從分權理論與政府類型學論孫中山政府體制主張

本文首要釐清孫中山政府體制主張之主要內涵與特徵為何？其次，本文嘗試運用政治分權理論與政府類型學，評述孫中山政府體制主張。孫氏的政府體制主張，係依據其權能區分主張而設計的政治制度。孫氏區分主權控制功能（政權）與統治權作用（治權）之不同，前者稱為人民權，後者稱為政府權。在制度設計上，孫氏以國民大會為政權機構，具有主權代理機構的性質，係人民控制政府的獨立機構；以五院制為治權機構，彼此分工合作，發揮萬能政府的治理效能。依政府類型學的分類標準，行政權應歸屬行政院長，總統只有以其超然地位居間調和五院的有限權力；而行政權與立法權的關係則應以治權機構是否向主權代理機構負責而論，則行政院對國民大會負責，接近一般內閣制國家內閣向國會（兼具主權代理機構性質）負責的關係，因此本文認為孫氏政府體制主張固可稱為「五院制」或「國民大會制」，亦可因其具有類似內閣制的特質而稱為「新內閣制」。傳統的分權理論係以對抗專制君權為著眼點，雖於概念上區分主權與統治權的不同，但在制度上依循歷史路徑未能明確劃分兩者之不同，僅就國家權力運作之現況，將權力劃分為二權或三權，並賦予其中立法權兼具統治權與代行主權之性質。因此，在內閣制中立法權固然高於行政權，即便是總統制中立法權因兼具預算審議與人事同意等主權控制功能，亦凌駕於行政權之上。孫氏新創的分權理論與制度設計，雖未能有真正實踐的機會，但在學理上卻對權力的性質作出更精準的界定與劃分。

關鍵字

分權理論；權能區分；國民大會；五院制

並列摘要

The primary task of this paper is to clarify the main connotation and characteristics of government system advocated by Sun Yat-sen. Secondly, this paper attempts to apply political decentralization theories and government typologies for commenting Sun Yat-sen's views of government system. Sun's government system is a political institution which is designed on the basis of distinction of Powers and Capabilities. Sun differentiates the functions of sovereign control (political powers) from the effects of governance (governing powers); the formers are called as people powers and the latters, government powers. In the institutional layouts, Sun designs the National Assembly as the organs of political powers, which is an independent institution for people to control the government, with the nature of the sovereign agency; and five Yuans as the governing bodies, which shares out the work and cooperates with one another, in order to play the role of an effective universal government. According to the classification of government typology, the administrative power should be vested in the Chief of Executive Yuan, and the President has only limited powers to reconcile the five Yuans with his detached position. The relationship of administrative power and legislative power should depend if the governing bodies are responsible for the sovereign agency, and the Executive Yuan is responsible for the National Assembly, close to the relationship between the Cabinet and the Congress (also with the nature of sovereign agency) in the Cabinet system. Therefore, this article proposes that Sun's government system may be also called ＂New Cabinet System＂ because of its characteristics similar to the cabinet system, though it is usually called ＂Five-Yuans System＂ or ＂National Assembly System＂. Traditional theories of decentralization are aimed at confronting the authoritarian monarchy. Although they differentiate the concept of sovereign powers from that of governing ones, there is not clear-cut distinction between the two because of dependence on the historical path, only dividing powers into two or three and enduing the legislative power with the nature of both governing powers and acting sovereign powers on the basis of status quo power operation in a state. Therefore, the legislative power is truly higher than the executive power in the cabinet system, even higher in the presidential system due to sovereign control functions such as budget approval, personnel consent and others. It is clearer to distinguish the natures of powers academically in Sun's newly-invented theory of decentralization and institutional design, though lack of a real chance in practice.

並列關鍵字

Theory of Decentralization ； Distinction of Powers and Capabilities ； National Assembly ； Five-Yuans System

參考文獻

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從分權理論與政府類型學論孫中山政府體制主張

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