誰在毀壞民主憲政基本原則?

2010-3-5
@劉靜怡

民主憲政體制主要意旨之一,在於透過司法權的運作保護人民基本權利,最高行政法院判決撤銷中科三期七星基地之環評審查結論,一月底已告終局確定,然而,環保署除了自怨自艾是在幫前政府收拾善後之外,不思發揮環保主管機關應有的把關功能,卻在五大報刊登廣告大肆批評法院判決「無效用、無意義及破壞現行環評體制」,既捍衛已遭司法權否定的行政裁量結果,也以公帑散播錯誤的法治觀念。行政院也抱持「不宜貿然停工」的立場,任由目的事業主管機關國科會讓「已無環評審查結論為依據」而「違法進行」的工程,繼續進行。試問:口口聲聲誓言「依法行政」的政府,是不是正在做藐視民主憲政原則的最惡劣示範?

根據上述判決內容,最高行政法院撤銷環評的主要理由,明明是因為「本案確有對國民健康及安全造成不利影響之虞」,而環保署則是在「開發單位未提出健康風險評估之情形下,遽認對國民健康及安全無重大影響,毋須進行第二階段環境影響評估」,亦即中科三期環評結論是「出於錯誤事實認定或不完全之資訊」之違法。姑且不論環保署將當初自認為侷限甚大(主因為廠商未充分配合提供化學物質資料)的健康風險評估結果,過度解讀成「無風險」是否為今日爭議源頭之一,既然最高行政法院已經撤銷此一環評結論,即認定其無效,回復到「環評審查尚未通過」的原始狀態,何來環保署所謂行政法院之認定「並非因為環評審查不應通過」,而係判斷原環評審查過程中有資訊蒐集瑕疵之理?

環保署和行政院長均引用去年十二月最高行政法院駁回「停止執行」的聲請所作成的裁定內容,做為不應命該開發案停工的理由,更是指鹿為馬。該裁定根本是本案判決確定前,針對「暫時停止執行」此一「暫時權利保護措施」有無必要的審查,該裁定只是法院的「暫時決定」,根本不能與上述「終局判決」相提並論。行政院團隊將最高行政法院的終局判決批評得一文不值,卻不斷引用其暫時決定的內容為自己和開發廠商辯護,難道不是扭曲法律基本邏輯之至?

此一判決出爐後的發展,凸顯了我國環評制度和司法制度均亟待革新的必要性。目前環評結論撤銷判決的效力不及於開發許可處分的制度現狀,極容易讓行政機關的內部分工,成為人民權利救濟的最大絆腳石,而諸如行政法院將聲請停止執行案拖延一年九個月才做出裁定,導致「停止執行」制度遭到架空,甚至本案終局判決與停止執行的裁定互相矛盾的現象,也不是行政訴訟實務上的特例,這當然是同時倡言司法改革的執政黨必須檢討之處。

行政院大可勇於檢討環評制度,更可以不執著於單面維護開發者的信賴利益,反應發揮真正的「苦民所苦」精神,為中科七星基地附近居民的生命健康安全等基本權利著想。當執政團隊任由環保署一再逾越權力分力制衡的界線,時而攻擊法院判決的拘束力、時而引用法院暫時性裁定自說自話,人民能感受到的,毋寧只是民主憲政基本原則遭到執政者蓄意毀壞的沈痛與憤怒罷了。

(台大國家發展研究所法律組副教授,澄社執委)

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