陸資企業來台直接投資審查機制之探討-以中國移動來台直接投資為例

Abstract

政府自2009年6月30日正式開放陸資來台投資，並公布第一階段陸資得投資之正面表列項目，因對於「陸資」多所限制，造成開放陸資來臺投資之成效不彰。然而，外人直接投資對台灣經濟及產業的貢獻是有目共睹的。因此本研究之目的：1.瞭解政府將現行外人投資分為「外資」及「陸資」有無需要及實益？有無違背政府鼓勵外人來台直接投資之目的？2. 另開放陸資企業來台若涉及國家安全之問題，現行投資審查機制是否周延？能否確保國家安全？欲藉由外人投資審查機制之說明，期建立周全之投資審查機制。 本論文係採取個案分析研究方式，即藉由中國移動投資入股遠傳電信之個案，蒐集相關陸資企業來台投資所會面臨之問題進行深層描述與應用成效分析，資料蒐集以次級資料蒐集為主，蒐集方向以個案研究對象為中心針對相關議題廣泛進行次級資料蒐集，蒐集範圍包括中國移動、遠傳電信之業務內容及我國相關配合陸資企業來台投資之法規制度以及現況等方向。 經研究結果發現，政府對於陸資企業來台直接投資既屬積極開放之政策，但目前政府第一階段開放直接投資之項目顯與陸資企業可能來台投資的產業項目有所落差。再者，依現行投資許可辦法之規範，不論在「陸資」或「外資」的區別上，或對於陸資來台投資所可能造成一些負面的影響，包含國家安全之議題，尚無法防範於事先，實無法達成預期之經濟效益或目的。 由於將來陸資的投資案會愈來愈多，可能涉及到相關「國家安全」等問題，政府相關單位應該儘早制訂完善的審查機制，並研擬相關修法建議。甚至，應包含違反規定之處罰條款，如類似美國政府扣押其名下所有財產或德國政府所採用之刑事責任。如此才可在自由開放的外（陸）資政策與健全完善的審查機制間取得平衡，即在享受外（陸）資對台灣帶來好處的同時，又可以確保台灣的國家及經濟安全。

On June 30, 2009, the official policy allowing PRC enterprises to invest in Taiwan began with Phase I, which included an itemized schedule of investable items. Due to multiple limitations in capital from PRC enterprises, the new policy has not been successful. However, it is evident that FDI has made significant contributions to Taiwan’s economy and industry. The objectives of this study include: (1) understanding whether it is necessary and meaningful to differentiate the current FDI concept by those from foreign enterprises or PRC enterprises, and analyzing whether such distinction is against the intent to encourage FDI; and (2) since there are national security issues related to the policy to open PRC enterprises to invest in Taiwan, by the same logic, there would also be national security issues related to FDI. By examining the FDI audit process, this study aims to establish a solid investment audit mechanism. This study adopts a case study approach to achieve the aforementioned goals by analyzing the case of China Mobile investing in FET. It analyzes in-depth the problems PRC enterprises may encounter when investing in Taiwan. Secondary data focuses on the business scope of China Mobile and FET and the relevant legal system for PRC enterprises to invest in Taiwan. The study found that even though the policy to open PRC enterprises to invest in Taiwan is supposed to be an open policy, there is a significant discrepancy between the specified items open for direct investment and the investable items that PRC enterprises may invest in Taiwan. Furthermore, current laws and regulations governing investment lack the distinction between investment from PRC enterprises and that from foreign enterprises. Other negative impacts, including possible compromise of national security, made it difficult to achieve the anticipated economic benefits. With additional PRC enterprises coming to invest in Taiwan in the future, the multiple issues resulting from these investments, such as the national security concern, the ROC government is obliged to, as soon as possible, set up a solid audit process and propose amendments in relevant laws and regulations. The ROC government should include provisions for penalties for any breach of applicable laws and regulations, as demonstrated by the criminal responsibilities adopted by the German government and the retention of property adopted by the US government. By creating a solid audit process, the balance can be achieved between a free-trading policy for foreign enterprises and PRC enterprises in Taiwan, and a robust investment environment. A thorough audit process will allow Taiwan to secure the security, both national and economic, while at the same time enjoying the benefit of accepting foreign enterprises and PRC enterprises to invest in Taiwan.