2004年總統選舉中公民投票之政策過程研究

Abstract

「三二0和平公投」在我國民主進程中具有里程碑之地位。首先，該公投是我國公投法完成三讀後第一次適用該法的公民投票。換句話說，三二0和平公投是我國民主史上第一次有法源依據的公投。其次，該公投是我國第一次以全國為投票範圍的公民投票。最後，由於該公投與總統大選在同日舉辦，也成為我國公投史上影響層面最廣，爭議性最大的公民投票。 根據政府當局的說法，舉辦三二0和平公投的目的，在於強化國防，並解決緊繃的兩岸關係。易言之，舉辦公投的主要目的，係在於展現民氣、了解民意，並藉此解決公共問題。因此，三二0和平公投可以視為一項為解決公共問題而產出的「公共政策」。準此，本研究採取客觀且科學的「公共政策過程」作為主要的研究途徑，對三二0和平公投這項公共政策的「問題認定」以及「政策過程」加以剖析。試圖藉此了解該公投究竟是立意良善且完美執行的公共政策，亦或者是民進黨政府為總統大選所進行的綁樁固樁的假公共政策。 研究結果顯示，在「問題認定」與「政策工具適用性」分析方面，三二0和平公投並無法有效解決政府當局宣稱的公共問題，反而在促進陳水扁總統連任上起了「公投綁大選」的作用。在「政策規劃」階段，本研究認為該公投並不具備充足的政策可行性，在政策論證方面亦乏善可陳。該公投亦缺乏和在野黨以及民間之雙向溝通管道的設計。在「政策合法化」階段，關於三二0和平公投中的幾項合法性爭議，政府當局都無法提出適法的解釋。在「政策執行」階段，研究發現民進黨政府係以「投票過半」，而非「公投過關」為主要的策略操作目標。在整個公共政策過程中，本研究發現整個公投的設計與執行都充滿了「公投選務綁大選」的影子。

The so-called“March 20 referendum”has the status with the milestone in our country's democratic process. The first, it is the first referendum that we carry out after the Referendum Law being finished third reading. In other words, “March 20 referendum”is the first referendum with law efficiency in our democratic history. The second, it is the first referendum taking the nationwide as voting range of our country. Finally, because it is hold on the same day with the general presidential election, it’s also influence most widely and make a huge controversy. According to the government said, the purpose to hold “March 20 referendum”is to strengthen national defense and resolve the tension of cross-strict relationship. In short, it is held to present people’s morale, find out the people will, and resolve the public problem. So “March 20 referendum”is considered as a public policy for resolving the public problem. Therefore, this research takes the objective and scientific “public policy process”as the main research approach and analyze this policy’s “problem identity”and “policy making process”. The research tries to understand whether this referendum is a policy of good-will conception and perfect enforcement or of a fake policy to kidnap the public opinion by the DDP government for the presidential election. The research results reveal that “March 20 referendum”can not effectively resolve the public problem but take effect of “referendum combine with presidential election ”on promoting President Chen to succeed second term by the analysis of “problem identity” and “fitness for policy instrument”. In the stage of “policy planning”, this research considers this referendum not have sufficient policy practicability, and the part of policy proof is also plain. The referendum is also short of the design to communicate with the oppositions and the civil. In the stage of “policy legitimacy”,the government can not offer legislative explanation regarding to some legitimacy disputes in “March 20 referendum”.In the stage of “policy enforcement”, it find out that the DDP government took “win the majority” instead of “passing referendum ”as the main strategy-operating goal. In the whole policy-making process, this research discovers that the entire design and enforcement is full of implication of “referendum combining with presidential election”.