一九五０、六０年代官方改革主張的探討--以總統府臨時行政改革委員會的地方自治建議為中心

Abstract

中華民國政府遷台後，為了建構其統治的正當性，並爭取民主國家的支持，往往必須標舉民主憲政的重要性，而實施地方自治既有助於民主形象，且在開放有限的地方政治讓台灣本土菁英參與時，也有助於強化其統治的基礎。問題是：在強人主政的「非常時期」，整個政府體制往往與憲法條文衝突，地方自治也是如此。因而在某種意義下主政者有時也試圖透過自己所能掌握的國家機關，盡力彌補政治體制「應然」面與「實然」面的嚴重落差。而無論是制訂（修改）動員戡亂時期臨時條款，或是大法官會議的釋憲，在某種意義下，皆在補強政府體制的正當性與合法性基礎。不過，有關地方自治則是透過動員戡亂（國家總動員）體制、戒嚴體制，乃至以主政者的行政裁量或意志來建構。而針對此一層次違反憲法規定，不符合民主憲政的基本原則，或是欠缺法律依據的狀態，中華民國政府內部究竟有何種認知，主政者又希望如何處理其認知與現實政治體制(運作)的落差，便是掌握當時政治脈動的重要課題。而以總統府臨時行政改革委員會提出與地方自治相關的建議案來看，主要主張以完成省級機關的法制化，來改革省級地方自治的問題。在縣市層級，則基本上仍以行政命令為依據，著眼於透過行政命令的修正，並佐以相關法令依據來完成地方自治改革。在某種程度上，這也反映了官方內部推動政治改革有其現實體制的外在限制。而且，縱使經核定實施者」，亦大多「有名無實」而這也一定程度凸顯了此份經蔣中正總統批示辦理的官方改革主張，在現實政治層面影響的限度。

After the government of the Republic of China(ROC) retreated to Taiwan in 1949, in order to maintain the legitimacy of Kuomintang’s rule in Taiwan and win the supports of other democrtic countries in the world, the Kuomintang government had to advertise itself a democracy. Allowing the local self-government and openning the political paticipation of local natives in some limited degree, was not a bad choice to flaunt the democratic image of Kuomintang. By the way, practicing local self-government would also enhance the legitimacy of Kuomintang’s rule. But the problems were still there. Chiang Kai-Shak’s government was in fact a totalitarian rule, its institution could not help but conflict with the constitution of ROC, and even with the bringing out of local self-government in Taiwan. That is why the Kuomintang governers sometimes had to mediate the inconsistency between the real governing design and what it ought to be. The purpose of this article thus will aim at revealing how and to what degree the Kuomintang governers recognized such disparity, and by what means to compensate it. This may be somehow a key point to understand the political context of Kuomintang’s ruling in Taiwan.