立法過程中幕僚支援系統角色與功能之探討

Exploring the Roles and Functions of Staff Supporting System in the Legislative Yuan

葉嘉楠(Chia-Nan Yeh) ； 高鴻鳴(Hung-Ming Kao)

《中華行政學報》 5期 (2008/06) Pp. 205-243

https://doi.org/10.6712/JCPA.200806_(5).0010

摘要

本文係比較立法院法制局、預算中心及國會圖書館與美、日兩國國會幕僚支援系統的角色與功能，並透過深入訪談法，來研析目前我國立法院幕僚支援系統之功能，根據24位受訪者意見彙整統計結果有以下發現：1、在功能方面：法制局與預算中心的主要功能為「立法輔助」。2、在功能是否發揮方面：除國會圖書館外，法制局與預算中心之功能尚待改進與強化。3、在功能未發揮原因：以「專業幕僚人力不足」及「行政與立法部門間資訊不對等」等兩項，而「空間及規模設備不足的問題」是國會圖書館功能缺失的主因。4、在角色方面：以「具備專業或專家的角色」、「輔佐立法委員立法問政的智庫」及「立場必須中立」等三項為重要結果。5、受訪之立法委員及國會助理中，法制局及預算中心的研究成果及國會圖書館的資訊建置，對法案審查是有幫助。6、對於立法院立法幕僚支援系統未來發展方向，以「修法調整組織與增加人力」為主，其次為加強和政府、民間機構及學術界交流。7、立法委員對專業幕僚沒有需求原因，首先是立法委員本身所關心的是當選連任問題，包括選區服務、選舉制度、政黨、派系、選舉風氣及立法問政成績等。其次是受目前立法院審議制度的影響，包括議程與議事效率問題、立法院委員會未能建立專業審查機制、以及黨團協商制度凌駕委員會的專業審查等。
本研究之建議：1.增加員額預算。2.加強與民間機構及學術界交流，並針對當前重要議題定期舉辦研討會，以減少對行政部門的依賴。3.釐清法制局的定位問題。4.專業幕僚單位應針對委員的需求，主動、適時提供有參考價值的資料。5.將國家圖書館改制為國會圖書館。6.建立委員會專業審查機制，以強化其專業性。7.改進黨團協商機制。

關鍵字

立法支援系統 ； 國會幕僚 ； 立法院

並列摘要

This study compares roles and functions of staff supporting systems (Organic Laws and Statutes Bureau, Budget Center, and Library of Congress) in the legislative process among Taiwan, United States and Japan.
According to the opinions from the 24 interviewees, we find out the following results: 1. Legislative assistance is the most important function of Organic Laws and Statutes Bureau and Budget Center. 2. Due to the insufficiency of professionals and the information asymmetry between executive and legislative branches, functions of the Organic Laws and Statutes Bureau and Budget Center still need to be improved, except the Library of Congress. Lack of space and equipment is the main problem of Library of Congress. 3. Roles of staff supporting systems should play as follows: professionals or experts, legislative assistance as a think tank, and unbiased viewpoints. 4. Future developments of staff supporting systems are: reorganization and increasing the professional staffs and strengthening the interactions among government, private sector, and the academic communities. 5. Research papers from the Organic Laws and Statutes Bureau and Budget Center are helpful to legislators. 6. There are two reasons why legislators have no demand on professional staff: First, the influence of reelection, including the precinct service, electoral system, political party, faction, election atmosphere and the performance of legislation. Second, present deliberation system of Legislative Yuan, including the problems of agenda-setting and legislative efficiency, incapability of establishing professional deliberation system, and the influence of party caucus negotiation exceeding the committee's professional deliberation.
This study provides the following suggestions for staff supporting systems: 1. Increasing the budgetary personnel. 2. Strengthening interactions between staff supporting systems and the academic communities. 3. Clarifying the status of Organic Laws and Statute Bureau. 4. Providing valuable information and advice for legislators automatically and in time. 5. Transforming the National Library into Library of Congress. 6. Establishing professional deliberation system. 7. Improving the party caucus negotiation system.

並列關鍵字

Staff Supporting System ； Congress Staff ； Legislative Yuan

參考文獻

王芳雪(1988)。日本國立國會圖書館研究。台北:文史哲。

方清風(2005)。國會預算局(COB)的角色與功能。立法院院聞月刊。33(2)

方清風()。

方清風、謝碧珠(2005)。國會對預算的審查與監督機制。立法院院聞月刊。33(2)

方清風、謝碧珠()。