建置軍人申訴及權益保障之法制探討

An Investigation on the Establishment of Legal System for Military Complaints and Rights Protection

林怡萍(Yi-Ping Lin)

指導教授 ： 陳櫻琴

中原大學/商學院/財經法律研究所/碩士(2015年)

https://doi.org/10.6840/cycu201500128

摘要

傳統「特別權力關係」理論導致軍人與國家雙方地位之不平等，經第二次世界大戰後，憲政思潮的衝擊，「特別權力關係」理論已逐漸修正改以「特別法律關係」代之。在司法院大法官會議相繼作出放寬解釋後，我國公務人員身分保障與權利救濟請求權得以脫離「特別權力關係」限制。其中司法院大法官釋字第430號解釋，更揭示「軍人為廣義之公務員，與國家間具有公法上之職務關係，倘非關軍事指揮權與賞罰權之正當行使，軍人依法應享有之權益，自不應與其他公務員，有所差異」。鑑此，我國「憲法」雖允許因軍事勤務關係對軍人之基本權為必要之限制，但仍須符合「憲法」第23條所規範之要件：一、須有法律之依據或法律之授權。二、須符合軍事利益。三、須符合比例原則等三項要件。
另依「憲法」第16條規定，當國家行政單位有瑕疵之行政行為，導致人民權益受損，在「依法行政」原則下，對於受到行政機關侵害的人民權益，應給予行政體系內或體制外的保護；惟我國目前並無一套完整的軍人權益保障法制，僅於「國防法」第19條規定：「有關軍人權利遭受違法或不當侵害時，依法救濟之」；而軍人雖為「廣義之公務員」，卻又因非為依法考選銓定取得任用資格，且亦非「公務人員保障法」之保障或準用對象，致有關「公務人員保障法」所列之實體及程序保障規定，均不適用於軍人（參照司法院大法官釋字第555號解釋及公務人員保障暨培訓委員會92年1月3日公保字第0919997681號函）。
為彌補我國目前尚無一套完整的軍人權益保障法制，以及軍人不適用「公務人員保障法」等缺憾，國軍設置了「申訴」及「國軍官兵權益保障會」，以維護軍人之合法權益；惟因現行「申訴」及「國軍官兵權益保障會」之運行法規僅為具內部效力之「行政規則」，又「國軍官兵權益保障會」亦僅為一常設「任務編組」，致其法律位階似有不足。
本研究運用「文獻分析法」，藉由蒐集、整理、歸納相關之條約、法令規章、實務見解、研究報告、期刊論文、學位論文及相關論著、網站等資料，對國軍現行申訴及權益保障制度實施評析，並綜合分析研究結果後，提出建議如次：
一、整合國軍官兵申訴及權益保障制度。
二、國軍官兵申訴及權益保障制度法制化。

關鍵字

軍人 ； 公務員 ； 基本權 ； 特別權力關係 ； 行政救濟 ； 申訴 ； 權益保障

並列摘要

Due to traditional “special power relationship” theory, relationship between soldiers and nation is unequal. After World War II, with the impact of constitutional thoughts, “special power relationship” theory has been replaced by “special law relationship”. After the liberated interpretation of Justices of the Constitutional Court, Judicial Yuan, identity prevention and right relief of public officials in Taiwan are no longer restricted by “special power relationship”. According to interpretation No. 430 of Grand Justices of Judicial Yuan, “soldiers are public officials in broad sense and they have functional relationship with nation upon public law. In the condition of legal practice of military command right and reward & punishment right, soldiers’ legal rights shall not be different from other public officials”. Hence, although “Constitution of the Republic of China (Taiwan)” allows the necessary restriction on soldiers’ basic rights upon military duty, it should be based on the conditions regulated in Article 23 of “Constitution of the Republic of China (Taiwan)”: (1) legal base or authorization; (2) military benefits; (3) percentage principle.
In addition, according to Article 16 of “Constitution of the Republic of China (Taiwan)”, when national administration units deprive people of rights by administrative faults, upon “legal administration”, people’s rights shall be protected in or out of administrative system. However, in Taiwan, currently, we do not have complete system of soldiers’ right protection. Only Article 19 of “National Defense Act” suggests “legal relief when soldiers’ rights are illegally violated”; although soldiers are “public officials in broad sense”, they do not obtain the qualification by legal examination and selection and they are not protected by or the subjects of “Civil Service Protection Act”. Thus, the regulations of subjects and procedure protection of “Civil Service Protection Act” cannot be applied to soldiers (please find Interpretation No. 555 of Grand Justices, Judicial Yuan and Gong-Pao-Tzu No. 0919997681 of Civil Service Protection and Training Commission on January 3, 2003).
Since currently, Taiwan does not have complete system of soldiers’ right protection and soldiers are not protected by “Civil Service Protection Act”, national army constructs “appeal” and “Military Personnel Rights Committee” to protect soldiers’ legal rights; however, current laws of “appeal” and “Military Personnel Rights Committee” are “administrative rules” with internal power. “Military Personnel Rights Committee” is the general “unit of mission”. Thus, the legitimacy is insufficient.
This study adopts “literature review” and analyzes current practice of appeal and right protection system of national army by collecting and reorganizing related pacts, legal regulations, practical views, research reports, journal papers, dissertations, related books and websites. Upon the research findings, we propose the following suggestions:
1. Integration of national soldiers’ appeal and right protection system.
2. Legalization of national soldiers’ appeal and right protection system.

並列關鍵字

public officials ； administration relief ； special power relationship ； soldiers ； basic rights ； appeal ； right protection

參考文獻

（二）李惠宗，憲法要義，元照，六版（2012年）。

（五）李麒，由憲法平等權論軍人基本權利之保障，國防管理學院學報，第15卷第2期（1994年7月）。

（二）王晨軒，受刑人處遇在我國特別權力關係之探討，政治大學國家發展研究所碩士論文（2009年）。

（四）李易璋，公務人員保障制度之研究-以公務人員保障法為中心，台北大學法律學系博士論文（2013年）。

（九）陳瑞榮，我國國軍官兵權益保障委員功能評估之研究，淡江大學公共行政學系碩士論文（2006年）。