臺灣縣市議會跨藍綠正副議長與議會表現之關聯探討─以臺北市和高雄市為例

Abstract

在臺灣縣市議會的歷史上，已發生多次正副議長當選人之黨籍分屬藍綠兩方，形成跨藍綠正副議長之景。此現象不但目前僅出現在臺灣地方層級，對於部分政黨政治程度較高的議會而言，跨藍綠的結果也不符合學理上的預期，但現有文獻對此缺乏探討。因此，本研究欲討論跨藍綠正副議長情況與後續議會運作表現之關聯，以及政黨因素在其中的影響。 本文以第十一屆臺北市議會、合併後的第一屆高雄市議會作為研究對象，並分別挑選同一政黨正副議長的第十屆臺北市議會和第二屆高雄市議會為參考屆次，以對照議會表現之變化。在研究操作上，使用會議次數、會期天數、議決案數、總預算案審議時長、總預算刪減幅度與比例共五項操作化指標分析議會表現，再藉由當事議員的深度訪談，呈現指標結果之主要成因與該屆跨藍綠正副議長的行為與角色。 結果顯示第十一屆臺北市議會的表現大抵未受影響。縱然正副議長具備利於自身黨派的原因和行為表現，然而在議長擅於調解分歧且副議長受限於備位性之下，並沒有演變成雙方引領衝突而導致議會表現低落。另一方面，第一屆高雄市議會正副議長同樣分別代表不同陣營的政治利益，不過在議事權力近乎由議長把持之下，副議長缺乏對等的影響力，故藍綠抗衡並非發生於兩人之間，而該屆較差的議會表現則主要受到藍綠席次差距小、縣市合併和府會關係不佳等因素影響。 本研究呼應了過往中央立法院長的研究成果，顯示縣市議會正副議長也會受到政黨影響而有議事不中立的可能。然而跨藍綠正副議長現象與議會表現之間並無直接的相關性，兩個研究案例的結果並不相同，也看出仍受府會關係、正副議長分工型態等其他因素影響。

Throughout the history of Taiwan local councils, there have been several cases where the elected speaker and deputy speaker belonged to different political affiliations, forming a bipartisan leadership across the pan-blue and pan-green parties. This phenomenon has only been observed at the local level so far. Moreover, for some councils with a high degree of party politics, such bipartisan results are theoretically unexpected, while existing literature lacks discussion of this issue. Therefore, this thesis aims to examine the relationship between bipartisan leadership and subsequent councils’ performance, as well as the influence of parties. The research focuses on the 11th Taipei City Council and the first Kaohsiung City Council (after the municipal merger). Also, to compare performance, the 10th Taipei City Council and the 2nd Kaohsiung City Council, both of which had speakers and deputy speakers from the same political party, are chosen to analyze. The research uses five indicators to evaluate councils’ performance: times of sessions, days of sittings, the number of resolutions, the duration of budgetary bills deliberations, and the amount and percentage of budget cutbacks. Additionally, in-depth interviews with council members are conducted in order to contextualize the outcomes and illustrate the roles and behaviors of bipartisan speakers and deputy speakers. The results show that the performance of the 11th Taipei City Council was nearly unchanged. Although the speaker and deputy speaker had tendencies and behaviors that favored their respective parties, the speaker’s ability to moderate disagreement and the deputy speaker’s secondary role prevented their differences from escalating into leadership-driven conflicts that could have negatively impacted council performance. On the other hand, in the first Kaohsiung City Council, both the speaker and deputy speaker also represented different political interests. However, legislative power was mostly in the speaker’s hands, leaving the deputy speaker with limited influence. As a consequence, partisan confrontation did not arise between the two leaders. The council’s poorer performance was primarily influenced by factors such as the narrow margin of seats between the pan-blue and pan-green parties, the challenges of municipal merger, and worse executive-legislative relations. This study echoes previous research regarding the President of the Legislative Yuan, suggesting that local council speakers and deputy speakers are also subject to partisan influences, which may compromise legislative neutrality. Nevertheless, there is no direct correlation between bipartisan leadership and council performance. The divergent outcomes observed in the two cases indicate that other factors—such as executive-legislative relations and the division of labor between the speaker and deputy speaker—also play important roles.