寧可失信於敵,不可背信於民

黃 居 正/清華大學科技法律研究所副教授

世界上其他還沒有取得完整國家地位的政治體,對外固常受盡委屈,被要求以觀察員或特殊實體身分在國際組織中「見習」,或忍耐聯合國專家組成的代理政府頤指氣使,可是對內總能因此上下同仇敵愾,爭取最終的獨立。唯獨台灣政府例外。不想爭取獨立也就算了,還不斷順手拿這種非常狀態來對付異己,包括藉口實施戒嚴專政,剝奪人民遷徙與言論自由,恫嚇獨立自決民意。現在最新的一招,是用來脫免公民監督。聲稱服貿協議不是國與國的條約,所以立法院不得逐條審查,只能包裹通過,以免馬英九失信於他的對岸好朋友。

過去許多台灣與非邦交國間的國際協議,即使直接涉及國家重要事項或人民權利義務,也都不用條約形式。例如台灣與馬來西亞的航權,是由馬航與台北運輸同業公會兩個私法人間簽署;而台港間的,甚至連協定名稱都沒有,叫「有關台港之間空運安排」。雖不叫條約,但它們都是主權間折衝的結果,可能為了促進特定產業或特定人之經濟利益,而以全體國民的主權利益進行交換。直接受影響的公民,絕對有權行使批准程序,在生效前,檢視其內容,並進行理性批判。大法官釋字329號解釋也因此被迫採取相同立場。

那麼對釋字329號所說的,不屬於國際協議的兩岸協議,該怎麼辦?大法官雖鴕鳥式迴避台、中關係這個敏感問題,但並沒有說兩岸協議因此不受立院監督。立院可以制定「兩岸締結協定處理條例」來對應,或者是逕行以法律案來審查服貿協議,使其成為一個特別法。簡單的話,在審議中的「條約締結法」中加入準用於兩岸協議的條款也可行。

惟如此會不會使已經簽約的台灣政府,失信於人?當然不會。因為所有與台灣簽署協議的國家(包括中國),既然懂得迴避國與國條約的名稱,就已經知道台灣不是個正常國家,內部自有一套特別的批准方式,協議不會自動生效。台灣領導人如果亂打包票,吹噓自己有做決定的行政權力,不但貽笑對方,更是背信於台灣人民!

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