本館出版品

中華民國國會議長的憲政功能與角色

The Constitutional Function and Role of Legislative Speakers underthe Five-power Constitution

孫學研究

1996-2657

半年刊

2020/11/12

第29期

p.89-118

中華民國憲政體制之建立與發展，與國父孫中山先生所構思出的「權能區分」理論息息相關。為了能夠打造一套符合中國國情的憲政體制，國父總結其周遊列國所獲得之豐富經驗，同時規撫歐美學說，加上中國自古以來在制度上的優良傳統，所綜合創造的新制度，可謂破天荒的新發明。國父孫中山先生所創立的五權憲法制度，不僅具有傳統西方三權分立的行政權、立法權及司法權，更加上了中國傳統的考試權及監察權，組成全球獨一無二的五權政府架構。國父孫中山先生將國民大會定位為「政權機關」，將五權政府定位為「治權機關」，希望透過上述憲政體制的權力安排，使得「人民有權」、「政府有能」，以致於最後終能打造出福國利民的「萬能政府」。
其中，相當於西方民主國家國會之相關職權，在五權憲法架構之中亦有其特殊的安排，觀諸憲法本文，發現西方國會所行使之立法權、調查權以及修憲權等相關權力，在中華民國憲法架構下分別交由國民大會、立法院及監察院所行使，因此西方民主國家關於「國會」的概念，其精神絕不直接等同於中華民國憲法所定義之「國會」，因為三權憲法及五權憲法存在根本上的不同。本文從國父孫中山先生五權憲法架構下所探討「國會」之意義出發，還原國父孫中山先生對於「國會」機關的定位究竟為何；而中華民國憲法雖然是以國父孫中山先生所建構之憲政理論為依據，但仍受限於制憲時各方政治角力，相對於國父孫中山先生的理論架構而言（五權憲法之原型），憲法本文乃五權憲法之變型。而憲法施行未幾，旋即陷入國共戡亂戰事，中華民國政府為了因應變局，復制訂《動員戡亂時期臨時條款》凍結憲法若干條文，使得五權憲法的精神完全受到破壞。民國八十年儘管廢除了《動員戡亂時期臨時條款》，但馬上進入了一共七次的憲法增修，使得憲法本文從來未有真正長期落實的機會。本文擬分析中央政府遷臺後各個時期「國會」的變遷與發展，結合當代臺灣之憲法現狀架構及特殊的歷史背景，探討中華民國「議長中立」之可能性，並提出若干政策建議以供議會改革時參考。
中華民國憲政體制之建立與發展，與國父孫中山先生所構思出的「權能區分」理論息息相關。為了能夠打造一套符合中國國情的憲政體制，國父總結其周遊列國所獲得之豐富經驗，同時規撫歐美學說，加上中國自古以來在制度上的優良傳統，所綜合創造的新制度，可謂破天荒的新發明。國父孫中山先生所創立的五權憲法制度，不僅具有傳統西方三權分立的行政權、立法權及司法權，更加上了中國傳統的考試權及監察權，組成全球獨一無二的五權政府架構。國父孫中山先生將國民大會定位為「政權機關」，將五權政府定位為「治權機關」，希望透過上述憲政體制的權力安排，使得「人民有權」、「政府有能」，以致於最後終能打造出福國利民的「萬能政府」。
其中，相當於西方民主國家國會之相關職權，在五權憲法架構之中亦有其特殊的安排，觀諸憲法本文，發現西方國會所行使之立法權、調查權以及修憲權等相關權力，在中華民國憲法架構下分別交由國民大會、立法院及監察院所行使，因此西方民主國家關於「國會」的概念，其精神絕不直接等同於中華民國憲法所定義之「國會」，因為三權憲法及五權憲法存在根本上的不同。本文從國父孫中山先生五權憲法架構下所探討「國會」之意義出發，還原國父孫中山先生對於「國會」機關的定位究竟為何；而中華民國憲法雖然是以國父孫中山先生所建構之憲政理論為依據，但仍受限於制憲時各方政治角力，相對於國父孫中山先生的理論架構而言（五權憲法之原型），憲法本文乃五權憲法之變型。而憲法施行未幾，旋即陷入國共戡亂戰事，中華民國政府為了因應變局，復制訂《動員戡亂時期臨時條款》凍結憲法若干條文，使得五權憲法的精神完全受到破壞。民國八十年儘管廢除了《動員戡亂時期臨時條款》，但馬上進入了一共七次的憲法增修，使得憲法本文從來未有真正長期落實的機會。本文擬分析中央政府遷臺後各個時期「國會」的變遷與發展，結合當代臺灣之憲法現狀架構及特殊的歷史背景，探討中華民國「議長中立」之可能性，並提出若干政策建議以供議會改革時參考。

The establishment and development of the Republic of China’s constitutional system is closely related to the “division of powers” theory conceived by the founding father Dr. Sun Yat-sen. In order to create a constitutional system in line with China’s national conditions, the founding father summarized his extensive experience gained from traveling the world. At the same time, the new system created in compliance with the doctrines in Europe and the United States, coupled with China’s fine traditions in the system since ancient times is said to be an unprecedented new invention. The Five-power constitution proposed by Dr. Sun Yat-sen not only possesses the traditional Western three-power separation, namely, administrative power, legislative power, and judicial power, the traditional Chinese examination power and supervisory power have been added, forming a globally unique five-power government structure. The founding father Dr. Sun Yat-sen positioned the national assembly as an organ of state power and positioned the five-power government as an organ of governance. Hopefully, through the above arrangement of powers under the constitutional system can ensure the people have the right and the government have the competency, ultimately leading to the creation of an “omnipotent government” that brings benefits to the country and its people.
In particular, equivalent to the relevant powers of the parliament in democratic western countries, there are also special arrangements in the five-power constitution framework. In view of the constitutional texts, it can be seen that the legislative power, investigative power, constitutional amendment power, and other relevant powers exercised by the congress in the West are exercised by the National Assembly, Legislative Yuan, and Control Yuan under the framework of the Republic of China. Therefore, the concept of “congress to democratic countries in the West, its essence, is by no means directly equivalent to the “parliament” defined in the Constitution of the Republic of China. This is because the Three-power Constitution and the Five-power Constitution differ fundamentally. In this paper, the significance of “parliament” under Dr. Sun Yat-sen’s Five-Power Constitution framework served as the starting point for restoring the positioning of an organ of parliament by the founding father Dr. Sun Yat-sen. On the other hand, although the Constitution of the Republic of China is based on the constitutional theory constructed by Dr. Sun Yat-sen, it was still restricted by political confrontation from all sides at the time of constitution-making. Relative to the founding father Dr. Sun Yat-sen’s theoretical framework (the prototype of the Five-power Constitution), the constitutional text is a variant of the Five-power Constitution. Shortly following the implementation of the constitution, the Kuomintang-Communist Civil War broke out. In coping with the situation, the government of the Republic of China enacted the Temporary Provisions Effective During the Period of National Mobilization for Suppression of the Communist Rebellion, freezing several articles in the constitution and completely sabotaging the spirit of the Five-power Constitution. Although the Temporary Provisions Effective During the Period of National Mobilization for Suppression of the Communist Rebellion was abolished in 1991, seven amendments to the constitution immediately took place. As a result, the constitutional text never had a chance for long-term implementation. In this paper, the changes and development of the “parliament” during different periods after the Central Government retreated to Taiwan were analyzed. It combined with the current constitutional structure of contemporary Taiwan and the special historical background were used to explore the possibility for impartiality of legislative speakers in the Republic of China. Several policy recommendations were also put forth to serve as a reference during parliamentary reform.
The establishment and development of the Republic of China’s constitutional system is closely related to the “division of powers” theory conceived by the founding father Dr. Sun Yat-sen. In order to create a constitutional system in line with China’s national conditions, the founding father summarized his extensive experience gained from traveling the world. At the same time, the new system created in compliance with the doctrines in Europe and the United States, coupled with China’s fine traditions in the system since ancient times is said to be an unprecedented new invention. The Five-power constitution proposed by Dr. Sun Yat-sen not only possesses the traditional Western three-power separation, namely, administrative power, legislative power, and judicial power, the traditional Chinese examination power and supervisory power have been added, forming a globally unique five-power government structure. The founding father Dr. Sun Yat-sen positioned the national assembly as an organ of state power and positioned the five-power government as an organ of governance. Hopefully, through the above arrangement of powers under the constitutional system can ensure the people have the right and the government have the competency, ultimately leading to the creation of an “omnipotent government” that brings benefits to the country and its people.
In particular, equivalent to the relevant powers of the parliament in democratic western countries, there are also special arrangements in the five-power constitution framework. In view of the constitutional texts, it can be seen that the legislative power, investigative power, constitutional amendment power, and other relevant powers exercised by the congress in the West are exercised by the National Assembly, Legislative Yuan, and Control Yuan under the framework of the Republic of China. Therefore, the concept of “congress to democratic countries in the West, its essence, is by no means directly equivalent to the “parliament” defined in the Constitution of the Republic of China. This is because the Three-power Constitution and the Five-power Constitution differ fundamentally. In this paper, the significance of “parliament” under Dr. Sun Yat-sen’s Five-Power Constitution framework served as the starting point for restoring the positioning of an organ of parliament by the founding father Dr. Sun Yat-sen. On the other hand, although the Constitution of the Republic of China is based on the constitutional theory constructed by Dr. Sun Yat-sen, it was still restricted by political confrontation from all sides at the time of constitution-making. Relative to the founding father Dr. Sun Yat-sen’s theoretical framework (the prototype of the Five-power Constitution), the constitutional text is a variant of the Five-power Constitution. Shortly following the implementation of the constitution, the Kuomintang-Communist Civil War broke out. In coping with the situation, the government of the Republic of China enacted the Temporary Provisions Effective During the Period of National Mobilization for Suppression of the Communist Rebellion, freezing several articles in the constitution and completely sabotaging the spirit of the Five-power Constitution. Although the Temporary Provisions Effective During the Period of National Mobilization for Suppression of the Communist Rebellion was abolished in 1991, seven amendments to the constitution immediately took place. As a result, the constitutional text never had a chance for long-term implementation. In this paper, the changes and development of the “parliament” during different periods after the Central Government retreated to Taiwan were analyzed. It combined with the current constitutional structure of contemporary Taiwan and the special historical background were used to explore the possibility for impartiality of legislative speakers in the Republic of China. Several policy recommendations were also put forth to serve as a reference during parliamentary reform.

國立國父紀念館

臺北市

投稿日：民國109年6月15日；接受刊登日：民國109年11月2日。