2019年『公民投票法』修法之檢討—2021年全國性公民投票實施情況的觀察

Abstract

2017年『公民投票法』修法，大幅降低公投提案連署及成案門檻，使2018年年底舉行之全國性公民投票公投提案爆增至10案，加上併同九合一選舉一起舉行，而產生許多亂象。為避免相關爭議再度發生，立法院於2019年再次修正『公民投票法』，而為瞭解該次修法是否能解決2018年公投因制度所產生之亂象，以及對修法後的第一次全國性公投所產生的影響及啟示，本研究透過文獻分析及訪談與該次修法相關之政府機關官員、立法委員和相關領域專家學者，輔以對2021年全國性公民投票運作之觀察，試圖就公投時間、公投綁大選、電子連署、聽證制度、不在籍投票等議題進行討論，並提出相關修法建議。

研究結果發現，目前公投審議時程尚屬妥適，無須立即修法。至於公投是否應綁大選，文獻顯示各有利弊，受訪者意見亦呈現分岐現象，本研究基於法安定性之考量，建議目前先維持現行制度，並持續觀察視後續有無修正必要。有關是否應採行電子連署，本研究認可電子連署之優點，且基於電子連署已明文規範在『公民投票法』中，認為應儘快於公投案進行試辦。有關聽證制度，主要涉及中選會是否應進行實質審查以及如何強化聽證程序等問題，本研究認為，應於公投中納入立法院及司法院的角色，以兼顧公投提案合憲及民意展現之功能，並建議將公投提案違憲審查之權責機關入法，以明確處理相關問題；至於在聽證程序強化方面，本研究則認為應強化政府協助公投提案方順利提案之程序，以彰顯公投實現直接民主之功能。最後在不在籍投票方面，基於目前社會氛圍、推動可行性及受訪者意見，本研究建議應先從全國性公投開始採行移轉投票，逐步推動不在籍投票。

The 2017 Amendment to the Referendum Act significantly lowered the thresholds for proposing and passing referendums, leading to a surge in national referendum proposals to 10 by the end of 2018. These referendums were held concurrently with the 9-in-1 elections and resulted in a highly chaotic and contentious situation. To prevent such controversies from recurring, the Legislative Yuan revised the Referendum Act again in 2019. The goal of this study is to assess whether the 2019 amendment to the Referendum Act addressed the issues arising from the 2018 referendums, and also to understand the impact and insights of the amendments on the 2021 national referendum, by reviewing and analyzing related literature and interviewing the government officials, legislators, and experts in the related field. Observations on the operation of the 2021 national referendum were also considered. The focus of the literature review and interviews is on issues such as referendum time, holding referendums alongside nationwide elections, e-petition, hearing procedures, and overseas voting, and proposing relevant legislative suggestions. Concerning the referendum time, this study finds that it is generally appropriate and does not require immediate amendment. Regarding whether referendums should be held alongside nationwide elections, the literature suggests both pros and cons and opinions from interviewees vary. Considering the stability of the law, the study recommends maintaining the current regulations and continuously monitoring for any necessary adjustments. As to the adoption of E-petitions, the study acknowledges the advantages and recommends it needs to be run soon since it is already regulated in the Referendum Act, and should be piloted in the referendums. Concerning the hearing procedures, the study suggests incorporating the roles of the Legislative Yuan and the Judicial Yuan in substantive reviews, to balance the constitutionality of referendum proposals and the expression of public opinion. Besides, it should also be stipulated clearly which authority is responsible for the constitutional reviews of referendums. Regarding strengthening the hearing process, the study suggests the government should enhance its function in assisting the proposal of referendum initiatives. Finally, considering the current social atmosphere in Taiwan, the feasibility of implementation, and the opinions of the interviewees, this study recommends the government should start implementing absentee voting from the transfer voting in the national referendums and then gradually promote other types in the referendums or even elections.