論轉型正義與臺灣行政國正當性的重生   全文下載

Transitional Justice and the Re-Born of the Legitimate Administrative State in Taiwan

臺灣民主化所面對的轉型正義問題，大多圍繞著政治的領域，鮮少討論官僚體系的轉型正義問題。本文認為，這樣的忽略，讓臺灣行政國民主正當性的建立，只能從「回應」但無「責任」的民粹路徑前進。本文定位在理論論述，從「行政國正當性」、「行政倫理的方法論」及「轉型正義」三個層次，逐一建構。首先，本文從Waldo 的行政國理論出發，討論民主國家公共行政追尋獨立正當性的意義與重要性，這個問題也是公共行政「認同危機」的一環；接著，引入Cooper 以降，行政倫理研究探討「公共行政倫理的理論基礎」時，在方法論上強調歷史文化演進的反思、進行正當性之倫理基礎深化的工作。雖然，美國公共行政的發展，並沒有民主轉型的問題，但方法論上，思索建構公共行政正當性時，「面對國家歷史文化演進」的意識，卻是臺灣公共行政獨立正當性的尋求，所需面對並處理官僚文明中「統治階層幫手」的角色認知問題。最後，本文從「獨裁統治的代理人問題」、「公務人員自利性考量」和「旁觀者責任歸屬」等三論述，試圖喚起官僚對過去參與威權統治的罪惡感，進而集體反省官僚體系獨立性的意義，以期重建統治者與被統治者關係，讓臺灣行政國正當性能有重生的機會。本文最後提出三點建議：一、臺灣應從行政國的觀點整理威權統治的資料並進行研究，以達到彰顯轉型正義並留存歷史事實的目的；二、官僚體系的訓練中應加入轉型正義的概念，藉由回顧過去威權統治下官僚違反正義行為，反思民主政治中官僚體系獨立正當性的意義，建議可以在「行政中立」訓練中加入相關轉型正義的相關資料；三、關於公務人員體制的制度性改革，尤其是牽涉到官僚身分及報酬的部分，應站在轉型正義的角度，藉由公開、互動與專業的方式進行，以重構統治者與被統治者的關係。

In the past, the study of transitional justice is usually on politicians and the issue of human rights. Seldom are there discussions on the problem of bureaucracy and transitional justice. In this paper, authors use the argument of administrative state from Dwight Waldo to argue the importance of rebuilding legitimate administrative state in a transitional polity, such as Taiwan. The focus is to raise bureaucrat’s sense of “guilt” on participating in authoritarian ruling. Not until bureaucracy begins to collectively reflect their past roles played in the authoritarian regime, the reborn of bureaucratic independence and legitimate role in a democratic polity will not take place easily. The reform of the public service pension system (so-called the 18% issue) indicates a top-down effort to echo the call for transitional justice in the society. However, the reform is politically motivated and eventually disconnects with the purpose of rebuilding legitimate administrative state. Finally, authors propose three reform activities. First, on the issue of transitional justice in bureaucracy, documents’ collecting, preserving, and utilizing are the very first step toward rebuilding bureaucratic legitimacy. Second, the issued of transitional justice should be add to civil service training curriculum. Last, any reform on civil service institutions, especially on civil servant’s right to work and compensation, should be process in an open, interactive, and professional way.