从程序性管制走向监管型治理:法德两国公立高校与政府关系变革的法律透视  

From Procedural Regulation to Regulatory Governance:A Legal Perspective on the Relationship between Public Universities and Government in France and Germany

作　　者：姚荣[1] YAO Rong(School of Educational Sciences, Nanjing Normal University, Nanjing 210097, Jiangsu, China)

机构地区：[1]南京师范大学教育科学学院,江苏南京210097

出　　处：《复旦教育论坛》2018年第6期48-55,共8页Fudan Education Forum

基　　金：全国教育科学规划2018年度国家青年课题"高等教育质量保障的法律规制研究"(CIA180271)

摘　　要：传统上,法国与德国公立高校与政府的关系分别被置于公务分权与间接行政的理论框架之下。鉴于学术自由基本权保障的逻辑起点,政府对高校的监督,往往以法律监督为主,以专业监督为辅。然而,在"巨细靡遗"的高等教育法律规定的影响下,公立高校自治权也面临着被"掏空"的风险。同时,法律一致性原则也使得高等教育变革变得异常困难。国家对公立高校进行"程序性管制"的局限,开始受到广泛的责难与抨击。20世纪80年代以来,受新公共管理运动的影响,传统的行政法治主义原理逐渐被新行政法的纲领与教义所取代。通过框架性立法、国家与大学的合同关系以及高等教育质量保障体系等变革举措,法德两国公立高校与政府的关系开始从程序性管制向监管型治理转变。然而,这种转变也蕴含着一系列治理风险。一方面,新型规制空间与控制权的创设,使法律监督与专业监督的界限模糊,学术自由的基本权保障面临危机。另一方面,大学内部管理自治权的强化,可能对学术自治构成威胁。对于法德两国而言,如何在强调绩效责任与公共利益的同时,保障学术自由与学术自治不受侵害,显得尤为紧迫。Traditionally,the relationship between public universities and government in France and Germany has been placed under the theoretical framework of decentralization and indirect administration.In view of the logical starting point of the guarantee of the basic rights of academic freedom,the government's supervision of colleges and universities is often dominated by legal supervision,supplemented by professional supervision.However,under the influence of the laws and regulations on higher education,the autonomy of public universities is also facing the risk of being"emptied".At the same time,the principle of legal consistency has made the reform of higher education extremely difficult.The country's limitations on"procedural regulation"of public universities began to be widely criticized.Since the1980s,influenced by the new public management movement,the traditional principles of administrative rule of law have gradually been replaced by the program and doctrine of the new administrative law.Through framework legislation,contractual relations between the state and universities,and quality assurance systems for higher education,the relationship between public universities and government in France and Germany began to shift from procedural regulation to regulatory governance.However,this transformation also contains a series of governance risks.On the one hand,the creation of new regulatory space and control rights blurs the boundaries between legal supervision and professional supervision,and the protection of the basic rights of academic freedom faces crisis.On the other hand,the strengthening of the university's internal management autonomy may pose a threat to academic autonomy.For France and Germany,how to protect academic freedom and academic autonomy while emphasizing performance responsibility and public interest is particularly urgent.

关 键 词：程序性管制 监管型治理 公立高校与政府关系 学术自由 治理风险 

分 类 号：G649.1[文化科学—高等教育学] D912.1[文化科学—教育学]