國會助理立法涉入之研究：以第九屆立法院為例

The Legislative Involvement of Congressional Assistants: The Case of Legislative Yuan from 2016 to 2019

歐陽正霆(Ouyang Cheng-Ting)

指導教授 ： 盛杏湲

國立政治大學/社會科學學院/政治學系/碩士(2019年)

https://doi.org/10.6814/NCCU201901268

摘要

政治學界針對國會所累積研究不勝枚舉，但其中有關國會助理的研究並不多，在有限的文獻中，學界普遍肯定國會助理的重要性，也進一步指出可將國會議員與助理視為政治生命共同體，亦或同屬一政治企業的共同夥伴。然而既有研究大多僅透過推論或旁敲側擊的方式來了解國會助理，並無較完整的理論工具來剖析助理對立法問政的涉入情形。
因此本文針對於第九屆立法院服務之立法委員與法案助理，進行深入訪談與問卷調查，文中提出並界定了立法涉入的概念，同時以問政情境、問政方式、分工及溝通模式等角度切入，除描述助理的立法涉入程度外，筆者也提出了一套理論架構，試圖解釋為何助理在不同情況下立法涉入的程度會有差異。
研究結果發現，助理的確是立法運作中重要的一環，在議題設定、討論及決策等過程中，均有相當程度參與，證明了過去學界有關政治企業與生命共同體的推論並無訛誤。但立法委員絕非橡皮圖章照單全收，還是相當的有自己的想法。同時也發現了立法委員若較重視該次問政，會有較高的自主性，因而予助理較低的授權程度，同時也會更積極與助理討論以尋求協助及確保問政結果符合己意。再者，研究結果顯示，由於立法委員會考量問政方式的政治風險與對其之關心程度，因此助理的立法涉入空間會因為問政方式而有所不同。最後在分工模式部分，相較於「立委強勢型」，「助理強勢型」分工模式下，助理大致上會有較高的立法涉入空間，證明了在分析助理的立法涉入程度時，應將立法委員與助理的資深程度併同納入分析。

關鍵字

立法院 ； 立法參與 ； 國會助理 ； 立法涉入

並列摘要

There were many inspiring researches on congress in the past, but rarely on congressional assistants. In a limited literature, the academic community generally recognized the importance of congressional assistants. Furthermore, researchers point out congress members and their assistants can be regarded as a single political career community, or partners of one enterprise. However, most of the existed theses only analyze congressional assistants through inference or indirect approach. There is no complete theoretical tool to analyze the involvement of the assistants in legislative progress.
Therefore, this thesis conducts interviews and surveys of the legislators and legislative assistants of the ninth Legislative Yuan, and defines the concept of legislative involvement. At the same time, the thesis also examines how the situation, type, domination, and communication of representatives can influence legislative involvement of assistants. In addition to describing the actual picture of assistants’ legislative involvement, I also propose a theoretical framework to explain why the legislative involvement of the assistants is quite different, depending on circumstances.
The study finds that legislative assistants do play an important role in Legislative Yuan and soak in the representatives’ activities, such as setting agenda, discussing, and the process of decision-making.. It reveals that the views of political enterprises and career communities in the past are correct. However, it does not mean the legislators are just rubber stamps. On the contrary, they are rather independent. When members pay more attention to a legislative activitity, they will hold onto the process more autonomously. As a result, they would give assistants a lower authorization and discuss with assistants more frequently to ensure the consequences match their expectaions. The results also reveal that legislators consider their own concerns and political risks of representative behavior, as results the involvement of the assistants vary as the type of representative behavior different. At last, compared to “legislator-dominated” division mode, assistants get involved more deeply in “assistant-dominated” mode. It also proves researchers need to take both the seniorities of legislator and assistants into consideration, instead of analyzing them separately.

並列關鍵字

Legislative Yuan ； Legislative Participation ； Congressional assistants ； Legislative Involvement

參考文獻

A. 英文部分

Butler, Warren H.. 1966. “Administering Congress: The Role of the Staff.” Public Administration Review 26(1):3-13.

Carmines, Edward G., Matthew Fowler. 2017. “The Temptation of Executive Authority: How Increased Polarization and the Decline in Legislative Capacity Have Contributed to the Expansion of Presidential Power.” Indiana Journal of Global Legal Studies 24(2):369-398.

Cox, Gary W. and Mathew D. McCubbins. 1993. Legislative Leviathan: Party Government in the House. Berkeley: University of California Press.

Davidson, Roger H. and Walter J. Oleszek. 2010. Congress and Its Members. Washington D.C: A Division of Congressional Quarterly Inc.