從直航爭議看台灣民主政治品質

原刊載於自由時報 自由廣場 2006/05/14

■ 林文程

台海兩岸是否直接通航,關係台灣人民之福祉及國家安全,立法院要修改兩岸人民關係條例,通過直航條款,來迫使政府限期核定施行直航,是一件頗有爭議的事。

首先,直航對台灣經濟發展之利弊得失,是充滿爭議的問題,不少人認為直航將鼓勵資金進一步流向中國、更多民眾將面臨失業、台灣將更加依賴中國市場、北京對台灣將更加傲慢粗暴;而且縱然直航是一個趨勢,政府也需事先做好風險管控措施。面對此一看法南轅北轍又與國家利益息息相關的問題,任何成熟的民主國家,必然是經由朝野協商,來形成跨黨派共識,絕非以國會多數強渡關山。

其次,直航不只攸關航運往來,尚涉及兩岸人員和貿易直接往來、未來密切經貿投資等相關議題的連動關係,以及國家定位與安全尊嚴等重大問題。

第三,兩岸通航涉及航權、口岸、檢疫及雙方若干必須協商談判的事項,如果立法院貿然開放直航,不只我方的談判底線盡失,更將使海岸及口岸的管理陷於嚴重危機。

第四,談判兩岸直航事關總統的涉外權,當然總統必須尊重及參考立法院的意見,但立院不宜以不經協商的方法侵奪總統的涉外權。立法院最近的作法除了涉及可能違憲之爭議外,在實踐上更極為罕見。以美國對外簽訂通商及航運條約而論,締約權力屬於總統及行政部門,同意權則在國會,這種相互尊重的情形值得台灣參考。此次立法院王院長在直航立法一案折衝樽俎,以國家利益角度處理行政院與立法院的爭議,值得國人肯定。

直航延宕,主因在於北京拒絕與台灣協商。台灣已提出貨運便捷化建議,但北京拒絕配合。台灣也已修改兩岸人民關係條例,通過複委託機制,並同意採取台港航權談判模式,由民間團體來從事談判,政府官員以顧問名義參與。然而,北京堅持台灣接受「九二共識及一個中國原則」作為協商前提,導致兩岸關係陷入僵局。當前朝野所要做的,應是團結一致對中國施加壓力,而非幫北京來打壓自己的政府。

總部設於紐約之自由之家,將台灣評比為亞洲最民主的國家,這項評價應該讓台灣人民感到驕傲,但看到朝野持續惡鬥、政黨為私利置國家利益及人民福祉於不顧、國家安全政策在朝野對抗下進退失據,這絕非我們所要的民主政治。台灣在全民努力下,締造經濟和民主政治上的雙重奇蹟,但台灣的經濟發展和民主深化工作已面臨瓶頸,需要朝野理性捐棄成見共同合作,才有希望克服困難,否則歷來成果將一點一滴不斷地流失。

(作者為中山大學大陸研究所教授、澄社社員)

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