總統上任一年內之立法產出比較–以馬政府及蔡政府為個案之研究

在臺灣半總統制的憲政體制下，總統缺乏實質政策決定權，也沒有提案權，更沒有立法權，如此情勢之下的總統，會如何在蜜月期內把握憲法賦予其之權力（唯一具有直接任命行政院院長權力者）去推動政策？在總統的帶領下，兩大政黨的執政方向為何？目前達成的共識是以國家認同的議題作為主要區分兩黨的方式，因而大部分議題都演變成統獨的光譜，至於兩大政黨在其他領域上提出之政策差異不大。兩黨施政領域有無差異是值得探討的。再從議題競爭的角度觀之，兩大政黨在執政後，會針對具議題所有權的政策領域強化施政，還是針對具爭議的議題進行討論，進而產生議題重疊的現象。這也是值得探討的議題。本文的研究問題是：臺灣兩政府上任後，其施政重點的領域是否有差異？兩政府施政重點會聚焦於具議題所有權的政策領域？還是會產生議題重疊的現象？研究結果為：兩政府的施政重點基本上是不一樣的，馬政府主要在法律議題、健康、商業活動與對外貿易等議題中有較多關注；而蔡政府主要關注與環境、政府業務、健康與交通等相關的議題。本文大致上與過去研究兩大黨有關議題所有權的結果符合，即使兩政府在健康的議題上有政策領域重疊的情況，兩政府著重的議題卻是不同的：馬政府強調用藥安全、提升病患權益與醫療設備上的改進；而蔡政府則主要是強調長期照顧服務法的完備。

關鍵字

總統；立法；馬英九；蔡英文；議題所有權；議程設定

並列摘要

Under the constitutional system of Taiwan’s semi-presidential system, the president lacks the power to make substantive policy decisions. In such a situation, how will the president, in the honeymoon period, seize the power given to him by the Constitution (the only person with the power to directly appoint the President of the Executive Yuan) to promote policy? Under the leadership of the President, what are the ruling directions of the two major political parties? The consensus reached so far is based on nationally recognized issues as the main way to distinguish the two parties, so most issues have evolved into a spectrum of reunification and independence. As for the policies proposed by the two major parties in other areas, there is not much difference. Whether there are differences between the two parties' governance areas is worth exploring. It is also an issue worth exploring from the perspective of the competition of issues, after the two parties take power, they will strengthen the administration of the policy areas with issue ownership, or discuss the issues that are controversial, and then resulted in overlapping issues. The research question of the article is: After the two governments take office, are there any differences in the areas of governance? Will the two governments' policy priorities focus on policy areas with issue ownership? Or will there be overlapping issues? The findings are as follows: The two governments' governance priorities are basically different. The Ma government has paid more attention to legal issues, health, commercial activities and foreign trade issues; while the Tsai government focuses on issues related to the environment, government affairs, health and transportation. The article is broadly in line with the results of past research on issue ownership related to the two major parties. Even if the two governments have overlapping policy areas on health issues, the two governments' priorities are different: the Ma government emphasizes medication safety, improves patient rights and the improvements of medical equipment; while the Tsai mainly emphasized the completeness of the Long-Term Care Services Act.