軍公教退撫制度改革大法官釋憲爭議之研究

Abstract

民國108年8月23日司法院大法官公布釋字第781至783號解釋，宣告民國107年6月21日修正公布之陸海空軍軍官士官服役條例、106年6月9日公布之公務人員退休資遣撫卹法以及公立學校教職員退休資遣撫卹條例所涉及之諸多爭點，絕大部分悉屬合憲規定。然而自民國105年起政府推動之軍公教退撫制度修法改革，過程中社會各界紛擾不斷，及至釋憲解釋文公布後，各項核心爭點仍引發更多爭議。本文研究目的在於釐清我國軍公教人員退撫制度沿革，探討退撫制度修法改革過程政府操作手法及後續預期效果，以及探討大法官釋憲之受理標準、解釋論理之爭議。本文採取政治學領域之歷史及法律研究途徑，使用研究方法為文獻分析法。本文發現修法改革過程中，政府以印象塑造方式，造成貶抑公部門職業價值之社會輿論氛圍，不但影響人才投入公部門職業之選擇，更加劇社會上職業衡平之割裂；總體經濟則在短期內部分指標顯示出消費緊縮趨勢，然而仍需未來更長時間觀察；退撫基金運作方式及績效操作之檢討未成為此次改革過程的焦點；大法官解釋理由則未盡符合公法原理，更因論述體系包含對退撫給與態度認定之主觀要件，造成立法權確實侵害到人民權利時，卻無法仰賴司法權審查予以保障之「憲政空隙」。本文認為「國家照顧義務」與「憲法上制度性保障」為退撫制度核心價值，改革推動者應為銘記在心。

On August 23, 2019, the Justice of the Judicial Yuan announced Interpretation No. 781 to 783, declaring that the Act of Military Service for Officers and Non-commissioned Officers of the Armed Forces, the Public Service Retirement Compensation Law and the Act Governing Retirement, Severance, and Bereavement Compensation for the Teaching and Other Staff Members of Public Schools, which involved many disputes, most of the points are constitutional provisions.However, since 2016, the government has promoted the reform of the pension system. Social disturbances have continued in the process. After the constitutional interpretation was announced, various core disputes still caused more disputes.\nThe purpose of this article is to clarify the evolution of the retirement pension system, discuss the government`s operation methods and subsequent expected effects in the reform process of the retirement pension system, and to discuss the disputes about the acceptance criteria and reasons for the interpretation of the constitution.This article adopts the historical and legal research approaches of political science research, and uses the research method as the literature analysis method.\nThis article finds that in the process of reforming the law, the government used impression shaping to create an atmosphere of public opinion that devalued the public sector, which not only affected the choice of talents to invest in the public sector, but also aggravated the division of professional equity in society. In the short-term, the overall economy shows some indicators of consumption tightening. However, it still needs to be observed for a longer time in the future. And the review of pension fund management methods and performance operations has not become an important part of the reform process. The Justice`s Interpretations did not fully conform to the principles of public law. Moreover, because the discourse system contains a subjective attitude towards the pension system, when the legislative power does infringe the rights of the people, it cannot rely on judicial review to protect it, which is called the "constitutional gap".\nThis article believes that "State care obligations" and "constitutional guarantees" are the core values of the pension system and should be kept in mind by those who promote reforms.