我國族群型代表性行政機關的設置及其意涵

The Designation and Its Implications of the Ethnic-based Representative Agency in Taiwan

孫煒(Sun Way)

《臺灣民主季刊》 7卷4期 (2010/12) Pp. 85-136

https://doi.org/10.6448/TDQ.201012.0085

摘要

由於特殊的歷史脈絡與政經社文的結構，台灣的族群議題在民主化的過程之中，成爲一個極爲敏感又至關重要的因素。爲了促進族群和諧，在中央政府的行政部門之中設置族群型代表性行政機關：原民會與客委會，制定與執行族群政策，來緩解族群政治中的潛在衝突與爭議。本文運用理性抉擇研究途徑，認爲我國原民會與客委會的設置，乃是在我國特殊的憲政改革、族群政治與政府改造的背景之下，由立法委員、政務官員以及少數族群菁英，基於理性抉擇的權衡計算，藉以降低成本、提昇效益的較佳制度設計。此外，本文運用官僚政治研究途徑，分析我國文官體制爲了因應外在系絡的劇烈變遷，逐漸調整三種核心價值：代表性、中立性與政務領導的結構，具體表現在近年我國制定相關法律之中，例如原住民族基本法、客家基本法、中央行政機關組織基準法以及行政院組織法等，其中有關合議制的委員會的制度設計，可視爲重視特殊團體（族群）或事務的價值與利益，強調代表性價值的行政機關，並由其擔任政策協調與統合的功能，以回應、多元社會的需求。在結語中，本文強調我國近年推動民主化的重要成就之一，在於設計更高包容力與多元性的制度，肯認台灣多元文化在文官體制中的代表性。設置族群型代表性行政機關，代表各種族群利益與價值，作爲促進族群參與以及保障各種族辭文化的機制，正是我國民主鞏固的主要基礎。

關鍵字

代表性行政機關 ； 族群 ； 文官價值 ； 原民會 ； 客委會

並列摘要

Due to Taiwan's unique historical context, political, socio-economic and cultural structure, the theme of ethnic group in the process of democratization becomes a very sensitive yet crucial element. In order to promote ethnic harmony, the executive branch of the central government has designated representative agency for different types of ethnic groups. For instance, the Council of Indigenous Peoples and the Council for Hakka Affairs will formulate and implement policies on ethnic issues to soothe some of the possible political conflicts and disputes. This article utilizes the rational choice approach with the concept that the designation of Taiwan's Council of Indigenous Peoples and the Council for Hakka Affairs is a rational decision made by the country's legislators, politicians and ethnic elites after deliberately calculating the opportunity for gaining benefits under the country's unique evolution in the constitution, ethnic politics and the transformation in the government. In addition, this article also applies the bureaucratic politics approach to analyze the drastic changes brought by the bureaucracy's response to the national changing context as a whole, resulting in the shift towards the three core values, which are representativeness, neutrality, and executive leadership. The concrete examples in our nation's promulgation of law recently can be demonstrated by the Indigenous Peoples Basic Law, Hakka Basic Law, the Basic Law for the Organization of Central Government Agencies and the Organic Law of the Executive Yuan. The above mentioned examples include the designation of collegial-type of council system which can be regarded as emphasizing on the values and benefits of matters related to special (ethnic) groups, as well as stressing on the agencies with representative values so they can coordinate and integrate related strategies in response to the diverse demands of the society. In conclusion, this article emphasizes on one of Taiwan's recent achievements in the promotion of democratization, which is designating a more tolerant and dynamic system in recognizing the representativeness of multiple cultures in Taiwan's bureaucracy. The designation of agencies to represent the ethnic groups is to reflect the benefits and values of such ethnic groups, as well as protecting each group's cultural mechanisms, which is the basis of democratic consolidation in Taiwan.

並列關鍵字

representative agency ； ethnic group ； bureaucratic value ； the Council of Indigenous Peoples ； the Council for Hakka Affairs

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江宜樺()。