緊急命令與法律制度的互動分析：從九二一大地震到Covid-19的發展演變

在2019年底爆發的新型冠狀病毒疫情，大幅度的影響了當今的世界運作方式，病毒的影響在社會的各個層面都衝擊了人類既有的生活樣貌。緊急命令作為憲法下特別允許創立一例外的機制，以應付緊急狀態的發生。在此次疫情中，緊急命令被許多國家作為應對疫情的重要手段，讓行政機關能夠迅速的展開防疫的措施。在此值得探討的是，緊急命令制度固然能夠迅速的應變危機，卻也造成既有法制度懸置的隱憂。在臺灣此次應對疫情的危機時，為何沒有選擇發佈緊急命令？臺灣在法律的制度面上選擇何種方式作為因應？為了回答這個問題，本文分析臺灣實施緊急命令的脈絡趨勢及歷史因素，探討在緊急情況下臺灣法律制度的回應方式以及發展趨勢，並分析背後可能的因素。本文發現，在緊急狀態發生為研究基礎下，國家跟夠根據事態的不同而做出不同的因應，並呈現緊急命令制度與既有法律制度的多元互動機制，而各個機制之間也呈現制度之間的量能流動，成為觀察的一大重點。在臺灣本身的法律實踐上，本文選定臺灣三次的重大災害事件做觀察對象，發現影響的因素包括內國法律制度的完備與否、決策模式的改變、以及法律作為一風險決策平台。而這些因素都會分別形塑、帶動在緊急情況下國家選擇應對的方式。本文進一步觀察到，在這一次臺灣應對新型冠狀病毒疫情過程中展現了民主國家應對緊急狀態時另一種良好的典範，在緊急情況之下，除了法律制度以外，政府部門的應對態度及有效的溝通模式，在緊急狀態的處理也扮演著舉足輕重的角色。

關鍵字

緊急命令；法律制度互動關係；緊急情況；決策模式；疫情

並列摘要

The outbreak of Covid-19 at the end of 2019 has greatly affected the operation of today's world and impacted the existing life of human beings at all levels of society. Emergency decree, as an exceptional mechanism under the constitution to deal with emergency crisis, has been used as an important means in many countries to deal with the epidemic situation, so that the administrative organs can quickly carry out epidemic prevention measures. It is worthwhile to research on here is that although the emergency order system can quickly respond to the crisis, it also causes the hidden worry of the suspension of the existing legal system. Why didn't Taiwan choose to issue an emergency decree in response to the development of the epidemic? In terms of legal system, which way does Taiwan choose to respond? In order to answer this question, this paper analyzes the context and trend of Taiwan's implementation of emergency orders, discusses the response mode and development trend of Taiwan's legal system in emergency situations, and analyzes the factors behind it. This thesis submitted that, based on the study of the emergency status, the state can make a variety of different responses according to the different situations, and present the multiple interaction mechanism between the emergency order system and the existing legal system. In Taiwan's own legal practice, this paper observes three major disasters happened in Taiwan, and finds that the influencing factors include the completeness of domestic legal system, the change of decision-making mode, and the change of law as a risk decision-making platform. These factors will respectively shape and drive the country to choose the way to deal with emergencies. This thesis further observes that in the process of Taiwan's response to the new coronavirus epidemic, it shows another good model for democratic countries to respond to the state of emergency. In an emergency, in addition to the legal system, the response attitude and effective communication mode of government departments also play an important role in handling of the state of emergency.