災害防救法架構下國軍任務賦予法理評析

A Legal Analysis on the Use of R.O.C. Military Missions for Domestic Disaster Relief

軍隊為國家武裝力量，調度軍隊為國家武力之行使。對外，國家武力之行使必須受到聯合國憲章第2 條第4 款之限制，亦即武力禁止使用之原則；除因行使自衛權及安理會授權外，不得使用武力。對內，國家武力之行使，亦應當受國內法之規範；軍隊之任務賦予以及調度之時機與授權機制，均須受憲法制約。國家安全向來為國家利益之所繫，而在傳統觀念下之國家安全之實踐，即為以國家武裝力量維護國家安全，以確保國家利益，此亦為軍隊存在之傳統任務。時至今日，由於影響國家安全之事由多樣化，不但影響維護國家安全手段之運用種類，亦進而改變並轉換軍隊任務。外來之軍事或非軍事力量固然是影響國家安全之因素，國內天然災害所造成緊急狀態及民情不穩，亦嚴重影響國家安全，進而損害國家利益。因此，國軍之任務除作戰之外，更於屢次天然及人為災害，從事搶救任務。國軍救災任務初無法源，民國99 年先後公布施行及修正之災害防救法及國防法，雖然在法制面賦予國軍救災任務，然在使用軍隊及統帥權之憲法法理面仍有瑕疵。本文主張國軍救災任務賦予不應與國防武力目的混淆，建議另立專法規範國軍救災任務，以符憲法明定國防目的以及國家安全需要。

Troops are the armed forces of a state, so the so-called mobilization is the use of armed forces of a state. The use of armed forces of a state in international relations, except for self-defense or authorization under Security Council, is prohibited under United Nations Charter Article 2(4). Internally, the exercise of the national armed forces should be governed by the norms of domestic law; the army where the task is sent to, its timing and scheduling of authorization mechanisms are subject to constitutional constraints. Under the concept of national security, it is the military's conventional duty to protect national interest. However, for those of natural disasters causing property damages and tremendous casualties, the national troops have to assume non-combatant assignments dealing with non-military factors to ensure national safety and interest. In addition to the conventional duty on national defense, the R.O.C. armies have responded to almost every major natural and manmade disaster for the past years. However, the use of national troops for disaster relief had not been authorized by any statute until the effectiveness of Disaster Prevention and Protection Act was taken into effect in 2000. Prior to its amendment in 2010, the military may use disaster relief only upon the request of local governors. The 2010 amendment mandates national troops able to execute disaster relief without the request of local governors in case of major disasters. And the National Defense Act stipulates disaster relief based on the aim of national defense of R.O.C. However, these statutes lack of constitutional basis to give mandates on aims of national defense and legislation power of the central government on national defense and military affairs; moreover, once implemented they are in conflict with the Commander-in-Chief powers vested in the President under Constitution. In order to find a resolution, this article explores the legal aspects on the use of military for domestic natural disaster relief and proposes comments on its necessity. This paper contends that military relief mission should not be confused with the national defense. It is suggested that separate laws and regulations of the armed forces for disaster relief missions, should be able to meet the Constitution codified the national defense and national security needs.