憲政體制與國家安全決策體系：我國與法國第五共和雙首長制之比較

Abstract

本計畫主要係探討在雙首長的憲政體制下，國家安全事務的分工與決策體系。計畫中特別就我國與法國國家安全決策體系的架構與運作機制的異同及特色予以研究，並依此對我國未來憲改方向提出若干借鏡和可行建議。法國第五共和的雙首長憲政體制之下，一方面總統直選，擁有憲法上許多重要且獨立的權力，另一方面，他又任命總理且必需對國會負責，造成總統有權無責、且多朝向綜攬大權的發展模式。在國家安全決策體繫上，法國總統不但依法主持部長會議（相當於我國的行政院院會），同時也是國防最高會議以及國防委員會的主席，特別是在一九六四年更取得了核子武力的發射決定權。換句話說，法國總統雖然在行政體系無法直接指揮國家安全相關機制，但是實際上可透過上述會議及相關機制（如國防總署），甚至於政治任命的專業幕僚來參與或影響。本計畫首先將就法理及實務的角度研究分析第五共和的雙首長制下法國總統、總理以及相關部門在國防決策體系中所扮演的角色，其次就總統與總理皆為同一政黨或聯盟時期以及「左右共治」時期，國家安全體系的運作特色加以探討，最後將綜合提出法國雙首長制下的國家安全體系的特性。就我國而言，隨著九○年代民主化的發展，國家安全決策體系也為因應時代需求而有所興革，然而，面對我國修憲後的憲政體制、政黨輪替等重要變遷，卻由於雙首長制下的權責不清，加上行政與立法權出現所謂「朝小野大」的局勢，造成儘管國防二組織法已通過實施，然在國家安全決策體系方面似仍呈現職能不清、多頭馬車的現象，特別是在當今快速變遷的國際社會以及情勢嚴峻的兩岸關係之下，這個問題已對國家安全產生影響，宜勇於面對並尋求解決之道。換言之，本計畫主要將透過比較政治的方法與途徑，就我國與法國第五共和雙首長下的國家安全決策體系加以研究分析，而後預期提出若干比較之特色，並進一步就我國未來在憲政改革方向上提供借鏡與建議。

This research project will study with the comparative methods the relations between the constitutional regime and national security system, in particular of semi-presidential system, and its impacts bwtween Taiwan and France. Under the Franch fifth Republic, the Constitution gives the functions to the Prime minister conducting national security issues, but in practice, the president who is elected directly by the people, with such independent powers, also chair of the Council of ministers and High Council for the National defence, could play a predominant role in the field of national security affairs. Even during the period of Cohabitation, the presidential power has not been seriously affected in this issue. In Taiwian, with the democratization and constitutional reforms, in particular of the establishment of two important bills on the national defence, the national security system has been changing. However, the framwork and the decision making process in this issue still remain quite unclear, due to the ambiguity of the constitutional regime and the division of role. The outline of this research is : 1) To study the framwork of national security system under the constitutional regime, in particula of semi-presidential system. 2) Conduct a comparative study of national security system between Taiwan and France. 3) Try to propose some institutional framwork in regard to the national security system in the near constitutional reform.