我國公務員廉政倫理行為規範問題評析與法制化研究

聯合國反貪腐公約第8條明定，各締約國均應特別努力在其國家體制及法律制度之範圍內，給公務員適用正確、誠實及妥善執行公務之行為守則或標準；經濟合作暨發展組織也強調政府公共服務倫理基礎工程之建設；亞太經濟合作組織之反貪污及透明化工作小組也建議，會員體應制定及落實執行有關公務員倫理行為之法規，並檢討執行情形，均顯示強化並落實公務員倫理行為規範已成為國際趨勢及先進國家努力之目標。行政院於2008年第3096次院會審議通過「公務員廉政倫理規範」，又於2012年函訂「行政院及所屬機關機構請託關說登錄查察作業要點」，將請託關說制度化，使公務員在處理業務時，有清楚分際。上開兩項規定在實務執行上，已發現有若干條文執行困難及不符現實，於中央廉政委員會第17次會議決議，應重新檢視現行規範是否符合時代潮流，惟經檢視相關資料尚未對外提出檢討與修正。本研究藉由檢閱國際公約、美國、日本、新加坡等國家規定相關文獻、國際組織調查、官方統計資料及現行實務實施情形進行比較分析，發現我國現有廉政倫理行為相關規範有「公務員服務法未符實際無所適從」、「請託關說行為規範歧異與實務嚴重落差」、「受贈財物行為例外得收受判斷標準不明確」、「飲宴應酬行為禁止與報准標準有疏漏」、「其他廉政倫理行為多不確定法律概念形同具文」等問題需檢討修正，遂本研究針對我國廉政倫理行為規範現況問題提出下列建議：「應盡速通過『公務人員基準法』取代『公務員服務法』」、「『請託關說』行為規範歧異應盡速整併修正」、「『受贈財物』行為例外得收受判斷標準應明確化」、「『飲宴應酬』行為禁止與報准標準應明確化」、「廉政倫理行為登錄機制應檢討修正」及「其他廉政倫理行為多具不確定法律概念應予修正並增列必要行為態樣」等建議，期使我國廉政倫理法制更加完備，讓公務員知所遵循，鞏固人民對公務員公正執行職務的信賴，讓我國廉潔的公共服務與政府治理使國家更具競爭力。

關鍵字

廉政倫理；倫理行為；倫理規範；公務員倫理規範

並列摘要

Article 8 of the United Nations Convention against corruption stipulates that each State Party shall make special efforts to apply codes of conduct or standards for the correct, honest and proper performance of public duties to civil servants within the scope of its national system and legal system; The organization for economic cooperation and development also emphasizes the construction of the basic project of government public service ethics; The working group on anti corruption and transparency of the Asia Pacific Economic Cooperation also suggested that members should formulate and implement laws and regulations on the ethical behavior of civil servants, and review the implementation. It shows that strengthening and implementing the code of ethical behavior of civil servants has become an international trend and the goal of advanced countries. The Executive Yuan deliberated and approved the "code of ethics for clean government of civil servants" at the 3096th meeting of the Executive Yuan in 2008. In 2012, the Executive Yuan wrote "key points for the registration and inspection of the Executive Yuan and its subordinate organs" to institutionalize the request and inspection, so that civil servants can have a clear distinction in dealing with their business. In the practical implementation of the above two provisions, it has been found that some provisions are difficult to implement and unrealistic. At the 17th meeting of the Central Commission against corruption, it was decided that the current norms should be re examined to see whether they are in line with the trend of the times. However, the relevant information has not been reviewed and amended. By reviewing the relevant documents of international conventions, the regulations of the United States, Japan, Singapore and other countries, the surveys of international organizations, official statistical data and the implementation of current practice, this study finds that the existing norms of ethical behavior of clean government in China include "civil service law is not in line with reality and do not know what to do", "asking for clarification about the differences in codes of conduct and serious gap in practice" "The judgment standard for exceptional acceptance of donated property behavior is not clear", "there are omissions between the prohibition of catering and entertainment behavior and the reporting standard", "many other ethical behaviors of clean government are uncertain, and the legal concept is like a document" and other issues need to be reviewed and amended. Therefore, this study puts forward the following suggestions for the current situation of ethical behavior norms of clean government in China: "it should be replaced by the" benchmark law of public servants "as soon as possible "The civil service law", "differences in the code of conduct of" asking for help "should be rectified and amended as soon as possible", "the criteria for judging the exceptional acceptance of" gifts "should be clarified", "the standards for prohibiting and reporting" banquets and entertainment "should be clarified", "the registration mechanism of ethical acts of clean government should be reviewed and amended" and "Other ethical behaviors of clean government are uncertain, and the legal concept should be revised and the necessary behavior patterns should be added" and other suggestions are expected to make China's ethical legal system of clean government more complete, let civil servants know what to follow, consolidate people's trust in civil servants' fair performance of duties, make China's clean public service and government governance, and make the country more competitive.