國會作為民主防線,不能撤守

顧忠華/公民監督國會聯盟理事長

台灣是一個民主國家,民主的基本原則是三權分立、互相制衡,尤其行政部門和立法部門的制衡最為關鍵,因為制衡的用意在於隨時反映最新的民意,讓政府施政不致於一意孤行,背離了民意取向。

馬總統上任即將滿兩年,其間還兼任了國民黨主席,但令人憂心的是,馬總統主政以來,國會功能被持續矮化,無法有效制衡行政部門並參與決策。雖然在進口美國帶骨牛肉的爭議上,國會面對排山倒海的民意,不敢公然背書,看似發揮了把關的角色。只是遇到兩岸議題,國民黨多數竟是淪為連背書都免了的附庸角色,刻意讓所有的兩岸協議「自動生效」,嚴重扭曲民主審議的程序,形容撤守民主審議的防線。如今六月即將簽署ECFA,即便馬總統保證會有國會審查的機制,就前例來看,恐怕也是虛晃一招,這不僅埋下正當性不足的伏筆,對於民主法治所需的信任度而言,更是一種傷害。

有關正當性與合法性兩個概念之間的分疏,從韋伯(Max Weber)開始便迭有討論,以目前的局勢為例,兩岸協議和ECFA即使在形式上符合《兩岸人民關係條例》第5條第2項之規定,「未涉及法律之修正或無須另以法律定之者,…送立法院備查。」然而這樣的「合法性」在兩岸關係急劇向中國傾斜的此時此刻,卻往往引發「正當性」的爭議,這也說明了為什麼民眾對於ECFA付諸公民投票的支持度居高不下。如果代議民主不願負起實質監督的職責,人民只好訴諸直接民主,來真正實現「主權在民」的理念。

更進一步分析,不要以為兩岸議題涉及意識形態之爭,所以有暴力衝突可以理解,譬如朝野都抱著「終需一戰」的心態,為了中國學生來台的法案扭成一團,那麼「地方制度法」引發的暴力如何解釋?我們認為,國會不斷脫序的根本癥結,在於多數/少數的權力結構缺乏微妙的平衡機制,讓少數意見得到適度的尊重,願意用理性的政策辯論來代替肢體衝突。有時,這反而突顯了多數的「心虛」,否則何必擔心在野黨的論述會更打動人心?國會成了「不講理」的地方,是亂象層出不窮的深層原因,馬總統有智慧來化解它嗎?

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