally, the organizer and manager of local public universities should all be regarded as public legal subjects, and they should not be subordinated to each other. Their legal relation should be defined through the rights and obligations of public law. The reality is that the organizer and the regulator share the power and there is a gray area between the power of regulator and the rights of local public colleges. Therefore, we should focus on the special legal norms on higher education and clarify the ambiguities.