從政治參與觀點探討公民投票的立法建制

To Explore the Establishment of a Legal Basis for the Conduct of Referendums from the Perspective of Political Participation

林水吉(Shui-Chi Lin)

《通識研究集刊》 8期 (2005/12) Pp. 107-147

https://doi.org/10.6488/JCGE.200512.0107

摘要

一九六○年代以來，參與式民主理論(Participatory Democracy)興起，強調使用直接民主制度中人民參與的方式來彌補代議制度的缺失，其中公民投票成為完善其理念的重要工具。公民投票可以增進決策正當性，擴大人民參與，提昇人民的民主素養，有效解決紛爭等功能，成為當代學界研究重點及政界關心的重要焦點。
蘭尼認為實踐民主終極目標之一，在於極大化公民的潛在價值，而公民在決策過程中的直接參與是發展公民潛在價值的最佳方式。
在公民社會網絡裡，公民可以充分對話、交流及參與，對社群裡的公共事務表達意見、表達關心，是公民政治參與的最基本場域，也是形塑公民社會的基本條件，而所謂「民主化」正是意指公民權或公民地位恢復與擴張的歷程，誠如杭廷頓所強調的「線型模式」(Linear model)意指「從公民權利延伸到政治權利，再擴展至社會權利，一路穩健進展，循序漸進地發展」，說明民主化是一連串的社會、政治、經濟變遷，邁向民主的一段歷程。
公民投票基於：主權在民、大眾諮詢、政治平等、多數原則等成就其理論基礎，而公民投票的重大功能正是：l.以正當性彌補合法性的不足；2.扮演議程設定的角色；3.防止決策機關的專擅與濫權；4.化解政策過程中的利益衝突；5.提昇公民的政治參與。因此，公投立法建制的核心意旨，即在強調人民的政策參與、人民的政策涉入，及人民的政策責任，以喚起人民的政策向心力，塑造人民當家作主的信念，透過公民投票過程表達最高的民意歸趨，對民主深化及民主鞏固產生深遠的影響。
同時，本文提出公民投票的立法建制評析，並祈望能達到下列目標：l.強化歷史借鏡；2.重塑雙元民主體系；3.樹立國會的優質立法；4.建構制度標竿形塑組織學習；5.重建視框有利制度變遷。總之，公投立法建制誠屬不易，相關主事者（政黨精英或立法者）的宏觀、前瞻、慎思及內省的作為，可以成就往後制度修改或更調的基石，當社會上累積龐大的能量，提出興革的信號，相關主事者必須擔負起回應人民心聲的政治責任，讓公民政治參與的意願不斷地揚起，達致制度建構或更調的目標，完備政治良善的境地，是公民投票立法建制的原始初衷。

關鍵字

參與式民主理論 ； 公民投票 ； 雙元民主體系 ； 線型模型

並列摘要

Since its rise in the 1960s, Participatory Democracy has been widely studied and discussed. It is a theory that emphasizes the importance of using the method of participatory democracy to compensate for the shortcomings of representative democracy. Yet the most important tool to practice participatory democracy is the conduct of referendums. Referendums can be held to enhance the legitimacy of policy and solve contentious issues. The conduct of referendums also has the advantage of broadening citizenry participation and arousing the sense of democracy among the people. Because of all this, referendum has become an important subject of discussion in the political as well as the academic circles these days.
In the view of Ranney, one of the ultimate objectives of practicing democracy lies in maximizing the potential value of citizenry. And popular participation in the process of decision-making is the best way to realize that potential value.
In a civil society, the people may freely discourse, exchange views and express their concerns over public issues. A civil society is the basic venue where political participation can take place. On the other hand, free participation and expression is the prerequisite for the development of a civil society. The so-called ”democratization” refers to the process of the expansion of civil rights or civil status. As stressed by Samuel Huntington in his Linear Model theory, democratic development is a gradual evolution of powers from civil rights, political rights to social rights. This also suggests that democratization is a series of social, political and economic changes-a long march to democracy.
The conception of referendum has its theory originate in these principles: Sovereignty is vested with the people; public consultation; political equality and the rule of majority. Referendums can be held to fulfill these purposes: to supplement the insufficiency of legality; to play the role in setting agendas; to curb dictatorship and power abuse by politicians; to intervene in areas where official conduct may involve conflicts of interest; to advance political participation by the people.
Therefore, the principal aims of establishing referendum legislation are to foster people's involvement in public policies, instill the sense of responsibility for civil participation and cultivate the belief that people are their own masters. The exercise of referendums is the expression of people's wishes to the maximum and will have far-reaching effects on the deepening and consolidation of democracy.
This article intends to provide an appraisal of referendum legislation, hoping to achieve the following objectives: 1. Provide a historical viewpoint; 2. Create a pluralist democratic system; 3. Improve legislation; 4. Build a system model and promote group learning; 5. Create a framework conducive to system changes. In sum, it is not easy to enact referendum laws. The legislation's sponsors (the political and legislative elite) must be conscientious and forward-looking. The law must serve as a keystone on which future changes can be made. When social momentum builds up and calls for reforms begin to emerge, political leaders and policymakers must respond positively. This would help raise the willingness of the people to participate in civil activities. All in all, a well-designed legal framework is of great importance to the conduct of referendums.

並列關鍵字

Participatory Democracy ； Referendum ； Dual Democratic System ； Linear model