從法制層面論德國因應疾病大流行之防治措施——兼論科技防疫工具應用之比例原則檢驗

Discussion of Epidemic Control Measures Adopted by Germany from the Perspective of the Legal System: Examination of the Principle Proportionality in the Application of Technology Tools for Epidemic Prevention

2020年3月起在德國發生大流行的新冠肺炎，對聯邦及各邦之日常公共衛生體系造成極大負擔，醫療資源之運用也出現缺口，既有法制難以直接因應快速變化及擴散的疫病大流行（Pandemic）。為迅速有效應變疫情危機且又符合民主體制的運作模式及法治國原則的規範底線，德國國會從2020年3月至11月期間，以「條款法典」之模式，緊急通過第一次至第三次《全國範圍流行病情勢下之國民保護法》並快速施行。藉由修正及增訂《傳染病防治法》等防疫相關法典之部分條文，以強化並擴充聯邦衛生部及其他防疫官署，因應疫情發展狀態發布行政命令之權限，使其得採取強制性防疫措施、制訂各類經濟紓困與薪資補貼辦法。同時，緊急立法還賦予聯邦衛生部開發並推動App防疫之法源依據，期能控制疫情之散布速度與範圍。然而，不論是數位科技工具投入防疫、限制出入公共場所或強制佩戴口罩義務等，均無法排除是否侵害基本人權之爭議，故仍需透過法治國原則和比例原則進一步檢驗並深入探討。

The severe wave of COVID-19 which hit Germany in March 2020 put an enormous burden on the daily operations of the federal and state public health systems. Significant shortfalls in available medical resources occurred and the existing legal system was inadequate in terms of a direct response to the rapidly evolving and spreading pandemic. With a view to facilitating a rapid and effective response to the COVID-19 crisis in line with the democratic mode of governance and the normative foundation of the rule of law, the German Bundestag (parliament) passed emergency legislation in codified form in the period from March to November. The first to third Gesetz zum Schutz der Bevölkerung bei einer epidemischen Lage von nationaler Tragweite (Civil Protection Act for Nationwide Epidemics) was passed and rapidly put into effect. Certain provisions of epidemic prevention-related legal codes such as the Infektionsschutzgesetz (Infection Protection Act) have been revised and amended to strengthen and expand the authority of the Bundesgesundheitsministerium (Federal Ministry of Health) and other epidemic prevention agencies to issue executive orders, impose mandatory epidemic prevention measures, and formulate various economic relief and salary subsidy guidelines in line with the current state of the pandemic. The aforementioned emergency legislation further provided the Federal Ministry of Health with the legal basis for developing and promoting epidemic prevention-related apps to control the speed and scope of the spreading pandemic. However, the use of digital technology tools for epidemic prevention, access restrictions to public places, and compulsory mask mandates have been highly controversial and are often considered violations of basic human rights. These measures must therefore be further examined and analyzed based on the principle of the rule of law and the principle of proportionality.