我國公民投票實施經驗之研究

Studies on the Implementation Experience of Referendum in Taiwan

高金清(chin-ching kao)

指導教授 ： 徐學忍 博士 ； 郭文忠 博士

元智大學/管理學院/管理研究所/碩士(2004年)

摘要

本論文係以公民投票在我國民主政治中之發展為研究主軸，來探討公民投票制度
是否適用於我國？應扮演何種角色及功能？要如何適當定位？對民意與政府政策間之
互動關係會產生何種變化等。本研究首先經由探討「歐洲先進民主國家」、「聯邦制
國家」、「非先進民主國家」及「單一國體制國家」等，實施公民投票之經驗，針對
其中之優劣點作一比較分析；再依據蒐集之資料，在法源基礎上，針對我國「公民投
票法」未來之修法方向，提出基礎論點。在制度運用上，由於我國特殊政治環境因素
及意識型態，任何一項公民投票議題之實施，都容易衍生政黨間彼此「政治價值」對
決之衝突；如何完善規劃未來執行制度，提出本研究建議。期望對我國公民投票之實
施，在實質上得到有效協助，在執行上之缺失與問題，能獲得適當之解決。
本研究依循理論與實踐兩個層面進行分析；在理論層面上，針對我國公民投票發
展歷程作整體性論述，再就我國實施公民投票之困境與限制，提出政策性之建議。在
實踐層面上，針對我國十八次地方性公民投票之案例，依其議題屬性、舉辦者及投票
結果及效力作適切探討；並就「三二０和平公投」之結果，運用SWOT理論，依其優
勢、劣勢、機會、威脅等面向進行分析，期許增加公眾討論及思考空間。
由於「公民投票」在世界各國使用規定及執行成果不盡相同，難以等量齊觀，但
是，對當前我國現況而言，有許多需要改進之處。本研究借鏡其成功因素，從三個面
向，提出研究建議。
壹、立即可行建議
一、降低公民投票法第二十七條地方性公民投票提案人數與連署人數門檻限制。
二、降低公民投票法第三十條投票結果可決率門檻限制。
貳、長期性建議
一、公民投票法第二條二項第四款憲法修正案之複決納入憲政體制運作。
二、刪除公民投票法第二條第四項排除事項之「投資項目」限制。
三、將「公民投票法」名稱更改為「創制複決法」。
參、對公民投票法整體之建議
一、在法源依據方面：納入地方性公民投票法源。
二、在公民創制與適用方面：列入「法律廢止」條款及機關提交爭議性公共政策
複決時採「二階段設計」模式。
三、在提案許可裁決方面：提案審查機關應回歸「司法院大法官會議」。
四、在正式提案與連署人數門檻限制方面：應加入「利益圈保障條款及特定少數
否決條款」。
五、在思辨討論期間方面：納入「公平協助宣導」及「使用媒體」條款。
六、在投票門檻與可決率門檻限制方面：引進瑞士「雙重多數決」之投票設計。
最後本研究認為，臺灣今日欲以公民投票解決統獨認同、族群爭議等問題，應仍
在中華民國憲法架構下進行，以求社會秩序穩定及國家整體進步。對國家重大議題例
如，修憲案、領土變更案及更改國號案等，則採用議題導向之修憲界限，將其置於憲
法架構，並經由公民投票程序始生效力，真正落實人民直接參與政治之權利，使主權
在民之精神得到具體表現。

關鍵字

公民投票

並列摘要

This paper is concentrate on the referendum in the development of democratic politics in
Taiwan to explore the following question about referendum 1 ) whether it is suitable for
Taiwan or not? 2)what role it is supposed to play and what functions it should have? 3) how
it shall be positioned? 4) what change it may incur to the interaction between public opinion
and the government policy?
In this paper, we discussed the experience in implementation of referendum in European
Advanced Democratic Countries, Federal Countries, Non-Advanced Democratic Countries
and Single State System Countries and make comparison and analysis of the strengths and
weak of each type. The data collected will be based to suggest the amendment of Citizen
Referendum Law in the future on the basis of source of law for the basic principles. In the
system operations, due to the special political environment factors and ideological pattern of
Taiwan, any referendum issue is very likely to lead to the conflict of political value between
political parties, suggestion on proper planning in the system of implementation in the future
is also provided in this study. It is hoped to have real and effective assistance in the voting
of referendum in Taiwan and to have suitable solution to the discrepancy and problem in
implementation.
In this study, analysis is made in two levels, theoretic and practical. at the theoretical level, a
total elaboration of the development history of referendum of Taiwan is made and following
with the difficulty and limitations in the implementation of referendum for providing policy
suggestions. In the practical level, the difficulties and limitation in 18 local referendums
held before in Taiwan are based to make in-depth discussion based on the attributes of issue,
sponsor and results and effects of voting. Thereafter, the SWOT theory is applied to the result
of the 320 Referendum to analyze the strength, weak, opportunity and threat, so as to develop
the room for public discussion and thinking.
Since referendum has different requirement in application and results of implementation
among countries in the world, it is difficult to view them on the equal basis. However, since
there are quite a number of improvements required in the reality of referendum in Taiwan,
we take the factors of success to provide suggestions of this study in 3 aspects.
1. Suggestion workable instantly
a. reducing the thresholds of sponsors and cosignatories of local referendum under
Clause 27 of Referendum Law
b. reducing the thresholds for determination in the voting results under Article 31 of
Referendum Law.
2. Suggestions for the long-run
a. incorporating review under the Amendment of Item 4, Paragraph 2, Clause 2 of
Referendum Law into the constitutional system operations.
b. Deleting the limitation of Investment Items in the Exclusion under Para. 4, Clause 2
of Referendum Law.
c. Rename Referendum Law to be “ Initiative and Review Law
3. The suggestion to Referendum Law overall
a. in source of law, incorporating legal source of local referendum
b. In the citizen initiative and application, incorporating revocation clause and when
government agency initiates disputing public policy for review, a 2-stage design
shall be adopted.
c. In the decision on the approval of initiatives, the institution shall be returned to
Grand Judges Meeting of Justice Yuan.
d. In the thresholds of formal initiation and cosignatory shall add with Interested Party
Protection Clause and Specific Minority Veto Clause.
e. During the elaboration and discussion periods, the Fair Assistance in Promotion and
Media Utilization clauses shall be incorporated.
f. In the thresholds of voting and determination, the Swiss Double Majority voting
design shall be take into consideration.
At the last, the study believes for referendum issues like unification / independence
identification, ethnic dispute, shall still be conducted under the Constitutional Structure of
the Republic of China, so that the public orders and the overall progress of the country may
be assured. For vital issues, such as constitutional amendment, change of territory and e of
chang country name, it is suggested to be issue oriented amending border to place it under
constitutional structure, and validated through referendum so that the direct political
involvement of the citizen may be offered and the spirit of people sovereign to be
demonstrated substantially.

並列關鍵字

Referendum

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