公民會議在台灣的運作與評估

Abstract

公民會議的制度形成，乃緣自於歐美商議式民主的理念，進而演化發展出的一種公眾商議制度。台灣引進該制不久，亦嘗試使用其相關運作模式與理念，辦理爭論性與價值衝突叢生相關的公民會議，但是其中仍出現許多問題，需要去克服與解決。本文主旨乃針對公民會議的理論、核心價值予以深度剖析與分解，再以稅制改革公民會議的實際個案，觀察其辦理與運作的情形，予以檢視與了解實務進行的情形。之後再對公民會議的制度屬性與功能，作一番較為周延的解析，描繪出公民會議的制度樣貌。再歸結公民會議實踐與運作評估的面向為四項，即代表性、程序規範性、可接受性及結果性，以之建構公民會議良善運作的評估面向與標準，可以作為其他商議民主機制運營的參考標竿。此外，首度以SWOT分析的方法，評估公民會議制度在台灣的發展。 嗣經理論研究及個案分析，發現商議式民主對於台灣民主發展有兩大省思：第一，其對於政策形成與制定的啟發；第二，補強民主參與品質失衡的部分。本文最後再提出行政、立法、民間社會三方面的政策建議。首先就行政相關面向有六項：行政院成立跨部會的商議民主推動專責小組整合相關資源，增進國家文官對於商議民主的知能，促成商議民主研究基金會或中心，設置電子化商議溝通平台，定期舉辦相關公民會議與商議民主的種仔培訓營，與強化公民教育。次之就立法面向也有三項建議：本位主義與攬權心態的調整，設立國會通過立法的「科技與政策評估獨立委員會」組織，以運營公民會議與商議式民主機制與模式，及檢視、整合及修正既有相關公眾商議的法規。有關民間社會面向的建議亦有三項：民間社會與政府協力運營商議民主機制的落實，以社區、社群為治理主體，將公民會議與商議民主機制，有效結合切身日常生活的公眾議題，並適切汲取歐美先進國家的商議民主運營經驗。

Abstract The institution the citizen consensus conference is originated from the concept of European and American deliberative democracy, and has developed into a type of public deliberation institution. Taiwan has recently adopted this notion and made an attempt to transplant its operation mode and conception to conduct the citizen consensus conference on the aspect controversial and value conflicting issues. Nevertheless, there are lots of problems that still need to be tackled and solved. The study delves into the theory and core value of the consensus conference and observes its handling and operation through the real case study on the citizen consensus conference of national tax reform in an effort to conduct a review and get a comprehensive picture of its integral process. The study also gives us a complete analysis on the institutional attributes and functions of consensus conference and depicts the shapes. The practice and operational evaluation of the citizen consensus conference may be divided into four categories：namely representation, procedural standards, acceptability and outcomes evaluation. According to these four dimensions, the study also aims at constructing a good evaluation system and setting standards which may be employed in other deliberative democracy mechanism as reference to. Moreover, the study initiaties to apply SWOT to evaluate the development of the citizen consensus conference in Taiwan. The deliberative democracy comprises two major reflections toward the democratic development in Taiwan: first, the enlightenment of policy formation and formulation; second, the strengthening of the unbalanced democratic participation quality. In conclusion, the study provides policy suggestions for administration agency, legislaters and the civil society. The suggestions for the administrative agency include: 1. Establishment of promoting cross-agency deliberative democracy task force to integrate relevant resources; 2. Enhancement of civil servants’ knowledge in deliberative democracy; 3. Furtherance of deliberative democracy research foundation or center; 4. Establishment of e-communication platform for deliberation; 5. Regular organization of the citizen consensus conference and deliberative democracy training camps or programs; 6. Reinforcement of civil education. The suggestions for the legislature include: 1. Adjustment of the attitude toward sectionalism and power centralization; 2. Establishment of “Technology and Policy Evaluation Independent Committee” through the legislation of the Congress; 3. Employment of the citizen consensus conference and deliberative democracy mechanism to evaluate, integrate and amend the existing public deliberation laws and regulations. The suggestions for the civil society include: 1. Cooperation of the civil society and government to accelerate the implementation of deliberative democracy mechanism; 2. Effective combination of the citizen consensus conference and deliberative democracy mechanism with the public daily issues under the principle of putting community and society as the subject of governance; 3. Absorption of the essence of the deliberative democracy operation experiences from developed countries in Europe and America.