【作者】 吴晓春；

【导师】 崔延强；

【作者基本信息】 西南大学 ， 高等教育学， 2012， 博士

【摘要】 政府与大学关系问题一直是困扰我国和世界各国高等教育发展的难题,从我国的实际来看,受我国政治经济体制、历史文化传统等因素的影响,我国政府将大学视为自己的附属机构,对大学的管理是干预过多,控制过强,大学自主权缺乏,从而影响了大学学术事业的发展。而政府放权的结果,则是一放就乱。因此,如何处理和协调我国政府与大学的关系是我国高等教育事业发展亟待解决的问题。何以解忧?专家、学者各述己见,提出众多解题之道。本文以已有研究为基础,借鉴有益经验,从信任的视角,审视我国政府和大学关系之症结,分析影响我国政府和大学信任的制度因素,并提出建立基于制度的我国政府和大学信任的对策,以实现我国政府与大学关系的和谐发展。信任作为一种以主体间性为基础,双向互动为特征的关系,作为一种减少不确定性,降低成本,维护社会秩序,促进合作的机制,为构建和谐的政府与大学关系提供了一种新思路。而从政府与大学关系的实际看,政府与大学关系本身也包含着信任问题,表现在：首先,大学自治是大学悠久的传统之一,也是大学立足之本,而政府的信任是大学获得自治权的前提；其次,政府和大学作为利益相关者,其权力博弈的最好选择是合作,而信任是政府和大学合作的前提。最后,和谐有序的政府与大学关系是双方的诉求,而信任具有维护政府与大学秩序的功能。因此,用信任理论研究政府与大学关系问题具有非常重要的现实意义。我国政府和大学信任状况及导致的后果,是本研究的前提和现实基础。政府和大学信任是组织间信任,是彼此相信对方在相关活动中,不会做有损自己利益的行为的信心。政府和大学信任是以主体间性为基础,双方相互尊重,真诚相待,以实现双方利益的最大化为目的,以制度为保障。以此为基础,论文以政策法规文本为参照物,对新中国成立至今,我国政府与大学关系的演变进行了回顾。从历史的追溯中可以看出,我国政府和大学信任存在政府干预过多,大学学术自主权缺乏,社会力量缺失等问题。这些问题导致政府管理成本高,社会监督力量薄弱,大学运行规范性差等严重后果,从而影响了我国政府与大学之间的和谐。纵观我国政府与大学关系之现状,导致我国政府和大学信任度不高的制度根源有三：其一,由于我国大学法律地位模糊,既导致大学权责含糊、混乱,大学与政府关系定位不清,也导致大学在司法实践中行政法律关系和民事法律关系的混淆,使政府难以信任大学。其二,由于我国现有立法对政府和大学权责规定的模糊,导致政府越权,大学缺乏应有的自主权,而权力与责任是对等的,大学因无权而不愿承担责任,致使大学的行为让政府难以信任,政府集权而不愿放权。其三,大学作为被信任方,能否很好地履行责任,实现公共利益和政府的目标,还必须要有完善的监督机制,而我国目前监督大学行为的机制却存在法理依据不足、同体监督不力、异体监督虚置等问题,使政府对大学的行为没有信心而不愿给予信任。何以解题?从理论上构建我国政府和大学和谐的信任机制,是本研究价值诉求实现的关键。从应然的维度看,理解和合作是和谐的政府和大学关系的重要特征,而信任是达成理解和合作的重要前提和有效途径。因此,论文对我国政府和大学和谐的信任机制进行理论建构。主要从健全有效的法律规范体系是政府和大学信任机制的基石,权责清晰、统一是政府和大学信任机制的核心,完善的问责制是政府和大学信任机制的保障三方面,构建三位一体的理论框架。对症下药,提出我国政府和大学和谐之路的具体对策,是本研究的价值所在。本文最后一章以三位一体的信任机制理论框架为基础,针对我国政府与大学关系存在的问题,提出建立政府和大学和谐的对策。首先要确立大学的公务法人地位,明晰大学与政府的法律关系,为厘清政府和大学的权责奠定基础,也是政府和大学信任建立的前提；其次,主要从明确政府和大学的权责,以及推进大学章程建设两方面完善高等教育法律法规,厘清政府和大学权责边界,是实现政府和大学信任的关键。最后,建立高校社会问责制,保障政府权益的实现,是建立政府和大学信任,实现政府和大学和谐的制度保障。更多还原

【Abstract】 The relationship between government and universities has been a problem which confuses China and the world. Because of China’s political and economic system, historical and cultural traditions, the Chinese government sees universities as affiliates, subjecting them to government intervention and control. This hinders the academic progress of universities for the lack of autonomy. On the other extreme, there must be chaos without government guidance. Therefore, how to coordinate the relationship between our government and universities is a serious topic for the development of higher education. How to solve the problem? Experts and scholars have proposed solutions. In this research, the author draws from previous researches and experience, puts forward the perspective of trust, examines the relationship between the government and universities, analyzes the institutional factors involved and proposes on how to achieve the harmonious development of the government and universities.As a relationship on the basis of intersubjectivity and with the characteristic of interaction, trust is a mechanism to reduce uncertainty, save cost, install social order and promote cooperation, it offers a new dimension to the harmonious relationship between the government and universities. Trust is inherent, on many counts, in the government-university relationship. First, university autonomy is embedded in the tradition and culture of universities, constituting the foundation for them to survive and prosper. Trust by the government is a pre-requisite for university autonomy. Secondly, In the game of power between the government and universities, the best choice for both is cooperation, a precondition of which is also trust. Last but not the least, a harmonious and orderly relation between the government and universities is a shared aspiration. Trust helps to safeguard order on both sides. Therefore, the application of trust theory to the government-university relationship has a very important real sense. This research is based on the status of government-university trust and its consequence. This organization-to-organization trust is founded on the belief by each party that its interests will not be undermined by the activity of the other. In the government-university trust, both sides respect each other, treat each other with sincerity, and seek to maximize common benefits through institutional arrangement. With this assumption, this thesis analyzes relevant laws and policies, and reviews the evolution of government-university relationship since the founding of new China. Back to the history, there were problems among the trust relationship between the government and universities, such as excessive government intervention, deficiency of academic autonomy of universities, lack of social power etc. However, these problems led to high cost of management, weak society supervision, poor operation specification of universities etc. Thus affecting the harmony relationship between our government and universities.The status quo reveals three essential reasons behind the distrust between the government and universities. First of all, due to the ambiguous legal status of universities in China, their powers and responsibilities are confusing. In addition, the blurring positioning of universities in relation to the government makes it difficult to figure out their political legal and civil legal relations in judicial practice, hence growing distrust by the government towards universities. Secondly, the existing Chinese legislation fails to clearly state the powers and responsibilities of the government or the universities in their relationship, which enables the government to meddle with university affairs, and costs the latter their autonomy. In this unequal game of power, universities don’t have the incentives to take their due responsibilities. As a result, the government is more reluctant to delegate power to universities. This constitutes a vicious cycle. Thirdly, universities, as a party, need to be trusted. Their trustworthiness is based on performance, stewardship of public interest, service for objectives set by the government, and a functional monitoring system. However, the existing monitoring system lacks legitimacy. Regulation and self-discipline are both deficient, making the government less willing to bestow trust.How to solve the problem? To find a theoretical way to construct a harmonious trust system between the government and universities is the key proposal of this study. In practice, mutual understanding and cooperation are an important feature of the harmonious government-university relationship. Trust offers both the prerequisite and the means for mutual understanding and cooperation. Therefore, this thesis tries to construct a3-fold theoretical framework for government-university trust in China. It argues that a sound and effective legal system is the cornerstone of the trust between the government and universities, a clear definition of rights and responsibilities, plus consistency, is the core, while an accountability system is the guarantee.To prescribe the right remedy for government-university harmony is the value of this study. In response to the issues within government-university relationship, and based on the3-fold theoretical framework, the final chapter makes proposals. First of all, it’s imperative to codify the the legal personality of universities, clarify the legal relations between the government and universities, which will draw a line between the powers and responsibilities of both parties. It is a precondition for government-university trust. Secondly, through defining the powers and responsibilities of both parties, and formulating constitution universities, the legal system governing higher education service will be enhanced. A clear border between the government and universities is the key to trust. Finally, University social accountability system will be set up, to ensure the rights and interests of the government. This is the institutional guarantee for trust-based government-university relationship.更多还原