臺灣立法院1948年至2017年通過法案之趨勢分析

本文針對臺灣立法院1948年至2017年通過之所有法案進行長期趨勢分析，主要的原因是政府面對許多的挑戰，如科技發展、重大危機、及政治經濟社會文化等各方的需求與挑戰，因此必須在不同的政策領域做出相關的回應，但政府在資訊的蒐集、處理、及注意力上是有侷限的，因此並非所有的社會問題都會受到政府的重視與處理，這些社會問題與議題必須在政府有限的政策議程空間內競爭，才有可能會獲得政府注意，而被處理。我國解嚴後才開始朝民主政體邁進，於此之前皆屬威權統治，政府比較沒有回應民意的動機與誘因，因此在我國政府注意力配置上，勢必須考量政治體制轉變帶來的影響，故本研究的主要架構為透過分析臺灣立法院的長期立法產出，藉此檢視我國政府活動的情況，並且強調政治體制轉變下注意力的變遷。本文利用美國政策議程計畫（Policy Agendas Project；PAP）的編碼規則，將立法院通過的所有議案進行歸類。研究結果顯示，第一，整體立法產出數量方面，1949年後，國會每年所通過的法案數量皆在100筆以下微幅增減，直至1997年才首度超過100筆，通過法案數量明顯增多，並於2002年達到高峰（238筆），隨後通過筆數則大致在100至200筆間增減，因此，本研究推測這與1996年總統直選有關，選舉的課責使得總統開始更積極回應民意，透過制定公共政策讓人民對其施政有感；第二，在議題多樣性方面，1949年起，立法院每年通過法案的子議題數量幾乎都落在40以下，直到1992年後開始呈現增加的趨勢，並於2002年到達最高點（104），其後則有下降的情況且在40到100間增減波動，是故，本文認為這是因1992年國會全面改選及總統直選有關，政黨競爭加劇的同時促使國會更積極處理不同的社會問題，使通過法案的多樣性提高；第三，政府注意力的移轉情況與我國民主轉型的時程大致上相符，本研究以為政治體制的轉變將可能導致政府注意力的變遷；第四，政府在國防與政府業務等領域通過法案之數量，呈現先高後低再高的情形，外交領域的通過法案則是多集中在1970年代以前，至於人權、環境、及社會福利三個議題中，結果顯示立法院在1990年代以前只有通過一些零星法案，但在1990年代末期後，通過法案數量大幅升高。

關鍵字

國會法案；議程設定；議題多樣性；注意力

並列摘要

This article focuses on the long-term trend of bills passed by the Legislative Yuan in Taiwan between 1948 and 2017. The government faces many challenges. Therefore, corresponding responses must be made in different policy areas. But the government is limited in information collection, processing, and attention. All social issues have to compete in the limited policy agenda space then they will be taken seriously and dealt with by the government. After delegation, the regime of Taiwan began toward to democracy. The government under authoritarian was relatively unresponsive to public opinion. Therefore, in the allocation of the government’s attention, we must consider the impact of the regime changes. The main framework of this article is to examine the situation of Taiwan’s government’s activities by analyzing the long-term legislative output and to emphasize on changes in attention when the regime shifting. According to the coding rules of Policy Agendas Project (PAP), all bills passed by Legislative Yuan are categorized. We found that, first, legislative output. Before 1997, the number of bills passed each year had only slightly change under 100. It was the first time exceeded 100 and had raised up significantly until 1997. It reached a peak in 2002(238) then fluctuated from 100 to 200. We conclude that it is related to the presidential direct election in 1996. The responsibility of election made president start to respond public opinion actively by making policies. Second, diversity of issues. Since 1949, the number of sub-issues passed by the Congress had almost fallen below 40 and it began to increase after 1992. The trend reached the highest point in 2002(104) then fluctuated between 40 and 100. We conclude that it caused by the comprehensive re-election of the Congress in 1992 and the presidential direct election. At the same time, it prompted Congress to deal with different social issues and increased issue diversity. Third, the shift of government attention. It is roughly in line with the timeline of democratic transformation in Taiwan. We believe that transformation of the regime may influence how the government allocate attention. Finally, compared to the number of bills passed in the field of core function and new political issues. In defense and government operations, they showed a trend went up at beginning then went down and moved up in the end; In international affairs, it mostly concentrated before 1970s. As for human rights, environment and social welfare, the results showed that the Congress only passed sporadic bills before 1990s. After that, it has increased dramatically.