政治獻金法施行狀況與問題研究－以立法委員為例

The Research on The Implementation and Problems of Political Contributions Act －Taking Lawmaking Member of the Congress as an Example

葉可超(ko-chao yeh)

指導教授 ： 許春金

國立臺北大學/社會科學學院/犯罪學研究所/碩士(2009年)

摘要

近年來台灣整體貪腐指數升高，不僅傷害政府形象、妨害施政作為，更讓國家整體競爭力下降，損及民眾基本權益，致各政黨或候選人莫不於政見中，高舉「清廉執政」、「反貪促廉」等主張，但實際成效及民眾感受顯然落差極大，「政治獻金法」施行迄今已逾四年，其間並舉行多次選舉，法令施行檢討已有較為客觀之態樣及數據。本研究目的試圖就下列問題進行相關研究探討：
我國現行「政治獻金法」之法律規範，是否符合公平與民主之原則。執行後之利弊得失及實際執行遭遇之問題；本法對我國選舉風氣、貪污預防等情況之影響狀況如何；法令施行之狀況，遭遇的主要問題，並藉由研究所得瞭解法令疑義、執行障礙及其他實務遭遇之問題，對本法提出改善意見。
本研究採「官方統計二手分析法」及「訪談法」進行。官方資料來源，包括立法院、監察院、內政部及司法單位等四年多來，與政治獻金法較有關之各項統計或個案資料，並實際訪談監察院、內政部主管官員各1人、調查局調查員1人及立法委員3人，就其個人參與政治獻金法之法令研訂、適用對象、受理審核及違法查處等各層面，與其進行深入之訪談，並以研究者個人經驗，與受訪者做雙向互動式的意見交換，從中獲得諸多資訊，確實較一般的單向式訪談，來得更具深度及更為真確，以追求本研究之誤差範圍得以減至最少，呈現最為真實的樣貌。
研究中分別就法條之疑慮、爭議部分進行探討；對主管機關解釋之繆誤予以辯證；對各黨派立場不同所產生的對立及考量，亦蒐集具體資料分析；對專家學者具體分析建議及國外重要法例，嘗試提供較有系統的彙整。
實證研究後主要發現：整體「陽光法案」建構並不完整；政黨及政治人物普遍並不重視；經常將「貪污」犯行以「政治獻金」掩飾並卸責，污名化政治獻金一詞；各黨派不同立場對本法的詮釋亦有不同思維；立委普遍以自身利益考量，動輒修法為自己「解套」；執行部門缺乏足夠人力及實務經驗得以有效審核政治獻金收受及開支，流於被動及靜態；由於大部分的處罰係行政罰，故嚇阻力道不足，部分行為罰又不符「比例原則」，造成當事人普遍認為違反法令並非違法，而係「行政不法」；行政部門「本位主義」或配合情形不佳，增加執行實務及審核上之難度；剖析違法態樣，目前違法項目，幾乎集中於「收受」獻金之過程等。
而本研究中，將訪談之內容，分別依據犯罪學中重要之理性選擇、亂迷及中立化技術理論來加以剖析，具有重要參考意涵。
依據研究之發現，綜合各專家學者、立委諸公、行政官員及輿論等資訊，提出數項建議意見，並特別依據修正之迫切性不同，提出「建議儘速修正之事項」及「後續調整之建議」，最後依據犯罪學角度對法令修正提出建言。最後並提出後續研究幾項具體可行建議。

關鍵字

政治獻金 ； 貪污

並列摘要

In recent years index of Taiwan is rising constantly, which not only harm the image of government but also interfere in administration , furthermore , corruption make competitive strength of whole nation descend and damage people’s rights ,as a result , each political party and candidate claim "honest of ruling", " The punishment grafts " in their political views . however , the result is obriously different people’s expectation , " Political Contributions Act " implements up to the present over for four years , The in the interval has already held many elections , Ordinance's implementing self-criticism has already had more objective data . This research purpose tries the following problem to carry on a related research study:
The standard of my country"campaign-fund method" whether principle according to equity and democracy . The problem of merits and demerits and situation after carrying out ; This law elects the influence of custom, corruption prevention...etc. on my country how ; The condition of ordinance enforcement , The key problem of situation , Also gain understanding the ordinance ill-defined place by the research, performance obstacle and other situations of problem , Put forth improving an opinion to this act .
This research adopts "the authorities statistics a second-hand analysis method" and"interview method" to carry on . Official data source , includes Legislative Yuan , Control Yuan , Ministry of Interior and judicatory unit etc. for more than four years , With campaign-fund method more relevant of various covariances or individual case data , Also physically interview a Control Yuan, Ministry of Interior supervisor each one person of officials and Investigation Bureau one investigator and lawmaking member of committee is 3 people , It the ordinance of personal participation campaign-fund method discuss and set up, apply object, accept to examine and illegally check an is each level of etc., Carry on a thorough interview with it, Also with the personal experience of researcher , Do a double with interviewee to exchange toward the interactive opinion , Acquire many information from it , The really a little bit generally one-way type interviews , Come have depth more and trueer real , Canning reduce to by the error margin scope that pursues this research is the least , Present the trueest appearance.
In the research distinguish the worry in uncertainty of method, controversy part carry on a study; The mistake explained to the supervisor organization gives polemic; also collect the concrete data to analysis the opposition and consideration that result from the different positions of each party ; attempting to proride the systematic compilation to the Concretely analyze suggestion , which are proposed by the experts and the scholars , and foreign important legal statutes .
The actual research mainly finds behind : Whole"sunlight bill" construction isn't complete ; Political party and political person widespreadly don't value ; Usually will "corruption" a conduct is covered up with"political donate" and shirk responsibility , The infamy turns campaign-fund one phrase ; The annotation of each party groupings different position to this method also includes different thinking ; Legislator widespreadly with from already the benefit consider , Easily fix the method as oneself"solution set" ; Carry out a section to lack of enough manpower and actual situation experience Can effectively examine campaign-fund to receive and expenditure , Becoming is passive and static state ; Because greatly part of punishments is an administration to punish , Past determent strength shortage , Parts of behavior punish and not agree with "comparison principle" , Make the party concerned widespreadly thought that acting against an ordinance isn't illegal , And is act against "administration provision" ; "Self-centered" of the executive branch or concert situation are poor , Increase a performance actual situation and examine the difficulty of top ; Analytical illegal Tai kind and currently break the law item , It is more almost concentrated than to"receive" the process of endowment etc..
In this research , Distinguish the content of the interview according to the criminology win the important ories analysis , Include " Techniques of Neutralization Theory " and" anomie theory " and" Rational Choice " , Have the meaning of the importance reference.
According to the detection of research , Informations such as comprehensive expert's scholar, lawmaking member of committee, public official and media etc., Put forth a several suggestion opinion , The end also puts forth follow-up to study several item concretely can go a suggestion.

並列關鍵字

Political Contributions ； corruption

參考文獻

許春金2006《人本犯罪學》台北：三民書局。

許春金2007《犯罪學》台北：三民書局。

黃宗昊2004〈台灣政商關係的演變：歷史制度論分析〉，載於《問題與研究》，第43卷第4期，頁35-67。

蔡德輝、楊士隆2001《犯罪學》台北：五南書局。

官淑媛1994《日本政治資金捐獻之研究》淡江大學日本研究所碩士論文。