大学治理中高校校规与国家教育立法的冲突及其协调

Conflict and Coordination between University Regulations and National Education Legislation in University Governance

推进大学治理体系和治理能力现代化,既依赖于作为“强制型规范”的国家教育立法提供外部保障,也需要作为“自治型规范”的高校校规形成内在支撑。在大学治理实践中,高校校规对法律保留原则的逾越、国家教育立法对学术自治空间的限缩,揭示的是二者之间在规范内容上的冲突。在规范适用中出现的价值判断分歧,体现的是二者之间在司法层面的冲突。校规制定与统一立法缺乏协调制度、国家公权力与大学自治权相互博弈、司法难以兼顾合法性与合理性审查是二者存在冲突的主要原因。在教育法典编纂背景下,现代大学治理需要妥善协调两种规范的“内外平衡”关系,其正当性既体现在“强制型规范”与“自治型规范”的可通约性,也取决于立法的“谦抑性”与校规的“有限性”。在具体规则构设上,既需要建立高校校规与国家教育立法的沟通机制,也应当完善高校校规的制定程序和民主参与制度,同时还要推动司法程序性审查向正当性审查的发展。

Advancing the modernization of university governance system and governance capacity relies not only on external guarantees provided by national education legislation as a“obligatory norms”,but also on the internal support formed by university regulations as an“autonomous norm”.In the practice of university governance,the violation of the principle of legal reservation by university regulations and the limitation of academic autonomy space by national education legislation reveal the conflict between the two in terms of normative content.The divergence of value judgments in the application of norms reflects the conflict between the two at the judicial level.The main reasons for the conflict between the formulation of school regulations and unified legislation are the lack of coordination system,the interplay between national public power and university autonomy,and the difficulty of balancing legality and rationality review in the judiciary.In the context of codification the education code,modern university governance requires a proper coordination of the“internal and external balance”relationship between the two norms.Its legitimacy is reflected not only in the commensurability of“obligatory norms”and“autonomous norms”,but also in the“modesty”of legislation and the“limitedness”of school rules.In terms of specific rule construction,it is necessary to establish a communication mechanism between university regulations and national education legislation,improve the formulation process and democratic participation system of university regulations,and promote the development of judicial procedural review towards legitimacy review.