【作者】 孙丽昕；

【导师】 李晓燕；

【作者基本信息】 华中师范大学 ， 教育学原理， 2011， 博士

【摘要】 教育信访制度是我国信访制度的一个组成部分,从性质上来说是一种行政信访。教育信访制度是指教职工、学生、公民、法人和其他组织采取书信、电子邮件、传真、电话、走访等方式,向各级教育部门(包括各级教育行政部门、各高等学校、中小学和幼儿园)或其他信访工作机构反映情况,提出意见、建议和要求,并由有关教育部门予以处理的活动。相当长一段时间以来,教育信访制度扮演着对教育权益救济的角色,同时近年来我国教育信访的相应统计数据则表明我国教育行政部门正面临着较大教育信访压力。当信访制度之存废面临着时代的抉择时,教育信访制度又将面临着怎样的选择呢?教育信访制度目前所面临的困境可以概括为三个方面：一是人治化的运作与法治的背离。从教育信访制度的运行过程来看,在其运行之初筛选机制的运用使得教育信访制度与法治的公正要义相背离；人治化的运作使教育信访制度成为“权力装置”,这与作为“权利装置”的法治相背离；对教育信访问题处理的非规范性使得教育信访制度的运行结果具有极强的不确定性,这与法治的程序正义之要旨相背离。二是异向目标的互动——制度良性运作基本要求的违背。教育信访人的目标主要指向教育权利的救济与保障,而教育信访部门的工作目标则指向的是教育领域的安全与稳定,对教育权利的救济与保障仅仅是教育信访部门在追求前述目标下的一种可能结果。由于教育信访人与教育信访部门的目标相异,因此各方追求各自目标的过程就是双方进行博弈的过程,并进而将教育信访制度撕扯得面目全非、并使其异化。三是功能扩张与虚置。教育信访制度的基本功能,无论是三功能说还是四功能说,在现实中都受到了不同程度的压抑与虚置,与此同时教育信访制度突破原有功能的界说而表现出扩张的一面,扩张后的功能可概称为维稳功能。维稳功能从静态渗透与动态运作两个方面支配与左右着现行教育信访制度,使教育信访工作从理性变为非理性,并极易游离于法治之外。造成上述教育信访制度困境的原因是复杂的。最基本的原因有三个：1.教育信访制度法制化改造的不彻底性,使得名义上由行政法规《信访条例》所规范与调整的制度,实质上却不具有法律制度的基本属性——法律制度的确定性与由法律规范调整的属性。既然不是法律制度,自然难以自觉遵循法律的基本原则与制度；既然不是法律制度,则难免会不知不觉沿袭人治作风；既然不是法律制度,在教育信访工作中所表现出来的人治作风就可能消解国家司法机关的权威之现代社会治理的基础。因此,教育信访制度法制化改造的不彻底性,使得该制度实质上提供的是一个在法律之外解决教育信访问题的途径。2.教育部门自上而下的科层管理体制,实际上是一种控制——压力型教育行政管理体制,上级教育部门大多掌管着下级教育部门的至少一、两个命门,使下级总要听命于上级。因此,对于教育信访问题的解决,主要并非依据现有的规范(规则、制度等)进行,而是基于这种“控制——压力”的力度；同时在这种上下级教育信访部门之间所形成的类似于闭合性的系统内,对教育信访问题的解决更显得无章法可循。3.教育权利救济机制不完善为教育信访制度的功能扩张提供了可能与空间,所谓使教育信访制度“乘虚而入”。正是教育权利救济机制的不振使教育信访制度才有了补阙的可能。教育信访制度如何走出困境呢?恐怕要根据其所面临的困境,不仅要对其自身进行相应的改造,而且还要对教育法制进行相应的完善。具体来说,教育信访制度走出困境的基本思路是：首先,从教育信访制度本身的完善入手,进行内部改良,即明确教育信访制度的功能与进行法制化改造。其次,完善教育权利救济机制,以避免教育信访制度功能的扩张与虚置。最后,完善我国的教育法制,为依法行政提供良好的前提条件。更多还原

【Abstract】 Educational petition system, as one part of the petition system in China, is one administrative petition by nature.Educational petition system is that teachers and other staff members in school, students, citizenery, corporations and the other organizations reflect,present opinion, proposal or request to the all levels educational departments (include educational administrative departments at all levels, colleges and universities, middle schools, primary schools and children gardens) or other petition organezations and the actives that should be dealt with by the relevant educational department. Quite a long period, educational petition system role for the rights remedy,and in recent years the corresponding figures of educational petition show that the educational administrative departments is facing greater pressure. When the educational petition system is in the face of the choice in the new era, how does it to choose?The predicament that the educational petition system is now facing can be summed up in three aspects:1.its function ruled by man deviates from the rule of law.In the running darly of its function course, the use of the filtering mechanism makes the educational petition system deviate from the justice of rule of law.The function ruled by man makes it a device of power that deviate from the rule of law as a device of rights.lt handles the petitions by nonnormal way, that makes the petitions resolves is uncertain that deviates form the procedural justice.2.There are different aims for the parties that violates the basic requirements of the system’s benign function.The educational petitioner’s aim is the remedy for educational rights, and the educational petition departments’aim is the safety and stability in the educational field.Because the aims of the parties is different, the course of the persuit for the aims for the parties is the course of game that make the system be torn down.3.Function expansion and nominal.The educational petition system’s basic functions, either three functions or four functions, are enduring different degree depression and nominal.At the same time, the educational petition system expand above the basic functions, and the expansive function is to maintain the stability.The function to maintain the stability control the courrent educational petition system in two ways by statics and dynamics, that make the petition work into irrational and be isolated in the rule of law.The causes of the educational petition system’s predicament are complex, and there are three basic causes:1. The educational petition system reconstructed by law is halfway. The educational petition system, namely regulated by the administrative law The Petition Code,in essence does not have legal system’s basic properties.2. Supervisory-pressure educational administrative management system, actually a top-down division management system, makes the educational petition department be in the strict sense of independence. The upper educational administrative department controls one or two vitaports of lower department, that forms a closed system between the upper and lower educational administrative departments.3. Because the educational rights remedy system is not perfect, the educational petition system has the possibility of expansing its function.How the educational petition system goes out of the predicament? Maybe we should not only reconstruct itself but also perfect the educational laws. Specifically, the basic train of thought isthat:1. Perfect the educational petition system, that is to definite its function and reconstruct by law.2. Perfect the educational rights remedy system in order to avoid the educational petition system’s functions’ expansion and nominal.3. Perfect the educational law in order to provide the precondition for the administration by law.更多还原