重溫憲法成長的理念

政治大學哲學系教授 何信全

最近各界關注修憲,若干修憲議題諸如公民年齡降為十八歲,單一選區兩票制由日式並立制改為德式聯立制,政黨比例代表分配門檻調降等等,皆頗能展現進步思維與新義,的確值得推動。至於中央政治體制是否改弦易轍,基於憲法成長理念,實宜更審慎為之。

現行憲法起草人張君勱是著名政治哲學家,常自道「哲學喜歡德國的,政治喜歡英國的。」他嚮往英國憲政演化原理及其內閣制,因此憲草以英式內閣制為藍圖;他也深研德國威瑪憲法,了解實權總統與獨立內閣並立的制度。在制憲會議國民黨堅持五權憲法架構下,折衷而成現行憲法。可惜行憲以來,在戒嚴體制之下總統獨大,幾乎發展成為傳統的君相制。1996年總統直選,才算產生真正的民選總統,歷經五次總統大選,加上取消立法院閣揆同意權,現行憲法已演化成長接近威瑪憲法的基本架構。

沒有完美憲法,各種政體皆各有得失。憲法運作落實而順暢,更重於法理邏輯的考量。既然憲法演化成長的現行體制基本運作順暢,總統直選對宣示台灣主權又具有特別意義,實看不出有改弦易轍的必要。純從法理邏輯上看,總統有權卻由行政院長向國會負責,的確有權責不盡相扣的情形,亦有矮化國會之嫌。不過就政治運作而言,立法院透過審查法律案與預算案已足以制衡總統,何況還有彈劾與罷免總統之制度設計。再則定期直選總統、媒體批判、人民集會遊行展現民意以及期中選舉等等民主機制,亦皆足以達到制衡總統的效果。我們只要看九合一大選之後總統不只跛鴨,形同武功廢了大半,甚至讓人擔心弱勢總統形成國政空窗期問題,就知道現行體制總統權力並非不受制衡。近年政局紛擾,藍綠對立是重要根源,其實與政體架構關涉不大。

英國憲法巨擘戴雪(A. V. Dicey)嘗謂:「憲法不是造成的,而是長成的。」為了避免只見其利未見其弊的修憲導致治絲愈棼,推動修憲之際,讓我們重溫憲法成長的理念,依循現行憲法演化成長脈絡,務實穩健地進行,才能使憲政發展更為成長茁壯。

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