權力的衝突或制衡？羅馬尼亞、斯洛維尼亞、保加利亞共治期間難民政策運作之研究

“Checks and Balances”or Conflict? A Study on the Operation of Refugee Policy During the Cohabitation in Romania, Slovenia and Bulgaria

近來民粹主義與右翼政黨興起，隨著難民危機爆發，為歐盟治理 帶來嚴峻的挑戰。難民治理在歐盟超國家機制與會員國力量的互動下 形塑出當今樣貌，然會員國在歐盟的意見，來自於其國家內部因素的 影響，因此，在半總統制民主國家中，總統、總理與國會的互動方式 也直接或間接影響難民議題在歐盟內的走向。過往文獻認為，共治期間總統與總理的衝突會為一國帶來不穩定 的狀態。但經過對難民議題與共治内涵的深入追蹤與分析，本文認為 這樣衝突的狀態代表半總統制下權力的制衡，然這個過程不僅能將民 意反映至政府運作過程當中，也將共治下的政府權力運作帶回到民主 憲政意義之上。因此若能將衝突正面看待，對於難民問題此一高度政 治性與爭議性的領域則可帶來更多的討論空間。故本文指出，共治雖 然使憲政運作不穩定，在此結構下各行為者權力的制衡帶來衝突，但 也提供了解決問題的契機，亦即透過制衡關係來調適政策衝突，才能 使一國民主健康發展。據此，本文自比較研究的視野出發，首先討論 半總統制理論與難民政策研究，接著以實證資料分析與比較三個半總 統制國家中總統與總理在共治期間對難民政策有何合作與衝突，最後 則結合憲政研究與國際關係視野，提出結論。

For a long time, cohabitation, with its normative and practical aspects both emphasized, has been highly regarded in semi-presidential study due to its academic as well as political significance. Though cohabitation is not an obligatory political outcome in semi-presidential nations, in view of the cabinet system in semi-presidential constitutions and the three cohabitation examples in France, many researchers show high interest in the influence and the necessity of cohabitation. This paper assesses whether prime minister should cooperate with president in the period of cohabitation. We develop a refugee policy analysis to explain the dynamic of cohabitation in Slovenia, Romania and Bulgaria. These countries have serious refugee problems, moreover, the pressure between European Union and domestic politics also interrupt the relationship between president, prime minister and parliament. Through comparative research and data of public opinion survey, we analyze president and prime minister’s reaction to refugees, and argues that conflicts do not necessarily lead to negative outcome. Cohabitation may a critical approach to deal with this kind of highly controversial problems.