【作者】 赵亮；

【导师】 丁钢；

【作者基本信息】 华东师范大学 ， 教育文化与社会， 2012， 博士

【摘要】 助学贷款制度建设问题是国内教育资助领域的难点,至今尚无严格意义上的法律出台,这一方面使得依靠行政手段全面推行的助学贷款政策面临着合法性危机,另一方面也使得各方主体利用政策缺陷谋求自身利益最大化,不利于助学贷款工作的有效推进。面对实践困境,目前国内的理论研究在经济学、管理学、教育学等学科领域均取得了深入发展,研究内容主要集中于银行放贷、学生还贷,以及政府如何提高各方积极性三个方面,整体上属于“风险控制型”的研究模式。但以往研究要么过分倚重经济学上的实证分析方法,容易导向一种工具理性的研究范式,从而忽视助学贷款制度本身的价值维度；要么属于一种法律分析,运用法律来剪裁事实,不能有效应对贫困大学生的权利保障问题。由于尽快制定助学贷款相关法律已成为当前理论界与实务界的基本共识,法又是以权利义务关系(即法律关系)为核心内容的,所以,本文确立了以助学贷款法律关系为研究领域,基于法理分析的“权利保障型”研究模式。而教育资助政策实际上体现的是一个有关国民收入再分配的宪政问题,政府如何对待贫困大学生的受助权问题其实就是政府如何保障公民社会权的宪政问题,由此进一步确立了本文的中心论点：助学贷款法律关系之确立虽受客观物质条件的制约,但更须以宪政为前提和基础,以贫困大学生受助权为原点,实现制度建设从“风险控制”到“权利保障”的根本转型。在研究领域、研究模式、中心论点的统领下,本文以社会主义宪政原理与教育资助政策的关系为主线,首先以法律关系为分类依据,对我国的助学贷款政策进行了实证分析：从政策文本上看,助学贷款行政立法呈现出一种“管理法”特征,不仅公民权利的实现以政府行政为根本前提,法人和其他社会组织完全处于政府行政权控制之下,而且政府的权力与责任存在明显偏差。从政策实践上看,助学贷款管理运作呈现出一种“对抗型”特征,包括行政与法的对抗、行政相对人与行政主体的对抗、行政主体间的对抗。其次,对国内有关助学贷款制度影响因素的研究进行了实证分析,明晰了已有研究的整体进展。并对我国助学贷款制度建设的宏观背景进行考察,从财政体制改革、金融体制改革、高等教育管理体制改革等方面,对府际关系、府银关系、府校关系、校生关系的发展趋势进行总结,指出：必须在公共财政理念下完善高等教育投入体制；必须由政策性银行承担助学贷款业务；助学贷款府校关系是需要保留的内部行政法律关系；助学贷款校生关系则属于外部行政法律关系。而从社会主义法律体系建设的发展趋势来看,“社会法”是国内理论与实践领域所公认的、面向民生领域的最重要的法律部门。然后,对贫困生受助权的社会权属性,以及助学贷款法的社会法属性作法理分析。贫困生不仅经济贫困、心理贫困,最重要的是权利贫困,是典型的弱势群体。受教育权是我国明确的一项基本人权,但贫困生的人权问题并非是受教育权的享有意义上的,而是受教育权的保障意义上的。作为社会权的受教育权之实现,需要以贫困生的受助权之实现为前提,要求国家必须力所能及地为公民受教育权的有效行使提供充分的条件保障,以此促进个体的发展和整个社会的进步。而助学贷款法在调整目的、手段、原则等方面都具有特殊性,不同于行政法、民商法和经济法,应属社会法部门。再次,以宪政视角重新审视了作为我国助学贷款制度建设最重要参考源的美国学生贷款制度建设。美国法律意义上的学生资助制度始于冷战时期,是出于国家安全的考虑而做出的制度安排,并非完全基于受教育权之实现的考虑。美国的学生资助政策已经偏离了原定目标,脱离了低收入家庭的现实需要。近二十年美国学生贷款违约率的大幅下跌与再次上涨,其主要影响因素一是经济大环境的变迁,二是营利性高校违约率的起伏。但美国的营利性高校定位于终身教育体系,而我国助学贷款制度所覆盖的高校则是定位于高等教育大众化,两者有本质的不同。美国助学贷款的市场化运作暴露出了种种弊端,奥巴马政府也因此再度将贷款权收归政府。总体来看,美国宪政体制下的政党政治、选举制度、利益集团等因素,是美国学生贷款政策越来越偏向于中产阶级,且缺乏连贯性,并继而影响违约率的重要原因。最后,在前文已有的实证分析、法理分析、比较分析基础上,以宪政视角重新审视我国助学贷款制度建设的基本定位。首先明确了受教育权在我国所具有的独立的宪法权利地位,受教育权的实现与社会主义的政治根基紧密相连,是公民有效参与治理国家和社会的根本前提。其次,明确宪政虽来源于西方,且在我国发展坎坷,但却是理论和实践领域公认的必然发展方向。而宪政的中国式内涵则决定了我国公民的受教育权保障问题就是宪政问题,决定着国家的义务形式和法治建设路径。再次,指出现阶段我国的贫困生受助权的保障不仅仅是实现教育公平的问题,更是符合社会主义本质要求的体现,是以最终实现共同富裕为目标的国家反贫困战略的关键环节。最后,通过法理分析从服务行政下的助学贷款国家给付义务、贫困生受助权的救济途径两方面阐述了有关贫困生受助权保障的宪政安排问题。更多还原

【Abstract】 In China’s education aid system, construction of national student loan system always is a difficulty, which there is no law yet. Therefore, on one hand, student loan policy which depended on the administration means only encounters a legitimacy crisis; on the other hand, the benefit body who participate in student loan system, strives for maximum profit through policy defect that go against effective advancement of student loan policy. Facing this kind of difficult position, domestic theory research is forging ahead rapidly, which involves economics, management, education, and belongs to " risk control" research model as a whole.But previous studies either relies excessively on positive analysis method, which towards instrumental rationality, and neglects value dimension of student loan policy, or belongs to legal analysis, in which the fact is tailored by law, that cannot powerfully support and efficiently reply to right guarantee of poor college students.At present, legislating timely has become the basic consensus between academic circles and professional circles, and right-duty relation(legal relationship)is core content of law, so the thesis choses legal relationship as research object, and establishes a "rights protection" research based on jurisprudential analysis. In fact, education aid policy embodies a constitutionalism problem of redistribution of national income, how to treat with poor college students’s right of obtaining financial aid can be transformed into a constitutionalism problem that to guarantee citizen’s social rights. Thus the thesis establishes central argument:Though legal relationship of national student loan system is restricted by objective material conditions, it is more important to take constitutionalism as the precondition, take right of obtaining financial aid as zero point, and promote system construction transformation from " risk control" to "rights protection"Under the heading of research field,research model and central argument, the thesis takes relationship between socialist constitutional principles and education aid policy as the main lines. Firstly, the thesis makes an empirical analysis classified by legal relationship: Viewing from policy text, administrative legislation of student loan is notably characterized by "administration law". Civil rights depends on government administration, legal person and other social organizations are under the control of administrative power, and there is clear deviation between government power and responsibility. Viewing from policy practice, student loan management is notably characterized by "confrontation-type",including confrontation between administration and law, confrontation between administrative counterpart and administrative subject, confrontation between administrative subjects.Secondly, in order to understand holistic development, the thesis makes an empirical analysis of domestic study on factors influencing construction of national student loan system. Investigating macro-background of national student loan system from three respects:fiscal system reform, financial system reform, and higher education administration system reform. Summarizing development trend of intergovernmental relations, bank-government relationship, and government-school relationship, student-university relationship:higher education investment must be perfected under contents of public finance; student loan business must be beared by policy bank; government-school relationship of student loan system is internal administrative law relationship that need to be preserved; student-university relationship of student loan system is external administrative law relationship. Viewing the development trend of construction of the socialist legal system with Chinese characteristics, It is universally acknowledged that,"social law" is the most important legal department which facing the field of livelihood.Then, the thesis discusses the social rights attribute of right of obtaining financial aid, and the nature of social law of student loan law by jurisprudential analysis. Poor college student is a typical vulnerable groups, including economic poverty, psychological poverty, and right poverty most importantly. Though the right to education is a basic human right in China, it’s not the significance of enjoying, but the significance of protecting. The nation (or government) must provides sufficient protecting conditions through its best effort to ensure that the citizen can exercise the right to education effectively, in order to promote the development of personality and society. Comparing with administrative law, civil and commercial law, and economic law, the student loan law has its particularity, such as objective, means, and principle, and it is should belong to the legal department of social law.Followed that, this paper re-examines the construction of national student loan system in America. In fact, American’s student financial aid system with legal significance, which started from the Cold War period, is in the consideration of national security, not not totally a right to education protecting. The student financial aid policy has already deviated widely from an intended course, which out of necessity of low-income household. In the past twenty years, the student loan default rate rises and falls sharply.And there are two main influence factors:one is the changing of economic circumstances,another is impact of student loan default rate of for-profit higher institutions. But for-profit higher institutions in America is set in lifelong education system, it is essentially different to China’s college which is coverd by national student loan system at present. With the development of student loan marketization in America, its faults were exposed gradually. Therefore, Obama’s government recalls the student loan-granting power. On the whole, American constitutionalism, including party politics, election system, interest group, etc. is the most important influence factor in causing student loan policy to protect middle class increasingly, lack of continuity and stability of policies, and further influences the student loan default rate.Finally, on the basis of empirical analysis, jurisprudential analysis, comparative analysis in previous paper, the last chapter re-examines the construction of national student loan system in China from the viewpoint of constitutionalism. Making clear the independent constitutional right position of right to education in our country. The right to education is interrelated with socialist political foundation, and is the fundamental premise of participating in administration."Constitutionalism" comes from western modern thought, and it’s also the only road to a modernized country in China.The connotation of constitutionalism in China determines that protection of right to education is a constitutionalism problem which is essential requirement of socialist essence, determines type of state obligation and path of legal construction. At last, the thesis mainly expounds the constitutional arrangement from two aspects:first is the national prestation mode of student loan under service administration, second is the remedy approach of poor college students’s right of obtaining financial aid.更多还原