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題名:兩岸經濟類協議交付立法院審議方式之分析
書刊名:中國行政評論
作者:詹立煒 引用關係
作者(外文):Chan, Li-wei
出版日期:2017
卷期:23:2
頁次:頁70-105
主題關鍵詞:理性選擇制度論審議程序兩岸經合協議兩岸服貿協議Rational choice institutionalismRatification processECFACSATS
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2010年第7屆立法院審議兩岸經合協議 (ECFA),在國民黨席次優勢下院會完成批准程序。2014年第8屆立法院審議兩岸服貿協議的過程中,因協議內容和議事程序的問題而引發佔領國會的事件。服貿協議屬經合協議後續之一部分,但為何國民黨無法在掌握國會席次優勢的會期通過。從事件的結果、理論觀點和實務運作而言,性質相同的議案、且屬一致政府的關係下,卻有不同的審議方式,此間差異即有值得探討之處。本文從理性選擇制度論的角度探討立法組織和程序對議案審議的影響,研究方法採個案研究之方式,檢視立法院相關法規、公報、議事錄和新聞報導資料。並從反事實的角度針對所要探討的問題予以推論並分析:第一,立法院如何審議我國對外簽署的經濟類協議;第二,立法院多數黨如何運用議事規範影響議案審議的程序;第三,立法院多數黨如何施展議程設定和議價協商的策略;第四,立法院多數黨與行政部門對於兩岸經濟類協議的審議方式是否一致。從個案分析結果發現,立法院過去審議我國對外的7個經濟類協議,院會依照議事先例採全案表決;其次,兩岸經濟類協議的審議方式並非一致,兩岸經合協議與智財協議則是以逕付二讀的方式通過,但在審議服貿協議時,國民黨在黨團協商為了換取民進黨在12年國教法案的同意而對逐條審查的主張讓步,民進黨藉由委員會召委議程設定的權力召開16場公聽會,藉以延後服貿協議的審查時間;最後,第8屆國民黨之所以未能以國會多數黨優勢通過議案,從立法院公報紀錄發現,區域立委面對具爭議性的服貿協議和連任壓力之下而不得不調整其議事策略,而且委員彼此立場也不一致,嗣後318公民運動的發生,使得服貿協議最終未能在立法院第8屆完成審議。
This article discussed the legislators how to exam the cross-strait economic agreements in the 7th and 8th Legislative Yuan. The legislative institutions and procedures are key factors in the rational choice institutionalism (RCI) and related literatures. Those factors could influence the outcome of institutional collective decision-making. Therefore, the core question is why differing from Economic Cooperation Framework Agreement (ECFA) and Cross-Strait Agreement on Trade in Service (CSATS) in the process to ratify? Especially the ruling party (KMT) succeeded in ECFA. This article used case study and collected Legislative Gazette to analyze those agreements. However, the lawmakers decided to take “clause-by-clause review” and a series of public hearings in consult among political parties in Legislative Yuan. As the result, the legislators changed the ratification process that leaded to CSATS failure in 8th Appointed Dates.
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