【 abstract 】 the foreign students in Beijing are a special group, in order to standardize the management of them, at present our country has developed a series of legal norms for foreign students, but in the aspect of management work of the foreign students in Beijing still exist some problems to be solved, involved in international student scholarship management, employment management, housing management, social management, and other aspects. Accompanied with the process of Beijing towards international cities, we should fully understand the legal system for the necessity and urgency of students management work as soon as possible to build and perfect the legal system suited to the characteristics of the students.
[key words] management of foreign students in Beijing.
[middle map classification number] D920.4 [document identification code] A.
As the capital of China, Beijing is China's politics, culture and education center, has the most advanced education resources in China, famous universities, has a huge appeal to foreign students, especially in Beijing in 2010 adopted the "action plan" study in Beijing, foreign students choose to study abroad in Beijing presents the increasing trend every year, Beijing has become one of the largest number of cities across the country to accept international students. As a special group, foreign students during their study in Beijing will encounter the problems in Chinese daily life, such as a scholarship application, joining a club or religious activities, residence housing, employment, etc. In order to standardize the management of foreign students in Beijing, the Beijing municipal government issued the provisions on foreign students to work as well as the "foreign student scholarship management interim measures", and other local regulatory documents, in addition, the various departments of the state council has issued some department regulations or normative documents and the legal source of the management of foreign students in Beijing, such as in October 1985, formulate the measures for the administration of the foreign students, introduced in 1992 on the proper solution of notice of foreign students in China illegally, and 2000 of the regulation on administration of institutions of higher learning to accept foreign students.
Overall, the implementation of the relevant laws and regulations in order to promote the development of foreign student education in Beijing has played a huge role, but with the deepening of the reform and opening up and international exchanges, the number of legal norms from the power of the content is far behind on the rapid development of education, Beijing students performance for most of the rules is not specifically for foreign students, and more for the principle of general provisions, widely applicable to all foreigners; Some legal norms have been seriously lagged behind and cannot adapt to new development needs; There are still some legal norms that remain blank, which need to be further supplemented and improved according to the practice. Along with the process of building a world city with Chinese characteristics in Beijing, the problems existing in the legal management of foreign students in Beijing are mainly reflected in the following aspects:
Problems existing in the employment management of foreign students in Beijing.
New "exit immigration law" promulgated in 2013, before to foreign students in China during the period of study in the working behavior of the implementation of strict limits, which don't allow them to direct employment in our country, and is only allowed to engage in specialty or related professional knowledge with the work-study activities such as scientific research, culture. For example, the regulations on the management of foreign students in institutions of higher learning requires that foreign students only participate in work-study programs during their study abroad, and they may not obtain employment, business or other profit-making activities. To prevent foreign students during the period of study in disguised form of employment or at the end of the visa as an illegal employment, the regulations also say foreign students at the end of the school must be within the prescribed period of time; If foreign students want to obtain employment in China, they can only stay in China after graduation and return to China. After a certain working experience, they will come to China for employment as a worker. "Several provisions on the foreign students to work in Beijing" article 16 also provides foreign students in the school shall not be employed in China without permission, business, education, should be timely return after the end of residence shall not exceed the time limit; Its schools are also not allowed to introduce foreign students in schools to seek employment.
Is strict management behavior of the employment of foreign students, mainly because of colleges and universities and government departments to accept foreign students to foreign students employment behavior has some vague understanding: or based on the consideration of reality, that under the environment of the current overall employment situation is grim, lifting controls on foreign students employment may be detrimental to the interests of the citizens in our country, is not conducive to the stability of the employment market in China; Or from the traditional education thinking, the employment behavior of foreign students is considered to be a non-business, and if the management is relaxed, it will be a mess. (2) under the influence of these ideas, in the process of law enforcement, law enforcement department is not for work-study and distinguish between illegal employment behavior, as long as the service behavior of the foreign student to get remuneration, will be regarded as illegal employment.
However, in practice, the phenomenon of foreign students' working is still very common, and there are even many foreign students working in secret. In particular, since the outbreak of the world financial crisis in 2008, making money in the name of work-study aid has become an important way for foreign students to improve their learning conditions and ensure the stability of their lives. In fact, allowing foreign students work-study has become a common international practice, such as Germany, France, the United States, Japan, South Korea and other countries to allow foreign students use holiday time to work, even rules even during normal study on the premise of not ChaoGuiDing limit work can also. In order to attract more foreign students to study abroad, it will stimulate the development of education and related industries in China.
In this situation, in order to meet the needs of reality of keeping pace with The Times development, new specifically, the exit immigration law in article 42 of the education administrative department under the state council jointly with the departments concerned under the state council shall set up a corresponding foreign students work-study management system, the work-study job scope and time limit. This is the first time that our country has made clear to foreign students in the form of legislation. In addition, new regulations on the administration of entry and exit of aliens (hereinafter referred to as the "regulations on the administration of entry and exit") and to foreign students in the specification, the action of work-study programs, internships, actually also gives the legitimacy of the employment problem for foreign students. Article 22 of the regulations, the entry of foreign students for the school work-study programs or internships, shall be approved by the school and apply to the public security organs of exit and entry management organization; If the aliens holding the residence certificate of the study class are not provided with the information such as the place of practice, the time limit, etc., they shall not be allowed to study or practice in the school. Article 26 further clear, to recruit foreign students of unit of choose and employ persons, and foreign students, I have to the local local people's governments at or above the county level public security organs of exit and entry management agencies to report duty.
The implementation of the new exit and entry administration law and the regulations on immigration control will undoubtedly legitimize the work of foreign students and make the management of law enforcement agencies follow rules. But at the same time, we should also see, more operational rules and measures for the administration has not yet come, suggest that relevant departments in formulating relevant rules, should as far as possible and the international prevailing practice, guide the foreign students employment behavior in the direction of the healthy and orderly development.
Problems in the management of scholarship for foreign students in Beijing.
The scholarship system of foreign students is an important part of the legal management of foreign students, and the high scholarship is an important factor that attracts foreign students to choose to study in Beijing. In recent years, China's expanding scholarship funding support for foreign students in China, from the source point of view there are four main categories: the Chinese government scholarship for foreign student scholarship, the proportion of the largest local government scholarship, college scholarship and enterprise scholarship is a beneficial supplement of Chinese government scholarship. (4) while considering the foreign students living needs and rising prices, in June 2008 by ministry of education and ministry of finance jointly issued documents for foreign student scholarship sharply on the cost of living standard enhancement, (5) but on the whole, due to the long foreign student scholarship is mainly provided by the central government of our country, on coverage and lend compared with the developed countries there is still a large gap, a lack of attractive market in international students.
In order to further promote the development of the foreign student education in Beijing, attract more foreign students to study in Beijing, the Beijing municipal government in 2005 approved the "foreign student scholarship" in Beijing, and as startup money earmarked 30 million yuan of fiscal funds, this is China's first set up by local government scholarships. 6. 2007, the Beijing municipal government has issued a "foreign student scholarship project management interim measures of Beijing", according to the method, the Beijing municipal people's government to Beijing Beijing learning and the learning of foreign students tuition funding, a scholarship according to the amount of funding is divided into five different files, standard shall be prescribed by the measures for the implementation of "Beijing foreign student scholarship. Scholarship program funded by the Beijing municipal government earmarks, and encourage joint funding and school arrange supporting funds through various channels, by the municipal education commission and the municipal bureau of foreign student scholarship project leading group responsible for coordination, guidance, supervision and management of the project.
From the point of the current development situation, Beijing foreign student scholarship resources has developed from a single central government scholarships to the municipal government scholarship, institutions of higher learning, scholarship, big enterprise scholarship complement each other. The construction of scholarship system for foreign students is being gradually strengthened, which provides a reliable guarantee for the further expansion of foreign students in Beijing. However, compared with international developed country's institutions of higher learning, the amount of the scholarship is still very low, its scope is limited to funding for tuition, penetration is far from enough, should also continue to increase investment, make the scholarship system become an important driving force of the development of Beijing overseas students.
Problems existing in the residence management of foreign students in Beijing.
Foreign students with their students, they come from different countries and have different cultural background and customs and habits, early to accept foreign students in our country, because there are not many foreign students, mainly for the management of the students live is closed, namely the students eat, live everyday life must be made within the school to solve, don't allow them to live off campus. Today but with the rapid increase in the number of foreign students, many schools with limited funds have been unable to catch up with the development of the increasingly large number of foreign students, most students choose to live off campus, the traditional management is given priority to with school students living gradually shift of public security, schools, communities and other relevant departments jointly managed, this virtually increased the difficulty of the management of foreign students live, characterized by the following two points: one is due to the administrative department of the control ability to live off-campus students is relatively weak, these students because of security problems, such as contract disputes, neighborhood contradiction of illegal behavior is much higher than that of campus students; Pet-name ruby 2 it is due to more and more students choose in the school rented the surrounding community and results in the formation of students areas, these areas due to the complexity of personnel in the community structure, liquidity, public security situation has become a serious and complex community of social contradictions. For example, the Beijing wudaokou area has become the largest number of foreign students in Beijing and the largest number of foreign students dealing with foreign students. attending
To solve these problems, in 2000 the ministry of education, the ministry of foreign affairs and the ministry of public security jointly issued the regulations on foreign students receiving higher school, the article 38 points out that "foreign students can on off-campus housing, but at the residence by a public security organ shall, in accordance with the provisions to deal with the formalities that register." Issued in Beijing 2007 "several provisions on the foreign students to work in Beijing" article 15 also requires foreign students living place after the change, should be in the procedures of alteration to the public security organ within 10 days, these provisions are foreign students living management provides a legal basis.
In practice, however, due to the location of the foreign students living in off-campus relatively decentralized, and many students don't understand the relevant laws and regulations, the practice of the public security organ of registration management system is not being kept in a timely and effective manner, easy to form the management blank, resulting in a case or other social concerns. Therefore, some scholars suggested that students living in the future management work, should establish the public security organs, colleges and universities, community, Shared by the administrative departments of education administration department and other related students students management information database; And build district police station by the exit-entry administration department of the public security organ, students, schools, departments in charge of education, students neighborhood residents' committees, property management company, international student representatives to participate in a grid management mode.
Problems existing in the social management of foreign students in Beijing.
In recent years, the foreign student education has become an important content of Beijing education international cooperation and communication, and Beijing has gradually established a set of the students education management service system of laws and regulations. However, the management of international students not only includes education management, but also the social management of international students. Social management is also very important, involving many aspects of government and society, including the association management of foreign students and the management of religious activities.
Freedom of association, freedom of assembly and freedom of religious belief are the fundamental freedoms of citizens universally recognized by the constitution of the world. There is a common external environment for foreign students, and at the same time, they are far away from their familiar social environment, and their interpersonal relationship has changed. This situation will easily lead them to form associations. Foreign students in order to ensure the basic right to freedom of the administration of institutions of higher learning to receive foreign students provisions stipulated in article 40: allows the foreign students to comply with the relevant laws and regulations under the premise of publishing, association, assembly, a procession or a demonstration and other activities; Foreign students must abide by the regulations on the administration of foreign religious activities within the territory of the People's Republic of China. Issued in Beijing 2007 "several provisions on the foreign students to work in Beijing" also specifies the school should respect students in national habit and religious beliefs, foreign students, submitted to the school in advance after approval, can be within the scope of the specific location and held to celebrate the National Day, independence day celebrations; Foreign students shall abide by the regulations on the administration of foreign religious activities in the People's Republic of China. Without the approval of the competent authorities of the Chinese government, students may not establish inter-school or trans-regional student organizations; Do not engage in activities that do not match the status of foreign students.
According to the current situation of the foreign students' associations in Beijing, the larger student organizations have been formed, such as "African society", "Japanese society", "Korean student union" and so on. These student associations are based on the support of foreign commercial associations and embassies in Beijing, and collect fees for activities such as fellowship and style. With the increasing number of foreign students, the number of these associations is increasing year by year. Most of them can obey the laws of our country, but there are also a few who ignore our laws. But of normative legal norms of the foreign student association activities in China, there are only some principled regulations, basic approach seems to be taking the "do not admit, do not ban, no sex, do not assume any obligation and responsibility", this kind of situation is not only conducive to the realistic need of reform and opening-up in China, is unfavorable to the establishment of the rule of law in China a good international image.
The same problem also exists in the management of the foreign students, religious activities, on the one hand, for religious activities and management aspects of the law shall be further embodiment, clear foreign students in the rights and obligations of religious belief and religious activities, make them in the organization or the activities of the corresponding laws, operable; On the other hand, it is necessary to stipulate the types, measures and scope of punishment for illegal ACTS, laying a solid foundation for law enforcement in law enforcement.
To sum up, Beijing is rich in education resources and has a unique advantage in studying education in China. In the construction of modern city under the new situation in the world, Beijing has developed a series of laws, regulations and policies, foreign students management in specification foreign students education has played a good role, but in the current development of students work still exist some problems to be solved, involves the scholarship for international students, employment management, housing management, social management, and other aspects, we should fully recognize the legal regulation on the necessity and urgency of students management work, as soon as possible to build and perfect the legal management system suited to the characteristics of the students.
(author: international law department of the school of foreign affairs; This paper is supported by the research on the management mechanism of foreigners in the world city of Beijing, which is the key project of Beijing philosophy and social science program.
【关键词】在京外国留学生 留学生管理 法制化管理
【中图分类号】D920.4 【文献标识码】A
作为中国的首都，北京是中国的政治、文化和教育中心，拥有我国最先进的教育资源，名校云集，对外国留学生有着巨大的吸引力，尤其是2010年北京市实施“留学北京行动计划”以来，选择到北京留学的外国留学生每年都呈现出递增的趋势，北京目前已成为全国接受留学生数量最多的城市之一。作为一个特殊群体，外国留学生在其留学北京期间会遇到日常生活中方方面面的问题，如奖学金的申请、参加社团或宗教活动、居留居住、工作就业等。为了规范对在京外国留学生的管理，北京市政府颁布了《关于外国留学生工作的若干规定》以及《外国留学生奖学金管理暂行办法》等多个地方规范性文件，除此之外，国务院各部门出台的一些部门规章或规范性文件也是对在京外国留学生管理的法律渊源，如1985年10月制订的《外国留学生管理办法》，1992年出台的《关于妥善解决外国留学生在华非法居留问题的通知》，以及2000年颁布的《高等学校接受外国留学生管理规定》。
从总体上看，相关法律法规的实施为推动在京留学生教育的发展发挥了巨大的作用，但随着改革开放的不断深入和国际交往的不断扩大，这些法律规范无论从内容上还是从数量上都远远落后于北京留学生教育的迅猛发展，表现为大多数规定不是专门针对外国留学生的，而且多为原则性的一般规定，普遍适用于所有的外国人；有些法律规范已经严重滞后，不能适应新的发展需要；还有一些法律规范仍然空白，需要根据实践进一步补充和完善等等。①伴随着北京建设中国特色世界城市的进程，在京外国留学生法制化管理中存在的问题主要体现在以下几个方面：
在京外国留学生就业管理中存在的问题
在2013年新《出境入境管理法》颁布之前，我国对外国留学生在留学期间的打工行为实施非常严格的限制，即不允许他们在我国直接就业，只允许从事与其知识特长或所学专业相关的科研、文化等勤工俭学活动。如《高等学校接受外国留学生管理规定》要求，外国留学生在其留学期间只能参加勤工俭学，不得就业、经商或是从事其他营利性活动；为防止外国留学生在留学期间变相就业或是在签证结束后以非法身份就业，该规定还指出外国留学生在学业结束后必须在规定时间内出境；如果外国留学生想在中国就业，只能待留学期满毕业回国，有一定工作经历后，再以就业者的身份来中国就业。《北京市关于外国留学生工作的若干规定》第十六条也规定了未经批准在校的外国留学生不得在中国就业、经商，学业结束后应及时回国，不得逾期居留；其所在学校也不得介绍在校的外国留学生外出谋职。
之所以对外国留学生的就业行为进行严格管理，主要是因为接受外国留学生的高校和政府主管部门对外国留学生的就业行为存在一些模糊的认识：或是基于现实的考虑，认为在当前总体就业形势比较严峻的大环境之下，放松对外国留学生就业的管控可能会有损我国公民的利益，不利于我国就业市场的稳定；或是从传统教育思想的出发，认为外国留学生的就业行为属于不务正业，如若放松管理则会一放就乱。②在这些观念的影响下，执法部门在执法过程中，并不对勤工助学与非法就业行为加以区分，只要外国留学生进行收取报酬的劳务行为，就会被视为非法就业进行处理。
但在实践中外国留学生打工的现象依然非常普遍，甚至有不少外国留学生瞒着学校暗中打工。尤其是2008年世界金融危机爆发之后，以勤工助学的名义赚钱已成为外国留学生改善学习条件、保障生活安定的重要途径。实际上，允许外国留学生勤工助学已经成为国际通行的做法，如德国、法国、美国、日本、韩国等国都允许外国留学生利用假期时间打工，甚至规定即使在正常学习期间在不超规定时限的前提下也可以打工。③以便吸引更多的外国留学生入境读书，刺激国内的教育事业及相关行业的发展。
在这种情形下，为了满足与时俱进的现实发展的需求，新《出境入境管理法》第四十二条明确提出，国务院教育主管部门会同国务院有关部门建立相应的外国留学生勤工助学管理制度，对勤工助学的岗位范围和时限作出规定。这是我国首次以立法的形式对外国留学生的勤工助学情况进行了明确。另外，新《外国人入境出境管理条例》（以下简称《出入境管理条例》）也对外国留学生的勤工俭学、实习等行为进行了规范，实际上也对外国留学生的就业问题赋予了合法性。该条例第二十二条规定，入境的外国留学生如需在校外勤工俭学或实习，应当经其所在学校同意，并向公安机关出入境管理机构提出申请；如果持学习类居留证件的外国人所持居留证件未加注勤工助学等规定信息的（如实习地点、期限等），不得在校外勤工助学或实习。第二十六条还进一步明确了，招收外国留学生的用人单位、以及外国留学生本人都有及时向所在地县级以上地方人民政府公安机关出入境管理机构进行报告的义务。
新《出境入境管理法》及《出入境管理条例》的实施，无疑会使外国留学生勤工助学行为合法化，并使执法机关的管理工作有章可循。但同时，我们也应该看到，更具操作性的细则和管理办法尚未出台，建议相关部门在制定相关规则时，应当尽量和国际通行的做法接轨，引导外国留学生的就业行为向着健康有序的方向发展。
在京外国留学生奖学金管理中存在的问题
外国留学生奖学金制度是对留学生进行法制化管理的重要组成部分，高额的奖学金是吸引外国留学生选择来京留学的一个重要因素。近些年来，我国对来华外国留学生的奖学金经费支持不断扩大，从来源上看主要有四类：中国政府奖学金在外国留学生奖学金中所占的比例最大，地方政府奖学金、高校奖学金以及企业奖学金是中国政府奖学金的有益补充。④尽管考虑到外国留学生生活需要及物价上涨等因素，教育部与财政部于2008年6月联合下发文件对外国留学生奖学金生活费标准进行了大幅的提高，⑤但总体而言，由于长期以来我国的外国留学生奖学金主要由中央政府提供，在覆盖范围与发放额度上与发达国家相比仍有较大差距，在国际留学生市场缺乏吸引力。
为了进一步促进北京市外国留学生教育的发展，吸引更多外国留学生来京学习，北京市政府于2005年批准设立了“北京市外国留学生奖学金”，并拨款3000万元的财政资金作为启动资金，这是我国首个由地方政府设立的留学生奖学金。⑥2007年北京市政府颁布了《北京市外国留学生奖学金项目管理暂行办法》，该办法指出，北京市人民政府对京学习的以及拟来京学习的外国留学生提供学费资助，奖学金按资助额度的不同分为五档，标准由《北京市外国留学生奖学金实施办法》规定；奖学金项目的经费由北京市政府专项拨款，并鼓励多渠道联合资助以及学校安排配套经费，由市教育委员会和市财政局组成外国留学生奖学金项目建设领导小组负责该项目的协调、指导、监督和管理。
从目前的发展状况来看，北京外国留学生奖学金的资源已经从单一的中央政府奖学金发展到市政府奖学金、高等学校奖学金、大企业奖学金等相互补充的态势。⑦外国留学生奖学金体系建设正在逐步加强，为在京外国留学生规模的进一步扩大提供了可靠的保障。但是，与国际发达国家的高等学校相比，奖学金的金额仍然很低，其范围仅限于对学费的资助，普及率也远远不够，还应继续加大投入，使奖学金体系成为北京留学生事业发展的重要推动力量。
在京外国留学生居住管理中存在的问题
外国留学生与本国学生不同，他们来自不同的国家，有着不同的文化背景和风俗习惯，在我国接受外国留学生的初期，由于留学生人数并不多，对留学生居住的管理主要采取的是封闭方式，即留学生的吃、住等日常生活均须在学校内部解决，不允许他们在校外居住。⑧但是随着留学生人数的快速增长，许多学校有限的经费已经无法赶上日益庞大的外国留学生人数的发展速度，大多数留学生选择在校外居住，致使传统的以学校为主的留学生居住管理工作逐步转变为由公安、学校、社区等相关部门共同管理，这无形中加大了对留学生居住管理的难度，表现为以下两点：一是由于管理部门对校外住宿留学生的管控能力相对薄弱，这些留学生因治安问题、合同纠纷、邻里矛盾等产生的违法行为要远高于校内住宿的留学生；⑨二是由于越来越多的留学生选择在学校周边的社区租房居住，导致留学生聚居区的形成，这些聚居区由于社区内人员结构复杂，流动性大，逐渐成为了一个治安形势严峻，社会矛盾凸显的复杂社区。如北京市五道口地区已成为北京市留学生数量最多、处理留学生事务最多的外国留学生聚居区。⑩
针对这些问题的出现，2000年教育部、外交部和公安部联合发布《高等学校接收外国留学生管理规定》，其第三十八条指出“外国留学生可以在校外住宿，但应当按照规定到所居住地的公安机关办理登记手续。”2007年北京市出台的《北京市关于外国留学生工作的若干规定》第十五条也要求外国留学生居住地点变更后，应在10日内到公安机关办理变更手续，这些规定均为外国留学生的居住管理提供了法律上的依据。
但在实践中，由于外国留学生在校外居住的地点相对分散，再加上许多留学生不太了解相关的法律规定，致使实践中公安机关的登记管理制度并不能及时有效地得到遵守，容易形成管理的空白，从而产生治安案件或是其他社会隐患的产生。因此，有学者建议在未来的留学生居住管理工作中，应当建立公安机关、高校、社区、教育管理部门等相关留学生管理部门共享的留学生管理信息库；并构建以公安机关出入境管理部门、留学生聚居区派出所为主，学校、教育主管部门、留学生聚居区居委会、物业公司、留学生代表共同参与的一种网格化管理模式。
在京外国留学生社会管理中存在的问题
近些年来，外国留学生教育已成为北京教育国际合作交流的一项重要内容，而北京市也逐步建立起了一套来华留学教育管理服务的法律法规体系。但是，留学生的管理工作不仅包括教育管理，还包括对留学生的社会管理。其中社会管理同样非常重要，涉及到政府、社会的多个方面，主要包括外国留学生的结社管理以及宗教活动管理等各项事宜。
结社自由、集会自由、宗教信仰自由都是世界各国宪法普遍承认的公民的基本自由权利。外国留学生之间有着共同的外部环境，同时又远离自己熟悉的社会环境，人际关系发生了变化，这种状况会容易使他们形成社团。为了保障外国留学生的基本自由权利，《高等学校接收外国留学生管理规定》第四十条规定：允许外国留学生在遵守相关法律法规的前提下，进行出版、结社、集会、游行、示威等活动；外国留学生在我国境内进行宗教活动必须遵守《中华人民共和国境内外国人宗教活动的管理规定》。2007年北京市出台的《北京市关于外国留学生工作的若干规定》中也规定了学校应尊重留学生的民族习惯和宗教信仰，外国留学生提前报请学校批准后，可在校内指定地点和范围内举办庆祝其国庆日、独立日等庆祝活动；外国留学生过宗教生活应遵守《中华人民共和国境内外国人宗教活动管理规定》；在校留学生未经中国政府主管机关的批准，不得成立跨学校、跨地区的学生组织；不得从事传播宗教等与留学生身份不符的活动。
从北京市的外国留学生社团现状来看，比较大的学生组织已形成规模，如“非洲同学会”、“日本人会”、“韩国学生会”等等。这些学生社团多以驻京的外国商社和使馆的支持为基础，并收取会费作为活动经费，开展联谊和文体等活动。随着外国留学生人数的不断增加，这些社团的人数逐年呈上升趋势。他们中的大多数人能遵守我国法律，但也有少数人无视我国法律者。但从我国规范外国留学生结社活动的法律规范来看，目前仅有一些原则性的规定，基本的做法似乎是采取“不承认、不取缔、不发生关系、不承担任何义务和责任”的态度，这种现状不仅不利于我国改革开放的现实需要，也不利于我国依法治国良好国际形象的树立。
同样的问题也存在于对外国留学生宗教活动的管理当中，一方面，对留学生宗教活动管理方面的法律应当进一步具体化，明确外国留学生在宗教信仰及宗教活动方面的权利与义务，使他们在组织或进行相应的活动时有法可依，具有可操作性；另一方面，还需规定违法行为的处罚种类、措施以及幅度，为执法部门的执法工作打下坚实的基础。
综上所述，北京具有丰富的高等教育资源，在全国来华留学教育事业中具有得天独厚的优势。在建设现代化世界城市的新形势下，北京已经制定了一系列的外国留学生管理法规政策，在规范外国留学生教育方面起到了很好的作用，但是当前在发展留学生工作方面仍然存在着一些亟待解决的问题，涉及到留学生的奖学金管理、就业管理、居住管理、社会管理等方方面面，我们应充分认识法律规制对留学生管理工作的必要性和紧迫性，尽快构建并完善适合留学生特点的法律管理体系。
（作者单位：外交学院国际法系；本文受北京市哲学社会科学规划重点项目《北京建设中国特色世界城市中的外国人管理机制研究》的资助
