试论教育信访的功能及其规范

【作者】 李波；

【导师】 唐贤兴；

【作者基本信息】 复旦大学 ， 公共管理（专业学位）， 2013， 硕士

【摘要】 本文试图结合上海教育信访的实践,阐述教育信访的意义与重要性。理论上讲,若教育行政部门、学校、受教育者及其利益相关者三方都能恪守相关法律规定和伦理规范,则教育信访事件将大大减少；如果我国的司法制度足够完善、具有较好的公信力,而且司法途径是政府、学校和公民解决教育纠纷的优先选择,那么,教育信访渠道就无存在的必要性。然而,我国的现实情况是：教育纠纷频发、教育信访量激增。教育纠纷频发的原因有二方面：一方面,教育行政部门和学校或因教育政策、教育管理等方面出现失当和失范,从而直接损害受教育者合理权益,或是因为处置不当、显失公平引起受教育者的不满；另一方面,民众的教育权利意识不断提升,教育的意义日益受到人们的重视。二者合起来促使教育纠纷增加、突显和升级。教育信访量增加的主要原因是：我国不仅自古以来就存在“厌诉”的社会文化心理,而且(由于多方面的原因)民众普遍认识到通过信访似乎更能快速有效地解决问题或获得超出“法外”的效益。因此,当与政府和学校发生教育纠纷时,人们往往选择信访而不是诉讼。正是基于这样两种相互关联的现实,所以教育信访作为一种制度安排,有其存在的合理性和必要性。教育信访与一般信访相比较有其特殊性,笔者总结为“三公性”,即公权性、公益性和公众性。教育信访的特殊性也促成了教育信访功能的生成,笔者认为教育信访的主要功能是行政监督、行政救济和权威博弈,三者功能相辅相成,共同实现教育信访重要目的。与教育纠纷频发、教育信访量增加相伴发生的另一种现实是,教育信访的功能变异。教育信访功能变异表现在两方面：一是部分民众把教育信访变成其表达本身不合理要求的渠道,并使用各种既不合法也不合伦理的手段谋取不当利益；二是教育行政部门和学校在接待处置民众的教育信访时,出现各种违规甚至违法、不合行政伦理规范的态度和言行。教育信访的这一双重失范相互作用,危及到教育信访功能的正常发挥。究其原因,笔者认为主要有：(1)浓重的人治特色。(2)扭曲的高压政治。(3)易变的社会心理。同时,教育信访功能变异还面临如下问题：(1)教育法律权威缺失。(2)教育信访制度设计偏差。(3)教育行政伦理失范。(4)教育权利救济不足等。基于对教育信访功能变异及其成因的分析,论文提出要从以下几个方面着手规范和改进教育信访功能的实现：(1)合理定位教育信访机构。(2)推行人大代表参与模式。(3)提高教育信访透明度。(4)制定科学考核指标。通过对教育信访功能的分析和如何规范的研究,本论文提出教育信访仍面临着危机,方面由于人治的行政惯性和伦理失范的双重作用,造成了教育信访功能不断变异的现象,另一方面同样因为人治的特色和伦理价值转变的影响,使得教育信访功能得以实现并达成最终目标。因此教育信访功能及其规范的研究,对教育行政管理具有推动作用。更多还原

【Abstract】 This paper attempts to combine the practice of the Shanghai Education petition to explain the significance and importance of education petition. In theory, if the administrative departments of education, schools, educated and its stakeholders all three parties to abide by the relevant laws and regulations and code of ethics, education petition event will be greatly reduced; If our judicial system is robust enough, with good credibility and judicial means is the preferred choice of the government, schools and citizens to solve the education disputes, then, education through letters and visits on the necessity of the existence. However, the reality of our situation:Education frequent disputes education petition surge. Education frequent disputes because there are two aspects:on the one hand, educational administrative departments and schools or misconduct due to educational policies, management and anomie, which directly damage the legitimate rights and interests of the educated, or because of improper disposal of unconscionability caused the discontent of the educated; On the other hand, the people’s right to education awareness has increased the significance of education increasing attention has been paid. The two together to promote education disputes, highlight and upgrade. The main reason for the increase of the amount of education petition:China not only exist "tired v. the social and cultural psychology since ancient times, and (for various reasons) the public is widely recognized that the petition seem to be more quickly and effectively solve the problem or get beyond the""outside-effectiveness. Therefore, when education disputes with the government and schools, people often choose to petition rather than litigation. It is based on the reality of this two interrelated education petition as an institution, the rationality and necessity of its existence. Education petition letters and visits compared to its particularity, the author summed up as "Three" public rights, public welfare and the public. The special nature of the petition of Education also contributed to the education Petition function generation, I believe that the main function of education petition administrative supervision Chief Relief and authority game three complementary function together to achieve an important objective of the petition of Education.Education disputes frequently, education petition increased accompanied by another reality is that the functional variant of the education petition. Education Petition functional variant manifested in two aspects:First, the part of the public education petition into channels expression unreasonable demands, and use a variety of means to gain an unfair advantage is neither legal nor co-ethics; educational administrative departments and schools reception disposal of public education petition, various irregularities or even illegal, attitudes and behavior of the non-executive ethical norms. The interaction of the dual education petition anomie, endanger the normal functioning of the education petition. The reason, I believe that:(1) strong characteristics of the rule of man.(2) twisted coercion.(3) volatile social psychology. The same time, the petition functional variant is also faced with the following problems:(1) education, lack of legal authority.(2) the education petition system design deviation.(3) Education Administrative Ethics.(4) The right to education relief. Based on the analysis of the functional variant of Education petition and its causes, the paper put forward from the following aspects to regulate and improve the function of the realization of the education petition:(1) reasonable position education complaint authorities.(2) the implementation of the People’s Congress participation.(3) improve the education petition transparency.(4) the development of the scientific assessment indicators.Analysis and how to regulate the education petition function, the paper put forward the petition of education is still faced with the crisis, on the one hand, due to administrative inertia and Ethical Fault of the dual role of the rule of man, resulting in education Petition function variation, on the other hand, the same as the rule of man, character and ethical values change, making education petition to achieve and reach the ultimate goal. Therefore the the education the Petition function and specification of educational administration has a role in promoting.更多还原