國會憲政功能有待加強

顧忠華 (公民監督國會聯盟理事長)

立法院近來的表現乏善可陳,一方面朝野立委又發生不文明的肢體和口角衝突,也有立委出言不遜,犯了性別岐視的錯誤,令人對於立委減半後的素質還是不敢領教;另一方面,朝野在本會期開議前信誓旦旦說要儘快通過的陽光法案,完全沒有進度,連續幾個星期在法案審查的效率上掛零,等於一再辜負選民的期待。

其實歸根究底,台灣的國會功能並不符合現代的憲政主義,因為目前憲法既非總統制,亦非內閣制,而所謂的雙首長制缺乏明確的權責對應機制,因此造成總統有權無責,行政院長有責無權的荒誕現象。光就兩岸關係的決策來看,許多進行中的兩岸協商,作為最高民意代表機構的立法院根本無法參贊其事,甚至當王金平院長表示應成立「兩岸事務小組」,並研擬「兩岸簽訂協議處理條例」時,被府院雙方合打了一個大巴掌,認為這是總統職權,立法院無從置喙,連「背書」的資格都撈不到。

據報導,民進黨團日前在朝野協商兩岸議題時,也主張儘速成立兩岸事務因應對策小組,但國民黨團反對,最後折衷為「必要時由立法院長邀請陸委會主委及海基會董事長赴立院黨團協商會議專案說明」。令人不解的是,國民黨團為何不挺王金平院長,卻寧願自我矮化,充當行政部門的擋箭牌,不讓民意可以監督到兩岸協商的黑箱作業?這也顯示國會的憲政功能十分不彰,在一黨獨大時,極易淪為行政部門的「立法局」,無法突顯民意監督的制衡力量。

在民主政治的遊戲規則中,國會乃是非常關鍵的權力核心,不只應當扮演風險預警的角色,更代表民意對於國家大政方針進行理性辯論,乃至可以讓行政部門在對外談判時擁有更多的籌碼。但現在的國會似乎自縛手腳,或只能以插科打諢的方式吸引媒體注意。假若國會不振作起來,擁有主權的人民是不是可以像廢掉國民大會般,也廢掉立法院?反正日後任何重大法案都不妨訴諸公投,讓人民來代表自己,而不是在經濟不景氣的時候,還要看到不爭氣的民意代表作威作福,真是想到就要生氣!

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