高校办学自主权的法律性质与行使边界

The Legal Nature and Exercise Boundaries of University Autonomy

办学自主权是现代大学治理的基础与核心,落实并扩大办学自主权是新时代深化高等教育体制改革的关键。办学自主权兼具权利与权力的双重属性;从权源角度而言,办学自主权是高校作为公法团体“内生”的自治权利;从“授权”角度而言,办学自主权是法律法规规章“授予”的行政权力,且此种权力涵盖明确授权下的羁束自主管理权和概括授权下的裁量性自主管理权两种形态。教育行政诉讼领域典型案例裁判文书显示,高校办学自主权在接受司法审查过程中存在重程序审、轻实体审及“类案不同判”等现象,这些均与办学自主权法律边界不明晰存在紧密联系。高校办学自主权行使法律边界设定应遵循有限法律保留、利益均衡、严格正当程序与有限正当程序等基本原则,并通过合理界定其与国家立法、行政、司法机关之间的关系及建立必要的类型化裁量基准制度确立办学自主权行使的“纵向”与“横向”法律边界。

Autonomy is the foundation and core of modern university governance,and implementing and expanding the autonomy of running schools is the key to deepening the reform of higher education system in the new era.The university autonomy has the dual attributes of right and power.From the perspective of power source,the autonomy is the"endogenous"self-governing right of a university as a public law organization.From the perspective of"authorization",the autonomy is the administrative power"granted"by laws and regulations,and this kind of power has two forms:binding autonomy under explicit authorization and discretionary autonomy under general authorization.According to the judgment documents of typical cases in the field of educational administrative litigation,there are some phenomena in the process of judicial review,such as emphasizing procedural review,neglecting substantive review and"different judgment in the same case",which are closely related to the unclear legal boundary of university autonomy.The establishment of legal boundaries for the exercise of university autonomy should follow these basic principles:limited legal reservation,interests balance,strict due process and limited due process.The"vertical"and"horizontal"legal boundaries of exercising university autonomy are established by reasonably defining the relationship between the university and the national legislative,administrative and judicial organs as well as establishing the indispensable type discretion benchmark system.