公共諮商：商議式民主的初階論

—兼論對台灣聽證制度的啟示

朱鎮明

摘            要

商議式民主是近代民主理論的新潮流，基於互惠、公開、課責與包容等原則，公民可以集體參與並商議將來對他們構成約束力的決策，透過慎思明辨的過程，讓成員充分表達意見，彼此進行論理的交換，共同評估行動方案的諸種選項，最後由較佳的論證(argument)出線，成為眾人可以接受的共識或決議。為相互認可與證成(mutual justification)，所以不僅是民主的決策程序，更具有豐富的實質民主意涵，可以避免多數暴力，改善當前代議民主的缺失。

在此同時，大英國協國家普遍在世紀之交推動中央與地方層次的「公共諮商」，明訂公共諮商制度，希望建構新的決策過程，讓受政策影響的利害關係人能從中審慎議論、相互學習與交換資訊論點，對爭議性政策議題形成共同決策與共識，建立地方政治與政策變革的廣泛支持，充實地方的民主治理。

不過，公共諮商所包括的一系列決策輔助機制，雖然不同程度都有促成公共參與、探索民意的功能，但若放在更精緻的商議式民主的層次與架構去檢視，大致可以分為三個群組，而其中一個群組是中度或部分符合民主商議的公共諮商技術，包括連續諮商、公告與徵求意見與共識會議，能一定程度提升與增加決策所需之各類知識的品質，而且比較沒有形式上的門檻限制一般公眾或是利害關係人的參與。在民主商議是可欲、且可以落實的考量前提下，這些工具似乎也可以作為補強代議民主、邁向更精緻的民主治理與決策的輔助工具。

 關鍵字 商議式民主 審議式民主 公共諮商

        地方治理 聽證制度 行政程序法

Abstract

This thesis aims to explore the relation between public deliberation and public consultation. To this end, I begin in part two by laying out a deliberative democratic conception that is based on four normative principles reciprocity, publicity, accountability, inclusion. The conditions under which public deliberation between free and equal citizens can result in legitimate collective decisions.

This study then explores the meaning and institutions of public consultation. The legitimacy of policy analysis, implementation and local authorities ultimately depends on its acceptance of the public; hence the importance of taking into consideration the reactions of the public to some controversial issues.

In part four this study discuss the relation between public deliberation, the need to protect the rights of individuals, and public consultation, the demands of participation. The discussion illustrates three categories of consultation methods. The second category, including notification, distribution, and solicitation of comment, sequential consultation, and consensus conference, seemly may be labeling as the first step toward deliberative democracy.

This article also turns to analyze the hearing mechanism of administrative procedures in Taiwan. From the measures of deliberation and consultation, nearly all of these measures have been downgraded since the executive with a dominant role in hearing process.

Keywords: deliberative democracy, public consultation, local governance