不在籍投票法律爭議之反思與建議

我國法規對於選舉人資格之規定，以戶籍住址主義為主、實地居住主義為輔。基此，有論者認為實施不在籍投票應先透過制度確認選舉人實為「在籍」，亦即是在某選舉區內有居住事實，也就是先排除掉幽靈人口，才能正確地實施不在籍投票。而確認之方法，則是「須令選舉人提出繼續居住一定期間之證明」。強調選舉人實地居住的現行制度，乃以住民意識之形成、命運共同體與資源分配的利害關係作為理論依據，但這些理據實有商榷之處。而且，令選舉人提出繼續居住一定期間之證明，有增加行政機關作業時間以及民眾困擾之虞，還有「有罪推定」、「不當限制選舉自由及遷移自由」之疑慮。基於憲法保障選舉權之觀念及選舉自由之理念，本文建議在考量行政作業成熟度與社會普遍接受度的基礎上，分兩階段推行以選舉人選擇主義為選舉人資格之缺席投票。第一階段，參考德國的選舉人選擇主義，未另行登記為戶籍地之外某一選舉區之選舉人，則以其戶籍登記地推定為其投票處所。第二階段，用選民登記制度，完全由選民自由選擇行使選舉權之選舉區。與第一階段不同之處在，如果選民不去登記選擇選舉區，選務機關不會以其戶籍登記地推定為其投票處所，而喪失在選舉日行使投票權之機會。

關鍵字

不在籍投票缺席投票；選罷法；選舉人資格；幽靈人口

並列摘要

Taiwan's regulations on the qualification of a voter focus mainly on one's registered address, and less on where one really lives. Hence, some scholars argue that before the absentee voting system is carried out, it shall be first clarified whether one really lives in a constituency. In other words, the ”phantom populations” shall first be dealt, and then the absentee voting system can be correctly brought into practice. To reconfirm one's really living in a constituency, the voter need to adduce his/her own evidence.The current institutions emphasizing the real accommodation of a voter builds its theoretical basis on the formation of resident identity, community of destiny, and interests of resource allocation. However, these theories are questionable. Besides, it may cost much time for the administration and add burdens to a voter by asking one to adduce evidence of one's real accommodation. Such regulation may also lead to questions about ”presumption of guilty” and ”improperly limiting the freedom of election and freedom of movement.”Basing on the ideal for freedom of election, this article suggests a two-step absentee voting system focusing on voters' own choice, when the administration is mature and the society accepts. At the first step, following German system which allows voters to register according to their own wish. Those who have not registered to be voters in a constituency are then assumed to be voting in the constituency covering their registered address. At the second step, the voter registration system is introduced.Voters can freely choose the constituencies which they want to vote. Unlike the first step, the election administration will not assume that a voter is going to vote at the constituency covering his/her registered address, if he/she does not register which constituency they want to vote in. He/she then is to lose the opportunity for carrying out the right to vote.