鲁迅先生在《准风月谈》杂文集里说过，蝙蝠是一种自然界尴尬的生物，外形既像兽又像鸟，但参加兽类大会和鸟类大会，两者皆不收。

Mr. Lu xun in[Must have romantic talk]The varia said,The bat is a embarrassing biological nature,Shape is like a beast and like a bird,But to take part in the earth and birds,Both don't accept.

　　这样的身份尴尬，同样也落到了民办高校的身份上，民办高校与公办大学担负同样的育人职责，有着明显公益性的组织特征，但是，它不是事业单位，它的财政拨款、教师退休待遇与公办大学有很大的差距；说它是企业单位，却不能按照市场规律，追求利润，自我发展，也不能资产抵押，没有融资政策。然而，教育部门出台的“22条”仍然未能解决民办高校期盼的身份问题，在一定程度上影响了它的运作和发展。

So the identity of the embarrassment,Also fell on the identity of the private colleges and universities,Private university and public university the same educational responsibilities,Has obvious characteristics of the public welfare,but,It is not a business unit,The financial allocation/Teachers' retirement benefits and public university has a large gap;Say it is a enterprise unit,But not in accordance with market rules,The pursuit of profit,Self development,Also cannot mortgage assets,No financing policy.However,,The education department"Article 22"Still cannot solve the problem of the identity of the private universities look forward to,To a certain extent affect the operation and development of it.

　身份归位: Identity position:

　　民办高校亟待解决的问题 Private colleges problems to be solved

　　处于转型期的民办高校，表现出了许多突出的问题。过去几年，教育部经过长时间的深入调研和梳理，为民办高校再次发展和创造一个好的政策环境，梳理了法人属性、产权属性、学校权力、教师权益、会计制度、营利非营利、合理回报等十个方面的问题。但笔者发现，法人属性模糊，导致认识上的矛盾和冲突，是民办高校所有问题的源头。民办高校身份不明，民办高校师生的合法权益就得不到充分保障；身份得不到正确归位，无疑已成为制约民办高校发展的最大障碍。

In the transitional period of private colleges,Shows many of the outstanding problems.In the past few years,Research and the depth of the ministry of education, after a long time,For the development of private colleges again and create a good policy environment,Analyzes the legal attributes/Property attributes/The school authority/Teachers' rights and interests/Accounting system/Profit non-profit/Reasonable returns ten aspects of problems.But the author found that,Legal attribute of fuzzy,To know the contradictions and conflicts,Is the source of all problems of private university.Private colleges unidentified,Run by the legitimate rights and interests of the college teachers and students is not fully guaranteed;Identity is not correct position,Undoubtedly has become the biggest obstacle to the development of private colleges.

　　由于民办高校不利用财政性资金办学，按我国目前的财政体制、人事制度、编制管理制度和社会保障制度，民办高校没有事业编制、民办高校教师不享受事业保障就成为现行体制下一个顺理成章的结果。民办高校的身份该如何认定，官方和学界众说纷纭，各执一词。我们应该透过现象看本质，抓住主要矛盾的主要方面，从民办高校体制的特殊性入手，或许是审视民办高校身份问题的基本出发点。

Due to private colleges don't use of fiscal fund,According to the current financial system in our country/Personnel system/Staffing administration system and the social security system,Private colleges without cause/Run by the university teachers don't enjoy a career security become under the current system trace the result.The identity of the private colleges and universities how to maintain,Official and academic opinions vary,however.We should see the essence through the phenomena,Of the major aspects of seized the main contradiction,Starting from the particularity of the system of private university,Maybe look at private colleges as the basic starting point of the problem.

　　民办高校体制的特殊性，决定了其是一种复杂的社会组织，具有多元的属性特征。它首先是教育学术组织，具有明显的公益性，主要体现在:出资不是投资，学校的决策机构是董事会或理事会，人员由出资者、管理者和社会贤达、教师代表多元组成，更不是按出资额来分配人员名额；资产投入视作定项捐赠，资产增值和存量，以及收入积余不能够被出资人支配或分配；有较高准入门槛，接受教育主管部门的监管、审计，接受社会的公共监督；按照政府的指导核价收取学费和其它服务性费用，不参照市场价格调节。其次是民间非政府组织，具有一定的产业性，主要表现在:不依赖政府财政，而是自收自支的单位，必须自我造血、积累滚动发展；相对于公办大学，更注重追求人财物的资源投入与产出效率；敏捷的市场嗅觉，专业设置、人才培养更注重紧密结合用人单位的实际需求；再次是注重品牌打造，在社会上树立自己的形象，以提升招生和学生就业竞争力。

The particularity of the system of private university,Determines the is a complex social organizations,Has the characteristics of multiple attributes.It is first education academic organization,Has the obvious public welfare,Mainly reflected in: capital contribution is not investment,The school decision-making mechanism is the board of directors or board of directors,Personnel by the investor/Managers and fo/Teachers on behalf of multiple components,More is not assigned personnel according to the capital contribution;Assets investment as a donation,Asset value and stock,And income JiYu cannot be controlled by the contributor or distribution;A higher threshold,Accept the supervision of the department of education/The audit,Accept the social public supervision;According to the guidance of the government of nuclear price charge tuition fees and other service fees,Not in accordance with the market price.Followed by non-governmental non-governmental organizations,Have a certain ChanYeXing,Mainly displays in: don't depend on government finance,But to raise the unit,Must be self hematopoietic/Accumulation of rolling development;Relative to public university,We should pay more attention to the pursuit of efficiency of resources input and output;Quick market smell,Professional Settings/Talent cultivation closely combined with the actual needs of unit of choose and employ persons pay more attention to;Again is to pay attention to brand building,Set up their own image in society,To enhance the recruitment of students and students employment competitive power.

　　颇有争议的“可以取得合理回报”最终写入《民办教育促进法》，也正是基于当前实际投资状况的考虑，有利于调动社会广泛参与投资教育的积极性。另一方面，民办高校是由非政府机构或法人投资，是培养专门人才的教育组织，以传播知识、提高人的素质、促进社会进步为根本宗旨，发展资金主要来源于教育的消费资金和集资，大多数学校采取以学养学的方式，这使其有别于完全商业性资金的纯粹营利性，而非借教经商、生财有道的“教育公司”。民办高校一味追求营利，办学目标势必缺失，然而，没有营利的动力机制，其自身发展又难以为继，民办高校的体制特殊性表现无疑。

The controversial"Can get a reasonable return"Final written[Private education promotion law],Actual investment is based on the current situation of consideration,Is helpful to arouse the enthusiasm of social widely participate in the investment in education.On the other hand,Private university is a non-government institutions or corporate investment,The education is to cultivate specialized personnel,To spread knowledge/Improve the quality of the people/To promote social progress for fundamental purpose,Capital mainly comes from the consumer education development and raise money,Most schools take the way of knowledge to learn,That makes it different from all the commercial capital of pure profit,Rather than borrow teach business/The fool"Education company".Private colleges and universities blindly pursue profit,Educational goals will lack,However,,The mechanism of no profit,Their own development and unsustainable,Run by the particularity of the system performance.

　　在规范管理上，政府有一种倾向，把民办高校视作体制内的公办大学，一定程度上导致了办学的同质化。在单位属性上，却又把民办高校归类为体制外的一般社会组织，无法享受公办大学的待遇。企业的投资融资政策路径不通，束缚了民办高校发展的自身活力。因此，我们必须跳出体制内外有别的固有思维，在制度安排，尤其是法人属性的认定上，坚持历史性、现实性与前瞻性的统一，充分顾及民办高校昨天坎坷的发展历程及在高等教育大众化需求中发挥的历史作用；正视民办高校今天发展的困境，解决凸显的各种矛盾，富有可操作性；重视设计民办高校明天的发展出路，注重短期、中期、长期的连贯一致。

On the management,There is a tendency of the government,The private university as public universities within the system,To a certain extent, led to the homogeneity of running.Attributes in the unit,But the private university is classified as general social organizations outside the system,Unable to enjoy the treatment that public universities.Enterprise investment and financing policy of the path,Bound the vigor of the development of private colleges.so,We have to jump out of the system and other natural thinking,In the system arrangement,Especially the cognizance of legal person property,Adhere to the historic/The unity of the reality and prospective,Fully considering the development of private colleges bumpy yesterday and in demand of popularization of higher education play a role in the history;Face up to the development of private universities today,Solve the prominent contradictions,Rich operability;Attach importance to the design and the development of the private university tomorrow,Pay attention to the short-term/In the middle of the/Long-term coherent.

　“非兽非鸟”: "Not the beast not bird":

　　过渡期制度优化的路径探索 Transition of system optimization path

　　陷入“蝙蝠式”身份尴尬的民办高校，到底是一种什么样的组织单位呢？其实就是自己本身，是一种特殊的组织形式，是游离于事业、企业和社团之外，介于体制内和体制外的中间地带，富有自己个性的单位组织。

In a"The bat -"Identity embarrassment of private colleges,It is a kind of what kind of organization?Is actually own,Is a special kind of organizational form,Is in business/Enterprise and society,Between the intermediate zone between system inside and outside the system,Rich own personality the unit of organization.

　　我国《民法通则》采取的法人分类，是将法人分为机关法人、事业单位法人、社会团体法人与企业法人四种，其分类的根据是法人所从事的业务活动的性质。在我国现有政策框架下，事业单位必须是国有资产、财政拨款，尚且目前政府计划要对现有的事业单位进行改革，所以，民办高校登记为事业单位的难度极大，除非国务院出台相关文件，尽管有省市已进行初步尝试和探索，并以政府发文形式规定民办高校为民办事业单位，但仅仅是一厢情愿，没有法律依据，在实际操作中其实也没有成功可示范的典型经验。基于民办高校发展的昨天、今天和明天，借助“非兽非鸟”的思考维度，着眼消除歧视性政策，单独设置民办高校的法人属性，不妨是立足长远的过渡性制度优化设计。那么短期内，民办高校如何解决单位法人的登记问题？目前民办高校采取的是双重登记管理办法，首先经过教育主管部门的审批，在取得办学许可证之后，还必须依照《民办非企业单位登记管理条例》的规定，到民政部门进行登记。“民办非企业单位”，如同只定义为“非鸟”，概念模糊，难以界定。民办高校通过教育主管部门实质性批准后，就可成立，进行教育教学活动，建议是否可以独辟蹊径，为民办高校单独设立登记的途径，定性为自收自支的准事业单位，由教育行政部门设立专门机构进行直接登记，报民政部门和人力社保部门同时备案。这样既简化了程序，可以避免双重许可登记带来的行政机关之间的冲突，最重要的是符合民办高校教育组织的单位性质。

In our country[The general principles of civil law]Take the legal person of classification,Is the legal person is divided into corporate bodies/Institution legal person/Social organization legal persons with four kinds of enterprise legal person,The classification as a legal person is the basis of the nature of the business activities engaged in by the.In the framework of the existing policy in China,Institutions must be state-owned assets/Financial allocation,If the government plans to reform the existing institutions,so,Run by the university to register for the difficulty of the institution,Unless under the state council issued relevant documents,In spite of provinces and cities have a preliminary attempt and exploration,And government mandate form prescribed private colleges for private institutions,But is only wishful thinking,No legal basis,In fact also no success can be demonstrated in the actual operations of the typical experience.Based on the development of private universities yesterday/Today and tomorrow,With the help of"Not the beast not bird"Dimensions of thinking,Looking to eliminate discriminatory policies,Separate set the legal person of private colleges properties,Might as well is a transitional system optimization design based on the long term.So in the short term,Private colleges how to solve the problem of unit legal person registration?Private colleges and universities take the double registration measures for the administration,After the approval of the department of education first,After running the license,Must also be in accordance with the[People-run non-enterprise units registration management regulations]The provisions of the,Undertake registering to branch of civil administration."People-run non-enterprise units",As defined by only"Not the bird",The concept of fuzzy,Difficult to define.Private colleges through the education department in charge of substantial after approval,Can be established,For education teaching activities,Advice whether it can be one,The establishment registration alone for private colleges,As to raise the institution,By the administrative department of education set up specialized agencies to directly register,Reported to the civil affairs department and human social security department and for the record.This not only simplify the procedures,To avoid double registration license from the conflict between administrative organs,The most important thing is that with private colleges of education organization unit.

　　毋庸置疑，民办高校今后的发展，最关键、最紧迫的问题在于明确民办高校的身份归位，这个问题解决了，其它问题就迎刃而解。当然，探索建立分类管理制度，明确民办高校营利性和非营利性的区分标准，是推进民办高校法人单独登记的前提。在此之前，政府需要按照营利性和非营利性民办高校区分原则，探索建立分别适用于营利性和非营利性民办高校的办学许可审批和注册登记制度、产权和资产管理制度、财务会计和审计制度、扶持奖励和监管制度、督导和评估制度以及学校法人治理结构、管理规范细则等，尽快出台非营利性民办高校接受社会捐赠的基本制度。民办高校的法人属性独立登记之后，重点突破的政策领域有以下几个方面:一是明确教育公益组织属性，解决教师的同等地位问题；二是赋予民间的学术组织属性，让民办高校依法享有更大的办学自主权；三是充分肯定公共产品属性，给予专项资金的支持。

Without a doubt,The development of private universities in the future,The most important/The most pressing problem is clearly private colleges the identity of the position,This problem solved,The other problem is solved.Of course,,Establish system of classified management,Clear the distinction between profit and nonprofit private colleges,Is the premise of promoting private colleges as a legal person separate registration.Before this,The government needs to in accordance with the principle of distinction between for-profit and nonprofit private colleges,Explore establishing profit and nonprofit respectively suitable for private colleges of license approval and registration system/Property and asset management system/Financial accounting and auditing system/Support rewards and supervision system/Supervision and evaluation system, and the school as a legal person governance structure/Standard management rules, etc,A non-profit private colleges as soon as possible to accept the basic system of social donation.Private colleges the legal attribute of independent after registration,Focal areas of policy has the following several aspects: one is the clear education public welfare organization attributes,Solve the problem of teachers' equal status;Second, folk's academic organization attributes,Let private colleges shall enjoy greater autonomy;3 it is fully approved public product attributes,To give the support of special funds.

　良性互动: Benign interaction:

　　确立政府和学校关系的长期目标 Establish long-term goals of the relationship between the government and the school

　　民办高校之所以给公众留下唯利是图、教育质量低下、办学不规范的印象，根源在于，公众这样认为:社会效益与经济效益是冲突的，两者是替代转化关系，将社会效益当做实现经济效益的约束转换条件。如要得到经济效益，必须压低办学成本，以牺牲社会效益为代价；而追求社会效益必然会加大投入，拿经济效益来替代。社会效益与经济效益能不能成为互补共存关系，将社会效益与经济效益当做并列的目标函数？如果设计出这样一种关联机制，民办高校将社会效益当做一种社会资本投资，社会效益就能成为民办高校进一步获得经济效益的手段和途径，那么这种关联传递机制本身会引导民办高校主体行为内在化，自觉追求社会效益与经济效益的统一。这种关联机制的设计，需要抓住政府与学校的利益结合点，认识民办高校体制的特殊性，在至关紧要的身份认定上，采取制度的特殊性安排，建立起政府、社会和学校各部门之间的相互依赖关系，在互动过程中寻找双方目标的稳定平衡，达到融合、和谐与统一。

Private universities are left to the public/Low quality of education/Education is not standard,Root cause is,The public think so: social benefit and economic benefit is the conflict,Instead of transformation is the relationship between the two,Transform social as to realize the economic benefits of constraint conditions.If you want to get economic benefits,Must be low cost,The cost of social benefit;And the pursuit of social benefit will increase,And economic benefit to replace.Social and economic benefits can be complementary coexistence relationship,The social benefits and economic benefits as of the objective function?If the design of such an association,Private colleges will be social benefits as a kind of social capital investment,Social benefit can be run by the university to the means to obtain economic benefits,Then the associated transmission mechanism itself will lead private universities main body behavior internalization,Self-conscious pursuit of the unity of social benefits and economic benefits.The connection mechanism design,Need to take the interests of the government and the school combining site,Know the particularity of the system of private university,In the crucial identity,Take the particularity of the system arrangement,Establish the government/Society and schools the interdependent relationship between the various departments,In the process of interaction between looking for stable balance of the goal,To achieve fusion/Harmony and unity.

　　政府外部驱动来引导民办高校形成社会责任感，并非最终目的，最终目标是让所有的民办高校把承担社会责任当成一种自发行为。实现民办高校与公办大学身份一致，是长远发展的终极目标，这看上去是一个漫长的过程，但这个过程一旦启动，我们完全相信可以缩短这个进程。民办高校如能得到身份正名，既坚持教育公益性质不动摇，又在教育市场游刃有余，那么，有理由相信，民办高校一定能创造出更广阔的发展空间，未来获得与公办大学“分庭抗礼”的社会地位。

The external drive to guide private colleges to develop social sense of responsibility,Is not the final purpose,Ultimate goal is to let all the social responsibility of private university as a spontaneous behavior.Realize the private university and public university identity,Is the ultimate goal of long-term development,This is a long process,But once you start the process,We fully believe that can shorten the process.Private colleges, such as can get id name,Not only adhere to the education public welfare nature not be moved,And in the education market,so,There is reason to believe that,Private colleges and universities will be able to create a wider space for development,With public university in the future"""The social status of the.

　　(作者系上海市第十一届政协委员、上海师范大学天华学院常务副院长)

(The author of the eleventh CPPCC member of Shanghai/Shanghai normal university, vice President of the college of our)