「部級」獨立管制委員會的憲政困境──第613號解釋之後通傳會發展歷程的批判觀察

Difficulties in the Constitutional Practices of the Independent Regulator at the Ministerial Level: The NCC Experiences after the Interpretation No. 613

法定獨立機關在我國憲法上的規範定位如何，大法官迄今針對真調會、通傳會、黨產會等3個任務、組織、職掌及作用準據各異的獨立機關涉及憲法爭議所作成3號解釋，其各自結論或理由均大異其趣。本文以通傳會為例，觀察、比較在大法官釋字第613號解釋作成之前及之後，其任務是否確實為「確保社會多元意見之表達、散布與公共監督目的之達成」？其組織及運作方式，是否又果真如該號解釋所謂「違背通傳會設計為獨立機關之建制目的」？本文捨棄規範面向上相關的憲法釋義內涵及其跨國比較，聚焦於在地憲政實踐脈絡中，跨越不同政黨執政時期，檢視大法官所宣示的憲法釋義，在事實面向上所面臨的現實落差及具體挑戰。

The independent regulatory agency is experiencing some kind of constitutional experiment in Taiwan. Staging in the government and high at the ministerial level, the National Communications Commission (NCC) dragged a lot of attention from political parties during the transition of power. The disputes about separation of powers and the following Interpretation No. 613 of the Justices thus sketched the political as well as the jurisprudential contour of this agency, giving it the quasi-constitutional mission of ensuring diversity yet pushing it back to the unitary structure of the Executive Yuan through the control of its personnel. As a result, NCC is losing its organizational innovativeness and now even confronted with the re-organization to give way to a novelty “Digital Ministry”.