總統執政抑或責任內閣？──國民政府時期立憲中的行政權之定位

Presidential Administration or Responsible Cabinet? The Positioning of Executive Power in the Constitutional Movement during the Period of National Government

近代中國立憲中的行政權之定位，面臨著採用總統執政抑或責任內閣模式的問題。此問題極大反映並影響著民國政治局勢的發展。在國民政府時期的立憲中，「五五憲草」在制定過程中對行政權的定位從最初的責任內閣色彩不斷轉向總統執政模式。此部憲草採用的「行政集權制」存在總統獨裁、民意機構無法有效制約行政權的弊端，有違民主憲政的精神。抗戰後，政治協商會議所達致的「憲草修改原則」，對行政權的定位採取典型的責任內閣模式，更改了孫中山設計的「權能分立」的制憲原則，遭到國民黨中央常會的強烈反對。經過折衝，「政協憲草」更改了典型的責任內閣模式，但對行政權的定位未能凝聚協商各方的共識。經過立憲者的籌畫與操縱，制憲國民大會通過的《中華民國憲法》對行政權的定位採取修正的責任內閣模式，形成了一種新創制。對近代中國的立憲事業而言，建立一種使行政權既能集中行使又受民主制約的憲政體制頗為必要。《中華民國憲法》所形成的新創制雖已成功達致此點，但因受「臨時條款」的制定與修改之影響，在之後的憲政實踐中並未受到認真之對待，從而難以發揮應有的作用。

The constitutional movement of modern China faced the question of whether to adopt the model of presidential administration or a responsible cabinet system in positioning the executive power. This question both reflected and influenced the political situation during the Republican period. When the constitution was being established under the Nationalist government and the “Draft Constitution of May Fifth” (Wuwu xiancao 五五憲草) formulated, the role of the executive power continuously shifted from initially leaning towards a responsible cabinet system towards the model of presidential administration. The system of concentrated executive power formed by this constitutional draft had the drawbacks of presidential dictatorship and the inability of institutions of the popular will to effectively constrain the executive power, which was contrary to the spirit of democratic constitutional government. After the Anti-Japanese War, the “Principles for Revision of the Constitutional Draft” (Xiancao xiugai yuanze 憲草修改原則 ) reached by the Political Consultative Conference (PCC, Zhengzhi xieshang huiyi 政治協商會議) adopted a typical responsible cabinet model for executive power. This model changed Sun Yat-sen’s constitutional principle of a “separation of powers”, (quanneng fenli 權能分立), which was strongly opposed by the KMT Central Standing Committee. Through negotiations, the “PCC Constitution” (Zhengxie xiancao 政協憲草) made alterations to the standard responsible cabinet system, but failed to gather a consensus among all parties regarding the question of executive power. After the planning and maneuverings of the constitutionalists, the Constitution of the Republic of China drawn up in 1946 by the Constitutional National Assembly adopted a modified model of a responsible cabinet system; this was a new creation. In establishing a constitution for modern China, it was necessary to form a constitutional system that allows administrative power to be exercised effectively and yet be subject to democracy. Although the new system created by the Constitution of the Republic of China successfully achieved this goal, due to the influence of the formulation and modification of the “Provisional Terms” (Linshi tiaokuan 臨時條款), it was not seriously put into practice in the ensuing history of China, making it difficult for it to play its due role.