政策議程之多元流程與公共利益因素研究─106年著作權法修正案分析

Abstract

著作權法近期大幅修正為民國87年，隨著數位科技及網路高度發展，法制與實務間的落差日益擴大，為此，我國著作權專責機關經濟部智慧財產局（下稱智慧局）自97年起，著手進行著作權法的修法作業，經過多年的研議及徵求外界意見，在106年10月行政院通過送立法院審議、同年11月立法院完成一讀，惟直至109年1月第9屆立法委員任期屆滿，法案不續審，106年版著作權法修法草案宣告回到原點。\r\n\r\n研究發現，106年著作權法修法草案無論在過程或是內容皆符合著作權法揭櫫之公共利益，同時也符合Kingdon之多元流程模式，推動過程極具動態且高度互動，不停在政治流及政策流之間來回穿梭，偶而又回到問題流。然而在問題流、政治流及政策流皆鬆散的情況下，政策窗仍舊開啟，且開啟的時間並非短暫，不過，本個案之政策企業家促進三流匯聚的能力有限，終究無法完成立法。本個案在政策窗開啟之要件及階段不同於多元流程模式，認為係因我國行政院具有高度立法影響力，法案必須符合公共利益，才能通過行政院之審議，進入立法院，因此本研究針對多元流程模式酌做修正。此外，本研究建議推動著作權法修法須尋求高層級政策企業家支持、找尋重量級利用人參與、運用結盟關係及採取更多元且彈性的提案策略。

The recent extensive amendment of the Copyright Act could be traced back to 1998. Since the highly development of technology, the gap between the law and practice has been increased. The Intellectual Property Office (TIPO), MOEA had worked on an amendment to the Copyright Act since 2008. The draft was passed by the Executive Yuan and the Legislative Yuan separately on October and November 2017. However, it failed with the 9th Legislative Yuan expiring.\r\n\r\nThis study finds that the draft amendment to the Copyright Act of 2017 abided by the indicators of public good in accordance with the Copyright Act’s value. And, during the process of promoting the draft, the problem, political and policy streams are interdependent, which is consistent with Kingdon’s multiple streams framework (MSF). However, there is something inconsistent with the MSF. In this case, the problem, political and policy streams were weak, but the streams still came together, making the policy window open for quite a long period of time. But, the absence of policy entrepreneurs made it impossible to take the advantages of the opening of policy window, and made the amendment pass. The study shows that the Executive Yuan played an important role on making a law. Only when the draft was abided by the indicators of public good did it be granted by Executive Yuan, and then was sent into Legislative Yuan. Hence, the study makes some changes on the MSF, and suggests that TIPO could strive for the support of high-level policy entrepreneurs and the influential representatives of users, the formation of alliances, and the flexible proposal strategies, in order to promote the amendment to the Copyright Act.