香港申訴專員之行政監察角色暨對我國之借鏡

Administrative Supervisory Role of the Ombudsman Hong Kong and to Learn from the Republic of China

鄧學良(Shuai-Liang Deng) ； 陳智暄(Zhi-Xuan Chen)

《社科法政論叢》 2期 (2014/03) Pp. 39-92

https://doi.org/10.6268/RSSLP.2014.2.2

摘要

為防止行政權的獨大與腐化，組織體皆成立行政監督制度，以監督、控制行政機關。台灣地區（我國）現行體制，得區分外部監督及內部監督之行政監督機制，外部監督體系包括監察、立法、司法、考試權甚至公私協力下之媒體監督、群眾監督等相關主體；而政風體系、廉政署、檢察體系、調查局等，本研究認為係行政機關內部組織，從社會現象觀察根本毫無監督能力，而內部監督係在特定情況，常態具有外部性的監督主體，短期進入到行政領域進行監督而言，社會面方法論上，針對2010年起台鐵承辦5工程案，爆發副局長帶隊喝花酒致國庫損失3億元，學者陳耀祥於2013年2月28日，蘋果日報頭版中，認為組織內指揮管理為貪腐主因，須透過外部監督與內部稽查力量，此與本研究見解一致令人雀躍，也顯現出行政監督制衡之重要性，其中行政申訴扮演關鍵性之角色。2012年，香港國際透明組織貪腐印象指數排名14，相較於大陸地區排名80，同在中共政權領導下，何以有如此差距之反貪腐表現，關鍵在於除了代表單一獨立監察機關─廉政公署外，在行政申訴上亦有獨立申訴組織─香港申訴專員，係符合行政法第五大架構─行政監督中，行政監督獨立性原則，因此兩者整合成一股強大行政監察力量，而能夠以組織與財務獨立性，避免組織隱蔽下之黑幕空間，以及政治力與遊說等私益性力量之介入，此為大陸地區以黨領政，與臺灣地區層級低指揮管理充斥狀態所不及。如何增強組織內外之行政監督力，並將香港申訴專員之行政法制之五大架構運用我國監督職務，係本研究之目的。而以行政法五大架構之行政監督總論而論，香港申訴專員凸顯出《國際反貪腐公約》規範下，行政監督帝王條款─「行政監督獨立性原則」之重要性，就法政策論與行政過程論而言，行政救濟與行政監督（察）之結合，更是我國當代行政法學理上應該重視與釐清之處，而如何以外部監督之申訴，開啟行政監督權限之發動，是香港經驗對於我國監察實務之重大啟發。

關鍵字

香港申訴專員公署 ； 監督獨立性原則 ； 行政監督 ； 申訴 ； 貪腐 ； 救濟

並列摘要

In order to prevent the dominance of the executive power and corruption, organized body is true administrative supervision system to monitor and control the executive. Taiwan (country) the current system, have to distinguish between external supervision and internal supervision of the administrative oversight mechanisms, external monitoring system including monitoring, legislative, judicial, examination and even public-private partnership under the right media monitoring, supervision by the masses and other related entities; while the political wind system, Independent Agency, the prosecutorial system, Bureau of Investigation, etc., this study suggests that the internal organization of the administrative organs, social phenomena observed are totally from the oversight capacity, and the internal oversight system in a particular case, the norm has a short-term external oversight body into administration areas of supervision, the social aspects of the methodology, the contractor for the 2010 five works from the TRA case, deputy director of the outbreak led to accept pornography banquets treasury losses caused 300 million yuan, scholar Chen Yaoxiang command and management within the organization that is the main cause of corruption shall be made through external supervision and internal audit force, this research insights consistent with the exciting, also showed the importance of administrative checks and balances, which played a key administrative complaint roles.In 2012, Hong Kong Transparency International Corruption Perceptions Index ranked 14, compared to mainland China ranked 80, with the leadership of the Chinese Communist regime, why there is such a gap in the anti-corruption performance, the key is on behalf of a single independent supervisory authority-outside the ICAC , there is also the administrative complaint-independent complaints organization Ombudsman, the Department of administrative fifth largest architecture-meet administrative supervision, administrative supervision of the principle of independence, and thus are integrated into a powerful force of administrative supervision, and therefore still enough to organize and financial independence, to avoid hidden under the shady space organizations, and political power and private interest of the lobbying power of intervention, this is the mainland party rule, with low levels of command and management in Taiwan flooded the reach of the state. How to enhance the organization and beyond the power of administrative supervision and administrative structure of the Ombudsman's use of the five supervisory duties is the purpose of this study.In the five administrative law General administrative supervision framework is concerned, the Ombudsman highlighted the norms of international anti-corruption conventions, administrative supervision imperial terms-the importance of the principle of independence of administrative supervision on law and administrative process of policy in terms of, administrative relief and administrative oversight (the police) are combined, it is our contemporary administrative law should pay attention to and clarifying the doctrinal office, and how to appeal to external supervision, administrative supervision authority on the launch of Hong Kong's experience in the practice of monitoring major inspiration.

並列關鍵字

Office of the Ombudsman of Hong Kong ； The principle of independence supervision ； Administrative supervision ； Appeal ； Corruption ； Relief