兩岸人民關係條例的國家安全分析：以「台灣地區人民進入大陸地區」為例

Abstract

歷經十餘年的實施，台灣地區與大陸地區人民關係條例已成為我國規範兩岸關係與人民往來最為重要的法律規範，也扮演著兩岸關係國家安全閥的重要機制，因此，本文嘗試以國家安全的視角來進行兩岸人民關係條例的解析，並以「台灣地區人民進入大陸地區」相關法規制度作為研究分析之標的。 首先，本文奠基於非傳統安全研究理論，界定出「主權維護」、「國境管控」、「經濟治理」和「社會保障」四項國家安全利益分析指標，並以「立即重大」、「重大」、「主要」、「次要」作為分析安全利益威脅強度的判準，進一步建構出國家安全的分析矩陣，用以分析兩岸條例中的相關法制規範和制度設計。其次，對於國家安全的抽象概念與兩岸人民關係條例的具體措施，本文選擇以「管制理論」作為中介加以連結，援引「管制理論三層次分析方法」作為分析的框架，將尋求國家安全和兩岸人民關係條例之間的理論連結，並從「政策與策略」、「制度與程序」、「權利與救濟」等不同面向對於兩岸人民關係條例的相關議題進行分析。 而對於兩岸條例「台灣地區人民進入大陸地區」涉及國家安全的相關議題，本文則是以人口移動概念和所涉及的法制內涵，區分為「境內管制」、「國境線上管制」、「境外管制」和「跨境管制」四類，以分別討論兩岸條例在修法中所涉及的「單一身分」、「入出境管理」、「擔任職務或為其成員」、「合作行為、聯合設立法人締結聯盟」及「台灣地區人民經小三通進入大陸地區」等五項議題。 持平而論，本文認為透過國家安全管制分析，確實更能夠掌握兩岸人民關係條例在修法過程中整體策略思考的脈絡，也更能夠完整分析其所在國家安全的法令規範與制度設計，進而更為貼近兩岸人民關係條例修法的初衷。就此論之，可以說，國家安全管制分析確能作為兩岸人民關係條例的新定位，而為相關研究提供一個嶄新的視野。

Over the past decade, Act Governing Relations between Peoples of the Taiwan Area and the Mainland Area, the national security valve between the two sides of the Taiwan Strait, has become the most important law regulating cross-strait relationship and personnel exchanges. This study analyzes the Act from the perspective of national security and aims at the regulations of “Taiwanese people traveling to and from the Mainland Area”. First of all, based on nontraditional security studies, a matrix to analyze the regulations and system design is composed of four national security interest indicators---“sovereignty maintenance”,” border control”,” economic governance”,” social protection” and issue emergency orders---“emergency issues”, “important issues”, “major issues”, “minor issues”. In addition, using regulation theory as the mediator between the concept of national security and the Act, this study examines the regulations from the dimensions of policy and strategy, institutions and procedures, and rights and remedies. As for the issues concerning national security in the regulations of “Taiwanese people traveling to and from the Mainland Area”, they are divided into four parts according to personnel movement and legal content--- regulations behind-the-border at the border, beyond the border, and cross-border and five issues as “single household registration”, “exit and entry control”, “position or membership”, “cooperative activities, juristic person, coalition”, and “Taiwanese people traveling to and from the Mainland Area via the ’Mini-Three-Links’ route”. Through the framework of national security and the three dimensions analysis of regulation theory, this study tries to find out the policy nature and system design of the regulation on Taiwanese people traveling to and from the Mainland Area and a new positioning of the act study.