我國因應新冠肺炎法制之分析－以口罩規制為中心

面對新冠肺炎（COVID-19）疫情，世界各國無不採取許多防疫政策以抵抗疫情，而台灣也不例外。由於經歷過SARS疫情，我國於防疫政策之執行迅速，舉凡從邊境管制、入境隔離、居家檢疫至居家隔離。此外，口罩實名制更是台灣的一大創舉，為確保口罩之價格以及為使全民皆能購得口罩，口罩實名制之執行使得我國人民得透過全台之健保特約藥局、超商購買或預購口罩。當然，與世界許多國家相同，強制佩戴口罩亦為我國的防疫政策之一。一項防疫政策之執行必須有其法律規範，而我國就防疫政策之執行主要係倚賴既有的《傳染病防治法》以及新增定的《嚴重特殊傳染性肺炎防治及紓困振興特別條例》。然而，一項完善的防疫政策並不代表其法律規範足夠完備，筆者執業於健保特約藥局，在面對政府突如其來地徵用藥局販售實名制口罩顯得措手不及。究竟政府係透過何種方式以及法源依據執行實名制政策；究竟該政策係一種行政指導、行政處分抑或是其他行政行為，此等議題似乎鮮少被討論。加上我國中央與地方政府對於強制佩戴口罩政策之實施有所差異，是以促使本文研究防疫期間口罩規制的法制問題。本文首先就執行防疫政策之主要二法做詳盡的論述，並透過口罩對於世界各國防疫的重要性帶出其可研究性。接著分別就「口罩徵用實名制」及「強制佩戴口罩」兩項口罩規制，以外國制度為借鏡以反思我國口罩相關制度，並更深入地探討其中的法制問題。最後，本文認為口罩規制之執行應有其一套完整的法律規範或係透過宣布緊急命令之方式填補現行法制的不足。在執行可能侵害人民基本權利的政策下，僅係透過概括條款加以規定，不但欠缺法律明確性、違背法律保留原則，更可能造成執行時之矛盾及礙難。

關鍵字

新冠肺炎；口罩；口罩規制；口罩實名制；徵用；強制佩戴口罩；基本權；法律保留；法律明確性；傳染病防治法；嚴重特殊傳染性肺炎防治及紓困振興特別條例

並列摘要

In the face of the Coronavirus disease (COVID-19) pandemic, countries around the world have adopted policies to combat the pandemic, and Taiwan is no exception. Due to the outbreak of the Severe Acute Respiratory Syndrome (SARS) in 2003, pandemic prevention policies in Taiwan have been implemented rapidly, ranging from border controls, quarantines, to isolations. In addition, the "Mask-Rationing Plan" is a major innovation in Taiwan, which ensures the affordability and availability of masks to all. Because of the Plan, people are allowed to purchase or pre-purchase masks through health insurance pharmacies and supermarkets throughout Taiwan. However, like many countries around the world, mandatory wearing of masks is also part of our pandemic prevention policy. The enforcement of the policies must be governed by law, and policies in Taiwan rely mainly on the existing "Communicable Disease Control Act" and the newly enacted "Special Act for Prevention, Relief and Revitalization Measures for Severe Pneumonia with Novel Pathogens". However, a sound pandemic prevention policy does not mean that the legal regulation is complete. The author, who works in a health insurance pharmacy, was caught off guard when the government suddenly requisitioned pharmacies to sell name-based masks. The issues are seldom discussed as to how and on what legal basis should the government enforce the Mask-Rationing Plan policy. Besides, whether the policy is a kind of administrative guidance, administrative sanction, or other administrative actions is also unclear. In addition, the implementation of the mandatory mask policy between the central and local governments in Taiwan is a paradox. Therefore, all these questions have prompted this dissertation to examine the legal aspects of mask regulation during pandemic prevention. This dissertation starts with the discussion of the main two laws that regulate the prevention policies and brings out the importance of masks for pandemic prevention in the world. Then, following the discussion of the "Mask-Rationing Plan" and the "mandatory wearing of mask", which are used as a reference for reflecting on the mask-related system in Taiwan and exploring the legal issues involved in a more in-depth manner. Finally, this dissertation argues that the enforcement of the mask regulations should have a complete set of legal regulations or be done by declaring an emergency order to fill the shortcomings of the existing legal system. Otherwise, policies that may infringe people's fundamental rights are not only violating the Intelligible principle and the Nondelegation doctrine, but also may cause contradictions and difficulties in enforcement.

並列關鍵字

COVID-19 ； Masks ； Mask regulations ； Mask-Rationing plan ； Requisition ； Mandatory wearing of masks ； Fundamental rights ； Nondelegation doctrine ； Intelligible principle ； Communicable Disease Control Act ； Special Act for Prevention, Relief and Revitalization Measures for Severe Pneumonia with Novel Pathogens