“少數政府”下總統的權力運作和突圍策略：台灣半總統制經驗的探討

The Management of President's Power under Minority government: The Experience of Taiwan's Semi-presidentialism

陳宏銘(Hong-Ming Chen)

《中華行政學報》 4期 (2007/06) Pp. 157-182

https://doi.org/10.6712/JCPA.200706_(4).0009

摘要

這篇研究主要探討的問題是，在台灣半總統制下，民進黨執政時期「少數政府」（或謂「分立政府」）在存活之餘，採取了何種突破國會困境的治理策略？由於現有研究大多以立法院為分析對象，鮮少探討總統的權力運用和領導策略，本文希望能補現有文獻之不足。研究發現，陳總統在第一任之任期中，並無明確的策略以突破國會中的困境，但約略可歸納出幾種行為模式，第一，在中央政府的籌組上，讓步空間較小；在重大政策的推動上，陳總統的作法傾向在兩極之間擺盪，有時堅持民進黨立場，並訴求民意支持為後盾，其後因遭逢阻力和挑戰而立刻轉向妥協；陳總統嘗試運用各種許多非正式的決策機制，試圖建構執政團隊的菁英聯合和政策協調與整合，但看不出對於外部的社會聯合與國會多數的聯合有明顯效果。陳總統的各種權力運用並無直接處理立法院中多數的問題，未能根本解決「少數政府」在國會的困境；相對的，由於在野黨在朝野對立上亦乏積極策略，致少數政府存活而行政和立法間之僵局頻仍。

關鍵字

半總統制 ； 少數政府 ； 分立政府 ； 總統 ； 國會

並列摘要

When the president (or the ruling party) and the parliamentary majority are not of the same party under Taiwan's semi-presidentialism, then the ”minority government” or ”divided government” will be formed. This paper tries to explore the experience of the operation of minority governments during the President Chen Shui-bian's the first tenure in office from 2000 to 2004. Though the minority governments could be formed successfully without challenge of no-confidence vote from the oppositional parties, the disputes, conflict and even the deadlock between the government and the legislature have happened frequently. Thus, what strategies the president and government have adapted to overcome this severe situation? Since most studies on this topic often focused on the legislative arena without discussing the president's governing strategies very much, the author here try to analyze the president's constitutional role and power, as well as his political leadership. In terms of the president's power, it includes the president’s constitutional and non-constitutional power. This paper shows that though the president did try to construct certain type of informal governing coalition outside the legislature, he still lacks any successful strategies to directly deal with the challenge of minority situation in Legislative Yuan.

並列關鍵字

semi-presidentialism ； minority government ； divided government ； president ； legislature

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