服貿審議:有權限,但有符合民主價值的章法可依嗎?

邱文聰
澄社執委、中央研究院法律學研究所副研究員

國際條約與協定並不會自動變成我國憲法所承認的國內法令,需要經過轉化程序才生對內效力。國際法與國內法二元分立的體制,為主權國家提供最終決定國際談判結果的槓桿。所以除非另有所思,否則難以想像誰會自廢武功。但要維繫內外效力二分體制,勢必要處理如何避免兩者矛盾,在符合權力分立原則的前提下,透過國內轉化生效程序控制對外生效的啟動。對服貿爭議而言涉及的問題不外乎是:協議是否如尹啟銘及某些執政黨人士所言,早已悄悄生效?立院還有權限進行逐條項審查與逐條項表決?若真要審查,有何章法可依?

服貿協議本文明白規定「協議自雙方均收到對方書面通知後次日起生效」。如果目前為止政府沒有暗地以書面通知對岸啟動生效,服貿協議的國際法上效力當然還未發生。尹啟銘等人的說法,主要是拿立法院職權行使法第61條,規定立院委員會審查「行政命令」時,若逾三個月未完成「視為已經審查」的條文當依據,主張服貿不待立院審議已「對內」生效。不過,立院職權行使法除了條約案的審議外,其實並沒有針對應以條約案送審卻以行政協定送備查時,兩院爭議如何解決的規定。尹等人拿61條當令箭,充其量只是「類推適用」行政命令的備查,但61條所謂的「審查」,其實只是由立院針對行政命令,進行「有無違背法令、內容是否涉及應以法律規定事項」的認定,因此62條緊接規定若委員會審查後發現政院的命令違反法律或應以法律規定者,由院會決議「通知原訂頒之機關更正或廢止」。所以真要類推適用的話,去年6月25日的立院決議,就已經完成了服貿協議「涉及法律修正或應以法律規定」的發現審查與認定,沒有「逾期未完成」的問題。

對外貿易從來就不是行政或總統的固有權限,服貿協議多處涉及應修正法律或應以法律規定否則無從施行的內容,行政權當然就無法以兩岸人民關係條例第5條2項為據強以行政協定「備查」,就讓服貿「對內」產生效力。而憲法事實上已賦予立法院得以「逐條表決」條約案的權力,否則也不會在憲法本文及增修條文中,都明白賦予行政院可以因立院通過之條約案窒礙難行,而提出覆議的機會。

立院雖有權審議服貿,決定是否生效,但怎麼審可有章法可循?面對蠻橫拒提完整資訊的行政權、面對罔顧人權衝擊影響執意與兩岸政商集團為盟的政黨,人民如何期待立院的審議結果能不跨越民主的基本價值?請把公正的遊戲規則與紅線訂清楚,再開始審查吧!

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