半總統制下總統的法案推動和影響之研究：以蔡英文總統任期間的運作為例

A Study on the President’s Advocacy and Inf luence on Legislative Bills under a Semi-Presidential System: The Case of the Tsai Ing-wen Administration

本研究旨在探討我國總統在法案推動過程中的影響行為，並以蔡英文總統執政期間的實際案例為分析對象，進一步回應關於總統法案推動的理論觀點，並呈現半總統制體制下，總統權力在憲政實踐中的實際運作情況。與以往主要依賴行政院法案通過情況作為間接探測的研究方法不同，本文透過總統直接表達對法案的態度行為，進行實證檢驗，並創建了總統法案主導性（或介入）表達型態的分類，具體包括：宣達立法、推動指示、時效催促、定調拍板以及改變扭轉。此分類旨在更細緻地呈現總統在立法過程中的多面向影響力。
研究發現，首先，總統對法案的介入主要集中於其第一個任期，而在第二個任期則採取較為保守的立法策略，顯示其減少了對立法進程的直接干預。其次，從對法案的態度表達來看，最常見的方式是總統宣達政府法案的推動訊息，隨後是發出推動指示與提供指導意見，接著為強調立法時效的要求與催促。此外，還有一部分法案由總統拍板定案主導，但這些案件並未對既有法案內容進行實質性改動或扭轉。這些現象表明，蔡總統在法案推動過程中，通常採取的是具體且具有實質影響的行動，而非僅停留於形式上的象徵性表達。但本研究亦發現，儘管蔡總統對某些重要法案設有明確的期程要求，仍有部分法案未能按計畫在預定時間內完成三讀通過，這反映出即使在一致政府的情況下，總統所關注的法案並不一定能如期立法。這一情況顯示，「總統法案」的性質、各政府機關的政策立場，以及議程設定等多重因素，都對法案的通過產生影響。

This study examines the president’s advocacy and influence on legislative bills, using the Tsai Ing-wen administration as a case study. The research explores the constitutional realities of presidential power within a semi-presidential system by analyzing the advocacy of legislative bills through a self-developed theoretical framework. Unlike previous studies, which have indirectly assessed presidential influence by examining the passage of Executive Yuan bills, this paper directly studies the president’s role in the passing of legislative bills through the inspection of empirical data. The article introduces a classification of presidential leadership (or intervention) in the legislative process, encompassing five dimensions: announcing legislation, issuing directives, urging legislative timeliness, making final decisions, and altering or reversing bill content. Through this framework, the study provides deeper insights into the president’s role in the legislative process, offering a more comprehensive understanding of presidential influence within a semi-presidential system.
Several key findings emerge from this study. First, presidential involvement in passing legislative bills was more prominent during President Tsai’s first term, with her second term shifting towards a more conservative approach characterized by less direct intervention. Second, regarding the president’s attitude towards individual bills, the most frequent form of involvement was the announcement of government-backed legislative initiatives, followed by the issuance of directives or guidance, calls for timely legislative action, and direct involvement in final decision-making. However, no instances were observed where the president altered or reversed the content of existing bills. Such findings indicate that President Tsai exercised substantial influence over legislation, rather than merely adopting symbolic expressions. The study also reveals that some key bills failed to pass the third reading within the timeframes set by her directives. Despite President Tsai’s explicit timeline requirements for certain bills, some did not progress as planned, underscoring the limit ations of presidential influence even under a unified government. This situation highlights the impact of multiple factors—such as the nature of“president-led bills,”the policy stances of various government agencies, and agenda-setting dynamics—on the legislative outcomes of these bills.