國立大學法人化的議題自1980年代出現以來,迄今已爭論了17、18年之久,相關爭點也隨著台灣法制及社會環境的轉型,而呈現出不同的面貌,從早期對公法人概念的陌生,到現今對行政法人模型的疑慮,均顯示出大學法制改革背後具有的複雜性與連動性。如今,在知識經濟與全球化競爭的時代,世界各國大學瀰漫著一股追求卓越的風潮,國立大學無論是其法律地位、外在治理關係、內部營運模式及學術自由與自治的維護方面,又到了應加以全面檢討的時刻。本文一方面整理當前大學面臨的挑戰、大學制度的發展與時代精神的演變。另一方面則檢討國立大學目前作為教育部的下級機關,其法律地位與學術環境受到體制的侷限,不利於知識的發展與學術自由,因而形成國立大學去機關化、走向法人化之獨立自主的需求。在此背景下,本文展開國立大學法人化的政策上辯論,並以學術自由及追求卓越為終極目的,在各項爭點上逐一剖析。結論是,國立大學在法人化與機關化二個組織型態選項之間,無疑地,法人化才是更有利於大學達成上述目標之手段。 國立大學法人化的結論是一個開始,而非結束。伴隨法人化後的種種制度設計,諸如法人類型、治理模式、人事財政自主、及監督架構等面向,法制上應建立有利於學術環境之穩固長久的原則。這些議題背後具有共同的兩難,乃自治與監督、自由與責任、彈性與控制二者間之衝突與拿捏。如何清楚劃定其界線,則非易事。本文傾向對學術自由的保護範圍作最大的理解。換言之,大學的監督,必須採取多管道的、間接的、事後的、成果的、建議性的模式心態,如有疑義,應作有利於學術自由與大學自治之解釋。追求卓越的大學治理,必須培養社會對大學的信任,塑造大學對社會的責任。本文建議後續應該研究的議題,乃大學作為一個獨立法人脫離國家直接控制後,如何該在各個層面同步建立良好的監督、課責與壓力機制,以贏得公眾長遠的信任,逐步取代國家獨占的介入。
The changing legal environment of public universities has always been an important issue in our law of higher education. One of the biggest, and it has been a long term, debate here in Taiwan is that whether we should introduce the idea of “government corporation” and legalize it’s organizational structure for our public universities to be more independent from politics and to have more self autonomy, while up to present our public universities still remain the subdivision of, also being over controlled by, Ministry of Education in Taiwan’s central government. This thesis argues that public universities shall get rid of their current subordinate status and become corporation bodies just like those world class universities in many developed countries in order to successfully serve the value of academic freedom and fulfill their pursuit of excellence in the era of globalization. Upon revision of the law, many crucial topics, like university governance, the system of “board of trustees”, external supervision and financial autonomy…etc, should be well dealt with. Even some related philosophy, like today’s ideal mission of university and the commercialization of higher education, are inevitably discussed. In conclusion, the law of public universities should establish the best infrastructure of academic freedom which must seek balance between autonomy and accountability, after our universities become independent public corporations. Diversity, democratic legitimacy and free to information for the public will play significant roles in the future management of public corporation universities.