杜絕不當的政商利益輸送─重構公務員旋轉門條款

Abstract

廉能治理已成為全球各國政府的施政目標，公務員除了通過國家考試證明自己有能力外，更須具備清廉的態度。清廉除了打擊貪污，更包含公務員在職時與離職後之利益衝突迴避。在要求清廉的同時，須以更高的道德標準看待公務員。公務員離職後之就業限制（利益衝突）問題特別值得注意，係因近年來國內外均相繼爆發離職公務員的貪瀆醜聞，而其不法之利益輸送與勾結不易為外人所知，但對公共利益與國家威信之傷害往往難以估計。 目前國內此領域之文獻相對較少，多集中於歷次修法提案、工作權之探討或外國立法例之研究。公務員服務法第十四條之一（旋轉門條款）之立法目的良善，卻因現行規定不夠周延，造成認事用法之困難與各界之抨擊，修法應係在所難免，大法官釋字第六三七號解釋亦表示應修法。故本文除整理歷次修法建議之內容外，另蒐集國內違反旋轉門條款之判決9案，歸納各案例之事實、爭點與理由，找出院檢或不同案例中司法見解矛盾之處。又因上述判決未能完全反映現行規定之不足，許多案例或疑似個案僅停留於媒體報導、不（緩）起訴處分或簡易判決等階段，事實未見公開與不夠明確。故本文補充外國旋轉門制度，以完整研析現行法之不足，進而提供修法建議，期能在國家利益之保護與公務員權利之侵害間，找到更衡平之方式，為我國廉政向前邁進的過程中貢獻一己之力。

Good governance is the most important political goal in many countries around the world. In addition to passing the national exam to prove their knowledge and ability, civil servants shall uphold the integrity principle. Integrity means fighting corruption and avoiding conflicts of interests. Greater attention shall be paid to conflicts of interests after the resignation of civil servants, because it usually involves corruption and improper funneling. Illegal funneling is difficult to discover but its damage to public interests and national prestige is enormous. Therefore, we need to evaluate civil servants with a higher ethics standard. Currently there are few articles in Taiwan regarding funneling and the revolving door policy. Current litiratures usually focus on the history of law-making, the right of work, or the introduction to other countries’ laws. Compared to traditional data on the subject, this paper tries to make a new and comprehensive analysis of the issue. The author of this paper believes that the legislative purpose of the Article 14-1 of Civil Servant Work Act (so called Revolving Door Clause) is benign; however, it is difficult for prosecutors and the justice system to enforce the law. Such legislation has triggered criticism. To amend this outdated law is therefore necessary. In fact, the Judicial Yuan Interpretation No.637 has indicated that the Act should be amended. Besides analyzing previous proposals for amendment, this article collects 9 cases which involve violations of the revolving door clause. This article summarizes the facts, issues, reasons, and contradictory opinions, and offers the author’s arguments. This article also compares foreign legislation and system, then proposes a new legal model to handle the issue of funneling and to combat corruption and related crimes in Taiwan.