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  • 學位論文

以政策途徑分析我國家庭暴力防治法立法作為

Analysis of the legislation of the Domestic Violence Prevention Act through policy approach

指導教授 : 黃富源 張治安
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摘要


一、研究緣起 在一個民主開放、民意高漲的時代,要做出一個合乎倫理的、良善的公共政策,民意(公益團體)的參與是人們必須考量的重要因素,我國家庭暴力防治法(家暴政策)的制定過程,是由公益團體啟動,政府部門配合,而形成的公共政策,此種民生法案或政策制定的模式值得探究。 因此,綜觀本論文研究之目的有: (一)社會公益團體催生家庭暴力防治觀念的政策形成過程。 (二)學界經由政策知識為家庭暴力防治法制定所做的貢獻。 (三)立法院中不同意見如何經由協商而達成協議,以致促成政策制定。 (四)探討行政機關如何針對立法院的立法提議,經由部會間之協商達成共識,及與立法機關之間的攻防。 (五)以公共政策理論觀點探討家庭暴力防治法的制定過程,歸結出民間社團主動為民生法案立法的典範。 二、研究方法及過程 本研究中,思考的主軸在於家庭暴力防治法制定過程政策的形成,從應然面看,在今日民主開放,民意高漲的時代,要做出一個合乎倫理的、良善的公共政策,民意的參與是人們應該考量的重要因素;而就事實面而言,在今日民主制度的運作下,行政機關透過立法的方式接受民眾的監督,實為必然的趨勢。是故本研究藉由公共政策的觀念,先介紹並探討公共政策法制化的理論層面,並從立法的研究途徑中就立法政策、立法程序、議會制度及政治與社會的研究取向等四種途徑,以探討民間團體參與國會運作之流程。 本研究係以「紮根理論研究法」(The Grounded Theory�Approach)為本研究方法的理論基礎,至於本研究在第二階段主要所採用的研究方法與進行步驟,包括:文獻分析法、深入訪談法、焦點團體座談法、參與觀察法等。 研究者在家庭暴力防治法制定的過程中,時任立法委員,並兼任現代婦女基金會董事長,因此對於婦女安全議題相當重視,並將其視為己任。因此,從起草家庭暴力防治法,至將法案送入立法院三讀,此一段過程,研究者是一位觀察者,更是一位參與其中的參與角色者。 三、重要發現 本研究在思維上即在於瞭解未來民生法案之進入議題程序之程序與過程問題,並以公共利益為出發點,考量未來相關民生法案之發展趨勢,以前瞻性的看法探討其進入立法程序之流程與民間團體推動立法之環境、組織等相關問題,提供可行之政策規劃參考。因此,在法案法制化之過程中係以: (一)「政策問題分析」、「政策規劃」為醞釀期; (二)「政策法制化」為制法期; (三)「政策執行」為推動期; (四)「政策評估」為精進期。 四、主要建議事項 本研究再亦提及公共政策模式面上,確實可從: 第一、女性從政必要性議題之重開; 第二、廣徵民意及家庭暴力防治法之優勢; 第三、漸進理性之家庭暴力防治法政策形成; 第四、民間團體推動法案之先驅; 第五、公共政策模式之適用與解析等各方面加以解析。 是故,本研究對於未來相關民生法案之法制化過程,提出具體建議如下: (一)應善用公益團體聯盟領導人在法案制定之策略與角色扮演。 (二)應舉行公聽會,以廣徵民意,同步獲得社會輿論支持。 (三)政府主管部門應加強法案的推動與遊說。 (四)政府應掌握政策窗之開啟與社會的風氣、觀念之影響。 (五)未來立法應善用政策鐵三角理論並邀請政策企業家扮演法制過程之重要角色。 (六)立法時可適用政策企業家掌握法案法制化之動員方式。 (七)立法過程中公益團體是可資運用之攻守策略工具。

並列摘要


Abstract I.Reason for research Public opinion plays an increasingly significant role in today’s democratic society. It is essential that we take public opinion (non-profit organizations) into consideration while working on an ethical and thorough public policy. The legislative process of the Domestic Violence Prevention Act in Taiwan was first initiated by non-profit organizations and later followed up by the government. This paper looks into this approach in the making of public policies. Therefore, this research aims to find out: 1. How non-profit organizations initiate ideas concerning the prevention of domestic violence and formation of the policy. 2. What contributions the academia has made towards the legislation of the Act through their policy knowledge. 3. How different opinions within the Legislative Yuan reach an agreement through negotiation and pushed for legislation. 4. Examine how the administrative branch reach consensus through departmental negotiations based on the propositions made by the legislative branch and the bargaining process between the two branches. 5. Examine the legislative process of the Act from a public policy perspective and conclude a pattern for non-governmental organizations in initiating bills concerning people’s livelihoods. II.Research methods and process The formation of the legislative process of the Act is the focal point of this research. Public opinion should be taken into consideration while planning an ethical and comprehensive public policy in today’s democratic society, where public opinion plays an increasingly critical role. Thus, under the modern democratic structure, it is inevitable that the administrative branch would be monitored by the public through legislation. Therefore, this research first investigates the theoretical aspects of legalizing public policies from a public policy perspective. Then it goes on to examine how non-governmental organizations may take part in the Legislative Yuan from four research approaches including legislative policies, the legislative process, the parliamentary system, and a social and political research aspect. This paper adopts the Grounded Theory approach as its theoretical base. Other research methods used in the second stage include documentary analysis, in-depth interview, focus group, and participant observation. The researcher was a member of the Legislative Yuan as well as the chairwoman of the Modern Women's Foundation at the time when the Act was drawn up. The researcher places great emphasis on the safety of women and takes it up as her personal cause. She has not only observed but also participated right from the drafting of the Act through to the third reading passed by the Legislative Yuan. III.Important findings The central idea of this paper is to understand how future bills related to people’s livelihood proceed into the Legislative Yuan’s discussions and problems that may arise during this process. Therefore, starting from a public interests’ point of view, taking into account the future trend for bills concerning people’s livelihood, and adopting a forward-looking perspective, this paper examines how bills of the aforementioned nature enter the legislative process. It also discusses the problems regarding the situation non-governmental organizations face in promoting the legislation of bills and organizational issues. Then it moves on to propose several feasible policies recommendations. The several stages during the legalizing process are as follows: 1. The incubation period: ‘policy problem analysis’ and ‘policy planning’ 2. The legislative period: ‘policy legalization’ 3. The promotion period: ‘policy implementation ‘ 4. The polishing period: ‘policy assessment’ IV.Major suggestions We could discusses the following aspects from a public policy model perspective: 1. The necessity of women’s participation in politics. 2. The advantage in gathering public opinion and the Domestic Violence Prevention Act. 3. The gradual formation of a rational Domestic Violence Prevention Act policy. 4. A forerunner for the promotion of legal acts by non-governmental organizations. 5. The feasibility and analysis of all aspects of the public policy model. Thus, the following suggestions are made regarding the future legalizing of bills related to people’s livelihood: 1. To make good use of leaders of non-profit organizations and the roles they play in the legalization process. 2. Hold public inquiry meetings to gather public opinion and win public support. 3. The authorities should put more effort to set bills in action and lobby for support. 4. The government should use the opening up of policy windows as an opportunity to influence existing social concepts and trends. 5. The legislation process should make good use of the iron triangle theory and involve policy entrepreneurs to play important roles in the future. 6. The way policy entrepreneurs mobilize support for legalization of bills could also be applicable in the legislation process 7. Non-profit organizations could be a strategic tool for the bargaining process during legislation.

參考文獻


高鳳仙(2000),家庭暴力防治法規專論,台北:五南圖書。
李鴻禧(1986),「現代議會制度之生理與病理之比較法研究」,台大法學論叢第十六卷第一期,第七十一至八十六頁,台北:國立台灣大學。
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