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題名：歐洲及亞洲監察制度的獨立性研究
作者：汪林玲
作者(外文)：UANG, LIN-LING
校院名稱：國立臺北大學
系所名稱：公共行政暨政策學系
指導教授：陳金貴
學位類別：博士
出版日期：2018
主題關鍵詞：監察使；監察機構；監察制度；獨立性；關鍵項目；ombudsman；ombudsman institutions；ombudsman system；independence；key items
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本文於歐洲及亞洲監察制度的獨立性分析中，從歷史脈絡探討全球監察制度及歐亞監察制度的發展，就監察制度的文獻及比較探究，歸納出15位學者所提出之獨立性內涵見解，並進而探知監察制度於獨立性之設計上，以組織獨立、功能獨立及經濟獨立此三面向分析。因此，本文以歐亞共64個國家（或地區）樣本之監察制度設計中，縷析出獨立於行政機關的程度、法制化程度、職權行使程度、豁免權情形及預算獨立程度五個面向，並歸納出任用程序、解職程序、任期時間、法源位階、利益迴避規範、行政機關具配合義務、具強制權力、獨立調查作為免於起訴、預算保障使監察機構具足夠資源獨立運作等共9個關鍵項目，予以編碼後，經以信度分析，獲得Cronbach’s α值為0.82，信度分析指標值高於0.7，顯見本文依據15位學者所提出之監察制度關鍵項目指標之內部的一致性標準。
而實務上，任職監察使者以及研究監察制度之學者等，對於監察制度獨立性關鍵項目，有何實務見解，經進一步釐清關鍵項目，再以歐亞64個國家（或地區）的樣本，依據國內外10位監察使及監察制度專家學者的專業及實務經驗，就制度面所探析之9項關鍵項目予以訪談後，研究發現關鍵項目新增任用資格、刪除強制力項目後，獲得任用資格、任用程序、解職程序、任期時間、法源位階、利益迴避規範、行政機關具配合義務、獨立調查作為免於起訴、預算保障使監察機構具足夠資源獨立運作等9個項目，以Cronbach’s α值為信度分析指標，顯示調整項目後之內部一致性標準值達0.85，該指標值亦高於訪談前之文獻及比較後制度面關鍵項目之信度指標值0.82。基於上述的研究發現，本文提出，任用資格、任用程序、解職程序、任期時間、法源位階、利益迴避規範、行政機關具配合義務、獨立調查作為免於起訴、預算保障使監察機構具足夠資源獨立運作等9個項目為歐洲及亞洲監察制度的獨立性關鍵項目，並據以編碼後，獲得64個樣本之獨立性指標值，其中歐洲監察制度的獨立性指標平均值為7.85，亞洲為4.39，整體歐亞的平均值為6.88。
而為提升本文之研究價值，更進一步就受訪者所提出的見解予以檢視，探究歐亞監察制度獨立性與透明度、民主程度相關情形，研究顯示歐亞監察制度獨立性指標值與國際透明組織(International Transparency)之清廉指數(Corruption Perception Index)並未達統計上的顯著相關，但與自由之家(Freedom House)的民主指數(Democracy Index)達統計上顯著之正相關性。同時本文也提出研究建議為，完整的獨立監察制度之建立應重視豁免權及預算的獨立編制，此亦為我國監察制度應強化的獨立性關鍵項目。
In order to find the key items of the independence of the ombudsman system in Europe and Asia, this paper explores the development of the global ombudsman system and the ombudsman system of Europe and Asia from the historical development of the literature. Then, based on the literatures and comparative studies of the ombudsman system, this study summed up that 15 scholars have proposed the connotation of the independence of the ombudsman system. And in accordingly, this study classifies the independence of the ombudsman system to three aspects which include organizational independence, functional independence and economic independence. Moreover, the three aspects of independence also can be found in five categories with nine items which include appointment procedures, removal procedures, term of office, legal basis, incompatibility, enforcement of duty of assistance, the powers of coercion, immunity and budget. Therefore, this study presents the samples of 64 countries (or regions) in Europe and Asia and based on the 9 items above which had been encoded and were quantified. The study showed that the reliability analysis of access to Cronbach's alpha was 0.82, and the value is higher than 0.7, wchich obviously reach the consistency standard.
Thereafter, to intensify the quality of the research, this study conducted a method of semi-constructed/constructed interviews with the ombudsman and ombudsman research scholars in domestic and overseas. Based on the interviewees' practical experience and professional opinions, the researcher adjusted the 9 key items into qualification regulations, appointment procedures, removal procedures, term of office, legal basis, incompatibility, enforcement of duty of assistance, immunity, and budget. It could be found that the item of “qualification regulations” had been added and the item of “powers of coercion” had beed delted. This adjustment showed the highest vaule of the Cronbach's alpha to 0.85 which indicated the high consistency standard of reliability. Accordly, the independence index of 64 samples was obtained. The independence index of the European ombudsman system was 7.85 and that of Asia was 4.39, with an overall average of 6.88 for Europe and Asia.
For the highlight of the research, the researcher further examine the opinions of interviewees to explore the relationship of the degree of the independence with the degree of the transparency (by using the ranking and score in Transparency International’s 2016 corruption perception index) and the degree of democracy (by using the ranking in Freedom House’s 2016 index of political rights and civil liberties). This study showed that the relationship of the index of the independence of the ombudsman system and the corruption perception index was not significantly correlated, but statistically significant positive correlation with Freedom House Democracy Index. At the same time, this study also suggested that the establishment of a complete independent ombudsman system should pay attention to the independent preparation of immunity and budget, which are also the key items of the independence that should be strengthened in our country's ombudsman system.
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