論國會改革與立法委員專業倫理的建立

國會改革一直是國人關心民主憲政發展的焦點，也是近年來選戰的議題。立法院之一再被要求改革，當然是因為立法院未能有效建立其專業倫理、立法委員未能善盡其角色功能，以政於行事論政時常有乖張、甚至違法亂紀之情形；議事效率不振、社會形像低落。並非如時論所謂225名立法委員人數太多造成國會亂象。代議士代表人民監督政府的角色功能，自有其專業倫理和專業能力。而同民主體制的代議士有特殊的角色功能，其所應擁有的專業倫理亦各自不同。中華民國在短短十年（1990-2000）民主憲政改革中由三個國會變為單一國會，立法院的職權不斷擴大；也由內閣制變為雙首長制。制度快速變遷，當然是專業倫理未能有敦建立的一個不可忽視的原因。中華民國政府演變為特殊的雙首長制，立法院與總統和行政院之間互動關係的改變也影響到立法委員的角色功能及專業倫理；立法委員的選舉方式在立法委員和選民的關係，以及立法委員和政黨等的關係，並進而決定其專業倫理能否有效建立。另外立法院內部運作規範完備與否，更是立法委員專業倫厘建立關鍵因素。大眾傳播媒體對於立法委貝的行事表現亦產生外在制約的效果。以上皆是本大所要論述的地方，希望能藉以發有效立法委員專業倫理的關因素，或有助於國會改革方向的掌握。

關鍵字

角色功能；專業能力；專業倫理；立法院；常設委員會；選民雙首長制；傳播媒體

並列摘要

This paper argues that the establishment of legislator professional ethnics is the key to the success of the Legislative Yuan reform. In recent years, parliamentary reform has been the focus of democrazation and became one of the main election campaign issues in Taiwan as well. In general, the inefficiency and chaos of the Legislative Yuan was blamed upon the legislators, particular the number of the parliamentary seats. In order to improve the function of the Legislative Yuan, some suggested that the seats numbers should be reduced from 225 to 150, and extended the three-year tenure to four years to coincide with the presidential tenure, and also replaced the small electorates with multiple seats to single-seat electorates with proportional representation. However, will these efforts make the reform success? Beside the institution reforms, in my point of view, another critical aspect is: how do the legislators cultivate that profession ethics and expertise? Therefore, this paper stresses that only both outer and inner force reform, such as constitution structure, electoral system, media supervision, professional ethics, would then make the Legislative Yuan reform work, not only improving the role of the legislators but also the function of the Legislative Yuen.