部落公法人的前景與隱憂－原住民族善治的體制嘗試

Indigenous Tribes as Public Juristic Persons: A View from Indigenous Good Governance

黃之棟(Morgan Chih-tung Huang)

《臺灣民主季刊》 14卷4期 (2017/12) Pp. 1-47

摘要

2015年底，立法院為「促進原住民族部落健全自主發展」，特別增訂了《原住民族基本法》第2條之1，將經中央原住民族主管機關核定之部落，賦予其公法人地位。該法同時也將訂定相關辦法之權限，授權中央原住民族主管機關為之。一般認為，「部落公法人」制度對於厚植部落自主能力、實踐原住民族集體權、奠定原住民族自治基礎進而重建部落傳統，皆具有里程碑的意義。不過，由於公法人在我國實務上較為少見，因此目前相關的討論，重點多在定性、組織、職能等權能面向；有關這類具有執行公共任務功能的組織，如何才能達成當代公共治理所標舉之透明、課責、參與、效率等原則，進而達成所謂的善治（good governance），相關討論則較少論及。對此，本文擬在原住民族善治的概念下，通過理論、實證資料、和國外經驗之借鏡，來對當前制度進行檢視，進而提出政策建言。本文認為，部落公法人既然涉及到公權力的行使、公款與資源的分配和使用，就必然涉及到代表性、能力建構與發展（capacity building/ development）、監督機制和課責等問題。對於這些議題，如能預先思考並妥適規劃，相信除能增進公法人運作上的安定性，也有助於強化一般大眾對原住民族自治的信心，進而鞏固整體原住民族自治的基盤。

關鍵字

部落公法人 ； 原住民族 ； 自治 ； 治理 ； 課責

並列摘要

In 2015, the Indigenous Peoples Basic Law was amended and a novel concept of Tribal Public Juristic Person was introduced. According to the Basic Law, indigenous tribes recognised by the authorities shall be considered as public juristic persons. Both aborigines and the general public welcomed this change and considered it a starting point for further indigenous autonomy in Taiwan. Facing this brand new concept, there has been however widespread debate over its introduction and materialization, especially the establishment of its following regulations. This article analyses the emergent system of public juristic persons through the lens of good governance. Using detailed legal exposition in tandem with interviews, this article seeks to demonstrate the importance of good governance in the practice of indigenous autonomy. It noted that literature on this issue mainly focused on the question of how to use tribal public juristic persons to materialize indigenous rights; few has discussed the issue of accountability. In fact, some indigenous scholars/interviewees even criticised the very concept of accountability. For them, it is nothing but a resurrection of internal colonization. Given the history of the Taiwanese aborigines, this article well recognizes the danger of governmental powers. However, this article treats the institution of tribal public juristic persons as an opportunity to step closer to the goal of autonomy. It further argues that it is time for us/aborigines to translate our tradition into modern forms and take the issue of good governance seriously.

並列關鍵字

(tribal) public juristic persons ； indigenous peoples ； autonomy ； governance ； accountability

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