從德國聯邦憲法法院「歐洲穩定機制」判決──試論我國「服貿協議」之國會參與權與資訊權

The Decision of the German Federal Constitutional Court on the “European Stability Mechanism”: Reflections on the Congressional Processes of Ratification for “Cross-Strait Service Trade Agreement”

2008年全球金融危機，導致歐洲陷入歐債危機，為挽救歐元區不至瓦解，並維護歐元區的金融穩定，歐元區會員國決議建立一個永久性的歐洲穩定機制（ESM）。然德國聯邦眾議院認為，在簽訂歐洲穩定機制條約（ESM-Vertrag）之前以及關於條約之內容，德國聯邦政府未依基本法第23條第2項之規定，盡到充分資訊告知義務，進而侵害聯邦眾議院對歐盟事務之參與權。本案涉及之聯邦憲法機關權限爭議，在權力分立下行政權與立法權產生的衝突，是否導出國會參與權與資訊權的必要。本文首先從德國聯邦憲法法院2012年6月19日所作出的「歐洲穩定機制」判決，介紹本案事實與爭點、裁判要旨及判決理由，因最終聯邦憲法法院判決聯邦政府敗訴，並導致了德國聯邦政府與聯邦眾議院有關歐盟事務合作法（EUZBBG）之重大修正制訂。再從比較法之觀點，討論「海峽兩岸服務貿易協議」之簽署，雖則行政權與立法權沆瀣一氣，將該協議在未經實質審查的情況下逕予通過，而引發國會是否應有參與權與資訊權之爭議，本文乃就兩岸事務之規範基礎，論述兩岸協議之性質，再論服貿協議審查程序之爭議，參考前揭判決以及德國立法規定，最後結論提出建議應制定兩岸協議監督條例，立法明文強化國會就兩岸事務之參與權及資訊權。

The global financial crisis in 2008 leads to the European debt crisis. To save the euro and maintain financial stability in the euro area, the euro area Member States propose a permanent resolution of the European Stability Mechanism (ESM). However, the Bundestag asserts that its rights of participation in EU matters, especially in terms of the Draft Treaty establishing the ESM and the Euro Plus Pact, have been infringed as the Bundeskabinett fails to meet the information disclosure obligation. The Second Senate of the Federal Constitutional Court rules that the Federal Government infringes the German Parliaments rights to be informed under Article 23.2 sentence 2 GG.
Taiwan signs the Cross-Strait Service Trade Agreement (CSSTA) with China amid great controversy in the Legislative Yuan. The CSSTA should be reviewed on a clause-by-clause basis, along with more transparency in the negotiation process. The ESM case in Germany sets an example for us.