論我國公務人員程序保障法制之變革

On the Reform of the Legal System of Procedural Protection for Civil Servants in Taiwan

我國於民國85年10月6日制定公布公務人員保障法（下稱保障法），就公務人員權益之保障程序採取復審再復審、申訴再申訴雙軌制度，以行政行為是否具有行政處分性質作為劃分標準。嗣後保障法內容雖然歷經四次大小幅度的修改，包括廢除再復審制度，但復審與申訴再申訴雙軌併行的設計仍然維持不變。嗣司法院釋字第785號明白揭示，本於憲法第16條有權利即有救濟之意旨，人民並不因其公務人員身分而異其公法上爭議之訴訟救濟途徑之保障，從而我國公務人員之權利救濟即應正式告別特別權力關係之桎梏，回歸一般權利救濟之常軌。準此，我國現行公務人員權利救濟制度是否能夠迅速、妥適、有效維護公務人員權益，即有必要進行全面性的檢討。保障法上述復審及申訴再申訴制度雙軌制度，是否仍有維持之必要，以及申訴再申訴制度能否有效協助公務人員銜接後續的行政訴訟類型，即值得深入探討。又行政法上之權利救濟機制包含「非正式」及「正式」之權利救濟兩者，惟我國公務人員之程序保障，除保障法及行政訴訟法規定之正式權利救濟途徑外，別無其他規範。為迅速、妥適、有效保障公務人員權益，如何拓展公務人員「非正式權利救濟」之管道，亦屬當前之重要課題。本文爰參考德國法制，提出精進我國公務人員程序保障法制之建議。

On October 6, 1996, Taiwan promulgated the Civil Service Protection Act (hereinafter referred to as the Protection Act), which adopts a dual-track system of petition and re- petition, and appeal and reappeal in the protection procedures for the rights and interests of civil servants. The criterion for distinction is whether the administrative behavior has the nature of“Administrative Act”. Although the content of the Protection Act has been amended four times, including the abolition of the re- petition system, the dual-track design of petition and appeal and re-appeal remains unchanged. On November 29, 2019, Interpretation No. 785 of the Judicial Yuan clearly reveals that in accordance with Article 16 of the Constitution, people are not less protected for litigation remedies in disputes under public law simply because of their status as civil servants. Therefore, the rights relief of Taiwan's civil servants should formally bid farewell to the shackles of special power relations and return to the normal track of general rights relief. It is worthy of further discussions on whether the dual-track system of petition for deliberation procedure and appeal re-appeal procedure in Civil Service Protection Act is still necessary, and whether the appeal and re-appeal system can effectively assist civil servants in connecting with subsequent types of administrative litigation. Furthermore, in order to quickly, appropriately and effectively protect the rights and interests of civil servants, how to expand the ways for ''informal rights relief'' for civil servants is also an important issue at present. With reference to the Germany legal system, this article puts forward suggestions for improving the legal system of procedural protection for civil servants in Taiwan.