貪污犯罪中揭弊公務員保護法制之研究

A Study on Whistleblower Protection Act for Civil Servants Engaged in Corruption Crimes

李偉銓(WEI-CHUAN LI)

指導教授 ： 陳耀祥

國立臺北大學/公共事務學院/公共行政暨政策學系/碩士(2014年)

摘要

近來國內曾發生的重大貪瀆弊案，很多都是透過媒體爆料的方式被公諸於世，而非檢調或廉政體系，此現象開啟國內對揭弊者保護議題之重視，促使政府開始積極推動相關法制建立。雖然，廉政署已於日前初步研擬出草案，但在保護揭弊公務員的議題上，應先檢討我國相關保護規範是否完備，其次再從法制面探討有無訂立揭弊者保護專法之必要，此類討論對未來法制之發展具有啟發性，值得深入研究。
本研究首先檢視相關文獻，闡述保護揭弊公務員的重要性，再透過現行相關保護制度及實務個案之分析，探尋法制上可能存在之問題，最後輔以深度訪談瞭解各界之看法，提出揭弊者保護制度的相關建議，供未來草案訂定或相關法律修正之參考。
本研究發現，從貪污防治及公務員揭弊後可能面臨之風險，可知揭弊者保護制度實具有存在之必要性，然就實務個案分析及檢討現行相關保護制度後發現，我國對於揭弊公務員之保護並不足夠，尤其在身分保密方面較為不足。針對保護不足之問題，就國內的法制現況，訂立專法確實為未來可行的方向，除形式上彰顯政府及法制對於揭弊者保護的重視，具有社會教化的功能外，實質上亦可提供揭弊公務員明確的權益保障，另外，訂立專法亦符合國際的立法發展趨勢。惟較可惜者，乃現行公布之草案仍不夠完善，不足處在於草案中未針對揭弊行為所生之法律責任設有特別免除規定，且對實施報復行為者未施以處罰，最後在保護及權益救濟上，是否有設置保護委員會之必要實有疑義。
根據研究發現，本研究提出四點建議供參。首先，立法機關應儘速訂立揭弊者保護專法，改善我國對於揭弊公務員之保護，進而促進公務員勇於出面揭發貪污；其次，在未來法制的發展上，公、私部門的揭弊者保護應分開立法較為妥適，而現行草案的內容雖大致符合國際上的立法發展趨勢，但仍有修正的空間；再者，因我國立法過程緩慢，為先行建立公務員對於內部機制的信心，未有專法前，應先落實身分保密之規定；最後，為了改善公部門的組織文化，應考慮將弊端揭發納入行政倫理規範中，或明訂公務員揭發貪污之義務。

關鍵字

揭弊公務員 ； 揭弊者保護法 ； 弊端揭發 ； 貪污犯罪 ； 廉政機制

並列摘要

Several major corruption scandals have occurred domestically in recent years, many of which were being exposed to the public by means of media rather than by the prosecutors or anti-corruption system. This phenomenon has opened the importance of domestic whistleblower protection issue and prompted the government to begin actively establishing the relevant legal system. Although the Agency Against Corruption has currently developed a preliminary draft, but before implementing the whistleblower protection act issue on civil servants, we should initially review the integrity of relevant protection norms before deciding whether or not to establish the whistleblower protection act from legal perspective. Such discussion is instructive in future development of legal system and so worthwhile to conduct an in-depth study.
Literatures were first examined by the study to explain the importance of whistleblower protection on civil servants, and an analysis was then performed through using the existing relevant protection system and practical cases to explore the issues that might exist on the legal system. Finally, an in-depth interview was performed by the study to understand the views of all walks of life and relevant suggestions on whistleblower protection system were further proposed to serve as references in future draft setting or relevant law amending.
The study found that it is really essential to maintain the whistleblower protection system while looking into the anti-corruption measures and possible whistleblowing risks encountered by civil servants. And from practical case analysis and after reviewing the current relevant protection system, the study also discovered that the country’s whistleblower protection on civil servants is inadequate, especially in the aspect of identity confidentiality. Based on the inadequate identity confidentiality problem of the current domestic legal system, it is indeed feasible to establish special laws in the future. In formal aspect, besides serving social enlightenment by highlighting the government and legal system to emphasize whistleblower protection, it can also essentially provide a clear protection rights and interests for the civil servants engaged in whistleblowing. In addition, the establishment of special laws is also conformed to the international development trends of legislation. The only pity is that the current draft announcement is still imperfect in that the draft offers no special liability exemption derived from whistleblowing behavior and does not impose penalties for people who take retaliation action. Lastly, it is doubtful whether or not to establish a Protection Committee in protecting and relieving the rights and interests of whistleblowers.
Based on the aforesaid findings, this study has proposed four suggestions for references. (1) The legislature should set up whistleblower protection laws to improve the country’s protection on civil servants engaged in whistleblowing, thereby promoting the civil servants to expose corruption bravely. (2) In future development of legal system, it is more appropriate to separate public whistleblower protection from the private sector. The current draft contents are generally able to go in line with the international development trends of legislation, but there is still room for correction. (3) Furthermore, due to the slow legislative process, we should implement identity confidentiality regulations in priority before setting the special laws to first allow civil servants to gain confidence on the internal mechanisms (4) Finally, in order to improve the organizational culture of the public sector, we should consider bringing malpractice exposure into the administrative ethics, or stipulating the obligations of civil servants to expose corruption.

並列關鍵字

civil servants engaged in whistleblowing ； whistleblower protection act ； whistleblowing ； corruption crimes ； anti-corruption mechanism

參考文獻

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