只有國會逐條審議,才能緩和ECFA違憲疑慮

2010-7-9

@黃國昌、劉靜怡

關於「海峽兩岸經濟合作架構協議」(ECFA)的國會審議問題,目前的爭論多環繞著「究應『比照』條約案進行二讀的包裹式表決抑或依一般法案逐條審查之三讀程序」的主軸開展。然而,ECFA所引發的憲政問題尚不僅止於此,更為嚴重的是,其將觸及國家統治行為核心的權力,先委託私人行使,再進一步讓渡予由私人組成的「超國家」委員會掌控,已引發深刻的憲政問題。

將國家公權力之行政任務委託私人行使,雖非為我國憲法所禁止,且為行政程序法第16條第1項(「行政機關得依法規將其權限之一部分,委託民間團體或個人辦理」)所明定,惟此公權力授予私人行使,應屬例外,為貫徹法治國原則與法律保留原則,必須受到相當限制。除了必須有法律授權以外,尚要求「授權行使公權力的內容與範圍必須具體明確」以及「僅得就權限一部分為之,不得為全部權限之委託」。更為重要的是,前述的要求,僅係就「一般性的行政權力」而言;若涉及的係具有統治意涵的國家行為,本於統治行為之高度政治性以及所相應之民主正當性要求,性質上即根本不適於進行權力委託,否則將嚴重破壞憲政精神與憲法架構下的權力監督制衡機制(例如,即使法律授權,總統亦不能授權私人代為決定、提名大法官)。

準此,「臺灣地區與大陸地區人民關係條例」第4條之2關於委託民間團體以受託人自己名義與中國政府或其授權民間團體簽署協議之規定,即必須進行嚴格的限縮解釋,否則不僅將僭越委託行使公權力的容許性範圍,更將產生嚴重的違憲疑慮。亦是由於如此,針對性質上為私法人之財團法人海峽交流基金會與對岸所簽訂之ECFA,姑且不論是否應將其視為「條約」案、不論一般「由行政首長或機關代表親自簽訂之條約或協定」是否果真僅能進行「包裹式的准否表決」,在未經國會「事前」「具體」授權之情形下,本質上即「至少」必須透過「逐條審查」之方式由國會進行事後民主監督,否則將無從透過國會「事後具體個別」表示是否同意,一方面審視各個協議內容是否僭越委託行使公權力之容許界限,一方面藉以修補未經事前具體授權的瑕疵。

尤有甚者,ECFA第11條有關「兩岸經濟合作委員會」之機構安排,一方面允許身為私法人之海基會「指定代表」,一方面使該代表與另一國代表所組成之委員會掌控「解釋協議規定」等權限,已涉及國家統治權力之委託,顯有逾越委託私人行使公權力的合憲性範圍之嫌。因此,無論國會在具體審議過程中對ECFA其他條文之內容是否表示同意,就第11條之規定,則必須在國會審議過程中明確地予以否決,要求行政權絕對不得將此等具有統治行為意涵之權力,「讓渡」給一個由「內國私法人」與「外國私法人」共同推派代表組成之「超國家委員會」行使,否則將嚴重破壞我國的憲政秩序。

基於以上的理由,如果國會真的要「包裹式地表決」ECFA,為避免造成高度的違憲疑慮,國會只能有「否決」這個選項!

(作者黃國昌為中央研究院法律所副研究員;澄社社長)
(作者劉靜怡台灣大學國發所副教授;澄社執委)

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