國會改革:委員會制度的改革

王業立
東海大學政治系教授

壹、前言

2005年6月7日,「任務型」國大完成了第七次的修憲。在此次修憲中,立法院已確定自第七屆開始「席次減半」;立委選舉方式改為「單一選區—兩票制」。國人殷切期盼多年的「國會改革」,終於跨出了最重要的一步。然而「國會改革」並不只有選制改革而已,隨著「席次減半」與「單一選區—兩票制」的落實,更有許多配套措施亟待改進,如此我們才有可能期待一個健全的國會運作在台灣出現。

制度的設計,雖然不是國會能夠正常運作的唯一因素,但卻是必要條件。而當我們在探討制度的設計或選擇時,也應儘量拋開一黨、一派短期的政治利益;尤其當政黨輪替在台灣已成為事實,未來在實施「單一選區—兩票制」後,國會中的多數黨究竟是誰也還是未定之天時,我們在討論「國會改革」議題的時候,更應該針對可長可久的制度面多做思考,如此才有可能建立一個全民一致期待的優質國會政治。

基於此,本文試圖從制度層面切入,並採用比較的觀點來探討當前「國會改革」中一個非常關鍵性的議題:委員會制度的改革。

貳、國會中的委員會制度

在大多數民主國家的國會中,委員會在立法過程中都扮演著非常重要的角色。由於國會議員人數眾多,不可能詳細討論、審查每一項法案,再加上現代民主國家多元社會專業分工的需求,委員會即成為國會立法過程中不可或缺的一部分。透過委員會的專業審查、行政與立法部門間的政策辯論,以及藉由各種公聽會的舉行以進行資訊交流與蒐集,在美、日等國,國會的立法過程即是強調所謂的「委員會中心主義」。經過委員會專業審查的法案,在院會中都受到相當的尊重,此又被稱之為「委員會決定之神聖性」。大致而言,除非像是在英國,特別強調內閣對於政策的主導權與政黨紀律的貫徹,否則在大多數的民主國家中,委員會在國會的立法過程中都發揮非常重要的功能。

此外在多數民主國家的國會中,各種常設委員會也是培養專業議員與國會領袖的主要場所。而資深制度(seniority)與國會倫理,在任何最先進的民主國家的國會中,也絕非是早已過時的迂腐制度。在黨團的安排與協調下,許多新進的國會議員依其興趣與專業,被分派參與某常設委員會,然後多半長久參與該委員會,以逐漸培養專業素養與資歷。而由資深、專業的議員出任小組委員會主席或委員會主席,也可進一步提升議事品質與法案審查的專業性與權威性,並可更有效的對行政部門發揮監督、制衡的功能。以美國的國會為例,委員會主席大多數都是由資深或專業的議員出任,並且在議程設定(agenda setting)上,具有重要的影響力。

反觀我國的立法院,委員會制度卻幾乎是形同虛設。2005年1月21日,在審查九十四年政府總預算案時,立法院長王金平曾有感而發的表示:「再不落實委員會制,立法院也會變成菜市場!」長久以來,我國最高民意殿堂的委員會,被輿論批評為「荒廢正務」的作秀舞台;「專案報告」、「考察行程」遠遠多過「法案審查」。自廢武功,動輒交付「黨團協商」的立法怠惰,更造成委員會制度進一步的「虛級化」。而許多立委也常視待審法案的熱門程度,每個會期均參加不同的委員會,並且我國的立法院也不像英、美等國,並未強制立委只能在自己登記參與的委員會中質詢,結果導致許多立委遊走於各委員會間搶發言機會,質詢議題嚴重重複,委員會也形同沒有分工。而每個委員會又有三個召集委員,且每個會期都改選的設計更是世所罕見。在如此多的積弊之下,多數民主國家國會中委員會所強調的專業性、資深制在我國的立法院委員會中根本無從建立。

更引起民眾普遍反感的是,《立法委員行為法》中有關「利益迴避」的規範,在政黨的縱容或包庇下,早已被許多立委不僅視之為無物,甚至棄之如蔽屣。於是,個人或其親屬有案在身的立委參加司法委員會;兼營營利事業的立委進入財政或科資等委員會;家中開營造公司的立委擠入交通委員會…。此種另類的「專業性」表現,使得委員會的運作更加「向下沉淪」。

在下一屆國會席次減半後,現行委員會的運作也勢必要配合修改,因此委員會制度的改革已是勢在必行。但是要如何配合席次減半的改革時機,而能夠將前述的積弊一併掃除,則有賴全體立委諸公的自省能力,和民眾及輿論的壓力程度而定了。

參、委員會制度改革的建議

在思考委員會制度改革時,英國西敏寺模型(Westminster Model)下的國會運作方式並不見得適合當今的台灣,而美、日等國所強調的「委員會專業化」仍應是我國進行「國會改革」時努力的主要方向。就健全我國立法院的委員會制度而言,本文特提出下列幾點建議以供各界參考:

(一)未來立委席次減半後,每一位立法委員可參加的委員會數目,可考慮增加為二個,以符合立法院實際運作的需求。其次為配合未來行政院部會的精簡,常設委員會的數目,也可考慮由現行的十二個整併為八至十個,並適度提高每一個委員會可參加委員數目的上限,以避免席次減半後,委員會由少數幾位委員掌控的狀況。在此前提下甚至可進一步考慮成立「小組委員會」或「次委員會」。此外委員會出席、議決的門檻,亦可考慮適度提升。

(二) 應規定立委只能在自己所參與的委員會中質詢,以建立委員會專業分工,並杜絕遊走式的問政方式與避免行政部門接受重複質詢的困擾。

(三)將各委員會召集委員改為一人,擔任召委之條件應予以限制(例如必須至少參加過該委員會若干會期),候選人必須由黨團提名與背書,以避免形象有爭議的委員,僅靠掌握少數幾票即可當選召委的現象出現。而單一召委的設計,也可讓議程安排可以連貫,以鼓勵專業問政,形成資深制度。現行每個會期皆改選召委的方式亦應予以改變,透過延長召委的任期,以建立其專業領導的權威。此外亦應進一步賦予召委在主持會議上更多的權限,以提升議事效率。

(四) 立法委員參加各委員會,除依各政黨比例分配,由各黨黨團考量委員專業、興趣提出名單外,亦應對於委員更換委員會予以限制(例如未來四年任期內以更換一次為限),以逐步建立專業制及資深制。

(五)儘速修改《公職人員利益衝突迴避法》、《立法委員行為法》,對於立法委員違反利益迴避原則,加重罰則,並對於檢舉案處理機制,進行更完整之規範。此外亦應儘速通過《遊說法》等相關法律,並健全立法院紀律委員會的功能。甚至可考慮禁止立委本人在擔任立委期間,不得兼任或暫停其營利事業職務。最後立法院亦可考慮主動推動成立國會外部之監督機制,如美國Common Cause等組織,以長期並專業化監測國會委員會之運作,與立委利益迴避狀況,並公開資訊。

(六)為落實「委員會中心主義」,法案付委審查後,除非經過相當時日未加以審查,且經一定委員連署,否則不得未經決議即抽出進行朝野黨團協商或逕付二讀。委員會已審查通過之法案,不得再提朝野協商。而委員會有爭議的法案進行協商時,協商代表必須包括原委員會成員或召集委員。

(七) 委員會最重要的功能,就是在法案及預算的審查。為使各委員會的朝野立委們能多花些心思與時間在「本業」上,對於一個會期中專案報告、考察行程的次數及時程應考慮予以限制。

(八)加強委員會公聽會的功能,並降低請求舉行公聽會之門檻。依照現行《立法院職權行使法》第五十五條的規定,公聽會須經各委員會輪值之召委同意,或經各委員會全體委員三分之一以上之連署或附議,並經議決,方得舉行。未來立委席次減半後,為保障少數聲音及社會多元意見,對於公聽會舉行之門檻限制,宜考慮予以降低。

(九) 強化國會助理及幕僚的專業功能,尤其是在法案及預算審查工作上,能成為委員問政及監督行政部門強而有力的後盾。

(十) 立委席次減半後,黨團組成的門檻勢必也要重新訂定。為避免朝野黨團協商一方面淪為密室交易的利益交換場所,另一方面又架空了委員會的功能,因此自第七屆立委開始,黨團成立的人數下限不宜太低。

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