考試院對地方自治團體組織權之監督－以臺北市政府組織編制案件為例

Abstract

地方制度法自公布施行後，我國正式邁入自治歷程，然地方自治團體要推動地方自治事項除要有完善財政，並須擁有自主組織權與人事權，但在我國五權憲政下，考試院並非是純考試機關，並具有人事行政之功能下，將地方自治團體之自主組織權的監督，切割為行政組織（機關單位數、名稱及員額等等）由行政院依地方制度法第六十二條規定「備查」，而「考銓業務」則由考試院依公務人員任用法第六條予以「核備」；然地方制度法所規定考銓業務亦是備查，兩者間確採取不同政策立場。 然就地方自治理論對於地方自治團體所要推動自治事項所須配備，是擁有自主權限，而組織權是其中一項重要的權限，組織權既然屬於自治事項則要有其自主空間，上級政府對於其監督方式更應注意：一、比例原則。二、友善原則。三、補充原則。四、便宜原則。並於審議地方自治團體組織時應考量：一、法律保留之限制。二、核心領域立法者之限制。三、地方保留之原則。四、比例原則，對地方自治團體採取較友善之態度，其次在大環境的變遷下，中央與地方已成為夥伴關係，新公共管理的思潮下，更是強調解除管制，低度的控制與監督等等，最後，台北市政府自直轄市自治法後，至地方制度法對於推動自治業務已具相當成熟性，及其身為首都城市，在全球化的環境下城市需要更具競爭力，因此必須配予更大的自治空間。 綜此，行政院對於地方自治團體之組織權目前已回歸地方制度法所規定之備查方式監督；而銓敘部以考銓業務為由，對於地方自治團體組織權，以官等職等配置準則進行合目的性及合法性的監督，即以核備方式進行審議，對於地方自治團體自主性日漸增高之際，實有再檢討的空間。

Republic of China is entering the autonomy process officially after Local Government Act is published. The local autonomous group has to be provided with good finance, autonomous organization rights and personnel rights to get local autonomy moving. According to the Five Powers Constitution in Republic of China, the Examination Yuan is not only an examination organization, but also has personnel administration function, which splits up the organization rights into administration organizations of supervision in local autonomous group. The Executive Yuan defined it as “for reference” according to the Local Government Act 62, however, the Examination Yuan defined it as “approval” according to the Civil Service Employment Act 6. Although the Local Government Act defined civil service as “for reference”, the political position between them is different. Local Autonomy Theory addressed that local autonomous group has autonomy power to push autonomy events, and organization rights is the most important one of it. If organization rights need flexibility of autonomy, the superior government should be more careful about the way of supervision: 1.Principle of Proportionality; 2.Principle of Good-Neighborliness; 3.Principal of Subsidiary; 4.Principal of Preference. While deliberates the local autonomous group organization should consider 4 principles as below: 1.Limitation of Law Reservation; 2.Limitation of Core Legislator; 3.Principle of Local Reservation; 4.Principle of Proportionality. Taking friendly attitude to local autonomous group, which made central and local governments as a partner in this huge transition environment. The main idea of New Public Management emphasized that to release control, or decrease the power of control and supervision…etc. Taipei city government already becomes experienced in executing autonomic events since Municipal Self-Government Law was published. As long as Taipei is a capital city, central government should allocate more autonomous flexibility to make Taipei city more competitive in such a global environment. In conclusion, the Executive Yuan already changed the supervised way of organization rights in local autonomous group into for reference, which is defined by Local Government Act. But Ministry of Civil Service defined it in Civil Service point of view to process legal supervision in allocating official position principle, which is the same as processing deliberation by approval. However, it should take more consideration while the autonomy in local autonomous group is getting stronger.