公務人員言論自由之保障：公法與公共行政之整合研究

Abstract

過往公務員言論自由相關的研究多是公法學研究，本研究跨越純法學視角，同時結合「公法學」與「公共行政」兩學科途徑，來探討公務員言論自由的問題。 本研究的第一部分先從公共行政的角度切入，希冀能透過法律制度以及組織管理的改善，在源頭先行減少公務員言論自由爭議案件發生的可能性。本文認為公務員言論自由的問題可以從公共行政理論中「政治控制」與「官僚自主」的對比框架來觀察，政治控制論者主張嚴格限縮公務員的言論自由，官僚自主論則認為應賦予公務員一定程度的言論自由權。而公務員言論自由界限的問題實則是在「政治控制」與「官僚自主」兩端尋求一妥適的平衡點。基此，本文提出立法者應迅速建立揭弊法制、公務人員行政中立法應力求明確、管理者應注意游擊隊政府管理與衝突管理以及適度的文官政治化等相關實務建議。 本研究的第二部分，則結合公法學與公共行政兩個學科觀點，以美國法公務員言論自由審查架構Garcetti Test為對象進行檢討及改良，希望重新建構一更類型化也更明確的審查架構，以改善我國公務員言論自由保障不足的問題。本文認為Garcetti Test的第一階段職務言論門檻應予以保留，但應僅適用於狹義職務言論。第二階段的公共議題門檻應予廢除，改列為利益衡量的衡量參數之一。第三階段的利益衡量宜建立更細緻明確的利益衡量參數並賦予權重；此外也須特別審酌公務員的言論的正面利益。 最後，本文挑選我國數個個案，並結合本文重構的言論自由審查架構進行操作與討論。結果說明我國公務員言論自由保障確有不足，也證明公務員言論自由審查架構存在之必要。

The great majority of previous studies on civil servants’ freedom of speech were conducted from the perspective of public law. This thesis, by combining the disciplines of both public law and public administration, inspects this issue under a more comprehensive aspect. Based on the research of public administration, the first part of the thesis focuses on how to make management and institutions better in the public sector. Advocates of “political control of bureaucracy” tend to strictly limit the civil servants’ freedom of speech. On the other hand, proponents of “bureaucracy autonomy” believe that it’s not bad for the public interest if civil servants have the freedom of speech to a certain extent. Therefore, to reduce the dispute of civil servants’ freedom of speech at source, the thesis offers several practical suggestions to strike a balance between the two theories. Utilizing the research of public administration and public law, the second part of the thesis aims to develop a clearer and better categorized analytical framework of civil servant’s freedom of speech. The thesis reviews the Garcetti Test, a civil servants’ freedom of speech analytical framework in the United States, and makes several adjustments. The first threshold, the exclusion of speech pursuant to official job duties from the protection of freedom of speech, should be retained yet be applied strictly. The second threshold, the public concern threshold, should be abolished and readjusted as a factor in the third threshold. For the third threshold, the balancing test, a more meticulous standard shall be established. The thesis also suggests a series of factors to be included in the balancing test, proposes a weighting scheme, and highlights the factors related to speech’s positive benefit. In the last part, this thesis reviews various related cases under dispute that occurred in R.O.C. The research finds that civil servants of R.O.C. have little freedom of speech. Accordingly, the civil servant’s freedom of speech analytical framework developed by this thesis should be of great value.