從法國法論獨立行政機關的設置緣由與組成爭議：兼評司法院釋字第613號解釋

The French Views on the Reasons for Establishing Independent Administrative Agencies and the Controversies over Their Composition: With Comments on Interpretation No. 613 of the Grand Justices Council

陳淳文(Chwen-Wen Chen)

《臺大法學論叢》 38卷2期 (2009/06) Pp. 235-292

https://doi.org/10.6199/NTULJ.2009.38.02.05

摘要

為創設獨立行政機關，在我國曾引起極為激烈的憲政爭議，大法官也針對此問題作出司法院釋字第613號解釋。但在該號解釋作出之後，一方面在實際政治運作中並沒有真正平息爭議；另一方面在解釋內容上，也有諸多可以檢討之處。本文即以該解釋之核心爭議為討論焦點，深入探討獨立行政機關的組成問題，及其與行政一體及責任政治的相互關係。
從比較法的觀點來看，西方民主國家也都有設置獨立行政機關的需要，並因不同的憲政體制而產生不同的爭議問題。本文以與我國現行憲法最為接近的法國憲政體制為比較檢討對象，分析法國憲法實務針對獨立行政機關問題所作出的解決途徑。而人事任命權不僅不曾成為法國法上的爭議核心，法國法甚且發展出多元的人事任命模式。
具體的法制實務固然可以增廣視野，但對問題背景與其發展趨勢的分析；更有助於全面瞭解爭議問題。故本文於文首特別介紹獨立行政機關的設置背景與其組織特徵，並進一步指出我國現行獨立行政機關的設置爭議，主要是停留在民主權力競爭之場域裹。然而促使獨立行政機關發展的因素，卻還有諸如提升國際競爭力與強化人權保障等其他價值之追求；這是我國迄今仍缺乏，且未來亟待體認的部分。

關鍵字

獨立行政機關 ； 獨立機關 ； 行政一體原則 ； 層級原則 ； 責任政治原則 ； 司法院釋字第613號 ； 人事任命權 ； 行政保留 ； 行政權之核心領域

並列摘要

The institution of independent administrative agencies in Taiwan has been a subject of intense controversy, with the Justices penning Interpretation No. 613 in response. But the interpretation did not seem have its affect on quelling disputes that arises in practical operation of politics, and its contents seems to be lacking at various points. This article will focus on the core controversies of this interpretation, with problems in the composition of independent administrative agencies, the principle of administrative unity, and the doctrine of political accountability.
From the perspective of comparative law, Western democracies, in their need to establish independent administrative agencies, are also plagued with various difficulties due to their respective constitutionalism. This article will take France, as their constitutional make-up closest resembles ours, and discuss their solution to the application of independent administrative agencies under the constitution. Under the French constitution, there had never been any controversies over the power to appoint personnel; they even developed multiple models of appointment.
Although concrete institutions may broaden our perspectives, the analysis of backgrounds and developmental trends would be more helpful in grasping the entire scope of controversies. Therefore this article will begin with the introduction of institutional backgrounds and organizational characteristics of the agencies then proceed to point out present disputes over the establishment of independent administrative agencies, which is mainly the contention for democratic power. Other areas, such as pursuit of international competitiveness and the protection of human rights, are still wanting for the development of independent administrative agencies in the future.

並列關鍵字

independent administrative agency ； independent agency ； the principle of administrative unity ； the principle of hierarchy ； the doctrine of political accountability ； J.Y. interpretation no. 613 ； the power to

參考文獻

Murray J. Horn著、浩平、蕭羨一譯(2003)。公共行政之政治經濟學：公部門的制度選擇。台北:商周。

Murray J. Horn (author),Ping Hao,Xian-Yi Xiao (trans.)(2003).The political economy of public administration: Institutional choice in the public sector.Taipei:Business Weekly.

司法院公報

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