台灣地區人民赴大陸地區任職管制之實務分析：以鄧文聰案為例

Regulation of Taiwan Citizens Holding Positions in China: The Eric Teng Case

隨著兩岸情勢的變化及經貿活動的頻密，兩岸交流樣態也日益增多，臺灣地區人民前往大陸地區任職或為其成員更是大幅增加，衍生爭議也更為複雜。儘管根據《臺灣地區人民與大陸地區人民關係條例》（以下簡稱「兩岸條例」）第33條之規定，臺灣地區人民赴陸擔任黨政軍機關及所屬之機構團體或附屬單位職務，均屬違法之行為，但國安局2012年仍提送了169位涉及違反上開規定的臺灣民眾，桐經政府相關部門近一年的清查，仍有32人確定觸法或可能觸法。本案例主人翁鄧文聰先生，因遭海基會檢舉擔任「上海市歸國華僑聯合會」（以下簡稱「上海僑聯」）海外及港澳臺委員職務，陸委會認為此項職務屬該會依「兩岸條例」第33條第2項規定，於2004年3月1日公告禁止擔任職務或為其成員之大陸地區政治性團體。陸委會遂函請內政部依「兩岸條例」第90條第3項規定，罰緩新臺幣10萬元。鄧因此不服，向行政院訴願委員會提出訴願，獲該委員會撤銷原處分之決定。「兩岸條例」的本質是管制法規，本論文運用葉俊榮教授所提出的管制理論三層次分析架構，首先描述此一案情結構，包括：管制環境、管制結構、管制流程、管制機關與權限、管制法令與結構等等；其次再分別從權利與救濟、制度與程序、政策與策略，對此一個案進行管制是否合情合理的討論，進而對現行臺灣地區人民赴大陸地區任職之管制機制提出建言。

As the cross-Strait situation has changed and economic and trade activities between the two sides have increased, the types of exchanges between the two sides have expanded and diversified. The number of Taiwan citizens taking up employment or organizational membership in China has risen dramatically and led to a complex controversy. Article 33 of the Act Governing Relations between Peoples of the Taiwan Area and the Mainland Area (hereafter abbreviated as the Cross-Strait Act) prohibits Taiwan citizens from holding positions or membership in party, state and military institutions or their affiliated organizations in China. However, in 2012 Taiwan’s National Security Bureau raised 169 cases of Taiwan citizens violating this provision and investigations by relevant government departments during the past year show that 32 people remain in violation, or possibly in violation, of the law. In the case examined in this study, Taiwan's Straits Exchange Foundation reported that Taiwanese businessman Eric Teng held a seat on a committee representing Taiwan (along with Hong and Macau) on the Shanghai City Federation for Returned Overseas Chinese. On 1 March 2014, the Mainland Affairs Council announced that Teng was in violation of the Cross-Strait Act's prohibition of Taiwan citizens' membership in organizations of a political nature in China and requested the Interior Ministry issue Teng a fine of 10,000 New Taiwan Dollars in accordance with Article 90, Section 2 of the Cross-Strait Act. Teng filed an appeal with the Executive Yuan's Appeals Committee, which ruled to revoke the decision to take disciplinary action against him. The Cross-Strait Act is essentially a regulatory statute. This study applies Jiunn-rong Yeh's three-level regulatory theory analytical framework to examine th Eric Teng case. It first describes the structure of the case, including the regulatory environment, regulatory structure, regulatory process, regulatory bodies and jurisdictions, and regulatory laws and structures. Second, the paper discusses whether or not regulation is reasonable in this case from the perspective of rights, relief, system and process, and policy and strategy. Finally, the author offers some recommendations for Taiwan's regulatory mechanism regarding Taiwan citizens holding positions in China.