民办教育的“分类管理”时代已然来临。虽然“分类管理”制度的基本框架已经搭建，但是实践界对非营利性民办高等学校“以非营利之名而行营利之实”的忧虑一直存在。“非营利”作为一个耐人寻味的概念，镶嵌着浓厚的经济属性，如何使非营利性民办高等学校获得较高的公众信任、而不仅仅依靠办学者一方的信念与兴趣，相关问题值得反思。作为民办高等教育的重要主体，非营利性民办高等学校自律的局限性造成非营利性要求不易落实，非营利性民办高等学校运行中有许多问题症结亟需破除。从法律规制的角度看，非营利性民办高等学校法律制度建构的理论之基、规范设计、现实争议回应要么缺乏、要么不完善，这将造成我国非营利性民办高等学校生存与发展面临诸多困局且这些困局会长期存在。理论、立法以及实践中的诸多问题复杂交织，亟需对非营利性民办高等学校运行的法律规制问题予以省思。

     非营利性民办高等学校运行的法律规制建立在法律价值的基础上，如果价值问题不明确，非营利性民办高等学校发展所依赖的法制环境将缺少指向和依据，法律规制的预期法律效果将难以实现。非营利性民办高等学校运行的法律规制的价值范畴包括一般性价值和特殊性价值，涉及对民办高等教育价值、民办高等教育对人的价值以及非营利性民办高等学校存在与发展的价值的思索，其既要回应民办高等教育的发展现实，也要有融合公与私的非营利组织观，同时还要体现出对法律合理性的重要考量。民办高等教育具有公共性，非营利性民办高等学校组织本身及其所从事的教育活动的性质决定了其具有较强的公共性。立法介入以及如何介入，正是由非营利性民办高等学校的公共性所决定。公共性决定了非营利性民办高等学校运行法律规制的重点，即，基于同等法律地位的立法价值明确法律身份，保证非营利性民办高等学校运行的科学、理性；关注教育的公益性和高校运行理性，确保非营利性民办高等学校的运行符合教育目的；在法律规制中强化公共责任，保证非营利性民办高等学校以办学质量为中心有序运行。此外，在对非营利性民办高等学校运行进行法律规制设计时，应注意协调好公共性与自主性之间的关系。

     非营利性民办高等学校作为运行主体的法律地位是法律规制运行行为的内生逻辑。由于运行主体与运行行为的关联性，有必要对非营利性民办高等学校作为运行主体的法律定位问题做一勾勒与必要澄清。非营利性民办高等学校作为具有私法属性、公共目的的私法人，其主体规范建构应以权利、行为和责任能力为载体。作为国立高校“配角”的德国私立高校，以及以慈善信托作为法理基础的美国私立大学，为非营利性民办高等学校主体规范的完善提供了有益参考。明确非营利性民办高等学校作为运行主体的法律定位，应兼顾非营利性民办高等学校法律地位的“平等性”与“特殊性”，认识到其分别作为公益性社团法人和财团法人的法律身份，同时基于“事物本质”厘清公、私混合的非营利性民办高等学校法律关系群。

      民办教育立法的基本立场和法律实践的目标确定形成了非营利性民办高等学校运行与发展的基本场域。研究聚焦非营利性民办高等学校运行法律规制的核心议题与事项时发现，目前法律规制的基本逻辑虽以支持与规范民办教育为主线，且法律规制机制在法律的修订变迁中也在不断变化，但在一些核心概念的界定以及对实践问题的回应上仍有缺憾。这种缺憾表现为：“统一的”民办教育法律制度与非营利性民办高等学校运行的场景并不契合，既有规制措施难以回应民办高校的历史遗留难题和改革新生问题，以及既有的法律规制内容面临执法不足。从美国法和德国法关于非营利性私立高校运行的规制场景中得到启发，我国非营利性民办高等学校运行的法律规制应以公共性作为价值基底，对产权规制、政府激励性规制和非营利法人自我规制进行场景化建构。

     虽然高等教育的舞台是多元化的，但是其整体仍是由国家建构或控制的。非营利性民办高等学校运行的法律规制的正当理由及其程度，基于引导公共性和维系自主性而存在，理应从以限制利润分配为主线回到引导并提升公共性上来。美国法和德国法关于非营利性私立高校运行的法律规制进路呈现出兼顾“公共性”与“自主性”的特征。集中表现为，基于追求教育公益与实现教育公平的价值理念，健全财政资助政策、作为规制方式的“质量协定”、专业或课程认证以及限制于“高等教育一般原则”的政府监管等方面。为实现公共性与自主性的协调，我国可采取的法律规制策略包括：运用激励性规制策略，明晰非营利性民办高校的法人产权体系；实施穿透式监管，强化对非营利性民办高校办学风险的常态化管理；将“质量”作为规制工具，建立民办高等学校认证及质量保障机制；赋予自我规制空间，完善非营利性民办高校法人治理结构。

      总之，学校有公私之别，而教育无公私之分。非营利性民办高等学校运行问题其实是千头万绪，办学者的心态偏差、制度设计的缺失、监督执行的乏力都是造成非营利性民办高等学校运行障碍的主要因素。非营利性民办高等学校运行的法律规制应协调好公共性与自主性，在“非营利”之外明确非营利性民办高等学校法律制度的公共性价值，采取强制性规制与激励性规制并行的规制方式，于千头万绪中抓好主体、运行与监管等法律规范设计，在国家介入与私法自治之间取得平衡。

The era of "classified management" of private education has come. Although the basic shape of the "classified management" system has been established, there has always been a concern in the practice circle about the "making profits in the name of non-profit" of non-profit private colleges and universities. As a thought-provoking concept, "non-profit" is embedded with strong economic attributes. How to make the non-profit private colleges and universities obtain high public trust, rather than relying solely on the beliefs and interests of the scholars, the related problems are worthy of reflection. As an important subject of private higher education, the limitations of self-discipline of non-profit private colleges and universities make it difficult to implement the non-profit requirements. The crux of the operation practice and supervision of non-profit private colleges and universities needs to be broken. From the perspective of legal system, the theoretical basis, normative design and realistic dispute response of the law system construction of non-profit private colleges and universities are either lack or imperfect, which will cause many difficulties for the survival and development of non-profit private colleges and universities in China, and these difficulties will exist for a long time. Many problems in theory, legislation and practice are complex and intertwined, so it is urgent to design a relatively perfect law system to regulate them.

If the value issue is not clear, the legal environment on which the development of non-profit private colleges and universities depends will lack direction and basis, and the expected legal effects of legal regulation will be difficult to achieve. The value category of legal regulation of the operation of non-profit private colleges and universities includes general values and special values, involving the value of private higher education, the value of private higher education to people, and the value of the existence and development of non-profit private colleges and universities, which must not only respond to the development reality of private higher education, but also should have a non-profit organization concept that integrates public and private, and at the same time reflect the important consideration of legal rationality. Private higher education is of a public nature, and the nature of non-profit private higher education organizations themselves and the educational activities they engage in determine that they have a strong public nature. Legislative intervention and how to intervene are determined by the public nature of non-profit private institutions of higher education. Publicness determines the focus of legal regulations on operation of non-profit private colleges and universities, that is, to clarify the legal identity based on the legislative value of the same legal status, ensuring the scientific and rational operation of non-profit private colleges and universities; pay attention to the public welfare of education and the rationality of the operation of colleges and universities, ensuring the operation of non-profit private colleges and universities is in line with the purpose of education; to strengthen public responsibility in legal regulations, ensuring the orderly operation of non-profit private colleges and universities. In addition, when designing legal regulations for the operation of non-profit private colleges and universities, attention should be paid to coordinating the relationship between publicness and autonomy.

The legal status of non-profit private colleges and universities as the main body of operation is the endogenous logic of legal regulation of operational behavior. Due to the relevance of the operating entity and the operating behavior, it is necessary to outline and clarify the legal positioning of non-profit private colleges and universities as the operating entity. As a private legal person with private law attributes and public purposes, non-profit private colleges and universities should be constructed with rights, behaviors and responsibility capabilities as the carrier. Private universities in Germany as "supporting roles" of national universities, and private universities in the United States that use charitable trusts as the basis for jurisprudence, has provided useful references for the improvement of the main specifications of non-profit private colleges and universities.In order to clarify the legal positioning of non-profit private colleges and universities as the main body of operation, we should take into account the "equality" and "particularity" of the legal status of non-profit private colleges and universities, recognize their legal identity as public welfare community legal persons and foundation legal persons, and clarify the legal relationship groups of non-profit private colleges and universities that are mixed public and private based on the "essence of things".

When the study focuses on the core issues and matters of the operation of legal regulation in non-profit private colleges and universities, it is found that although the basic logic of legal regulation is mainly based on supporting and regulating private education, and the legal regulation mechanism is constantly in the revision and change of law, it is still flawed in the definition of some core concepts and the response to practical issues. This shortcoming manifests itself as: The "unified" private education legal system is not in line with the operation of non-profit private colleges and universities, and the existing regulatory measures are difficult to respond to the historical problems of private colleges and universities and the new problems of reform, and the existing legal regulatory content is facing insufficient law enforcement. Inspired by the regulatory scenarios of US law and German law on the operation of non-profit private colleges and universities, the legal regulation of the operation of non-profit private colleges and universities in China should take publicness as the value base, and construct the property rights regulation, government incentive regulation and self-regulation in a scenario-based manner.

Although the arena of higher education is diverse, its whole is still state-constructed or controlled. The legitimate reasons for the legal regulation of the operation of non-profit private colleges and universities and the extent of them exist based on guiding the publicness and maintaining autonomy, and should return from restricting the distribution of profits to guiding and enhancing the publicness. The approach of U.S. and German law of the regulation of nonprofit private colleges and universities shows the characteristics of both "publicness" and "autonomy". It is mainly manifested in the improvement of financial support policies based on the value concept of pursuing the public welfare of education and realizing the fairness of education, "quality agreements" as a regulatory method, professional or curriculum certification, and government regulation limited to the "general principles of higher education". In order to achieve the coordination of publicness and autonomy, the legal regulation strategies that China can adopt should include: Use incentive regulatory strategies to clarify the legal person property rights system of non-profit private colleges and universities; Implement penetrating supervision and strengthen the normal management of the risks of non-profit private colleges and universities; Use "quality" as a regulatory tool to establish a certification and quality assurance mechanism for private colleges and universities; Give space for self-regulation and improve the corporate governance structure of non-profit private colleges and universities.

In short, schools are public and private, while education is not public or private. The construction of the law system of non-profit private colleges and universities should clarify the publicness value of the law system of non-profit private colleges and universities outside the "non-profit", with paying attention to the normative design of qualification, operation and supervision, and strike the balance between national intervention and private law autonomy, so as to realize the unity of value rationality and normative rationality of the law system of non-profit private colleges and universities.