被稱為國防二法的《國防法》和《國防部組織法》於民國八十九年一月五日在立法院三讀通過後，經過兩年的準備期，及相關的《國防部參謀本部組織條例》於民國九十年十月二十五日在立法院通過後，陳水扁總統宣佈於今年（民國九十一年）三月一日起正式實施新的國防體制，1使中華民國的國防體制踏上新途。
The “Defense Two Laws,” namely the National Defense Law and the Organic Law of Ministry of National Defense (MND), had been passed by the Legislative Yuan on 5th January 2000. After two years preparation, which is set forth by the two Laws, together with the legislation of the Organic Act of the General Staff Headquarters (GSH), MND on 25th October 2001, President Chen Shui-Bian announced that the new national defense system would be enacted on 1st March 2002.1 The result is that the ROC defense system will be advanced into a new level.

新的國防體制究竟有何意義，其何以要被高度重視，其與當今中華民國政治情勢有何關聯，其對未來中華民國國防的影響為何，以及新的國防體制在實施過程將面臨什麼困難等，這是本文擬討論的議題。
This paper is going to discuss the significances of implementing the new defense system, including reasons why it is highly important, its relationship with the current Republic of China (ROC) political situation, and effects on future ROC national defense system. This paper will also discuss difficulties to implement the new defense system.

實施國防二法的意義
The Significances of Implementing the two laws

（一）遵守憲法與完整立法程序
To Observe the Constitution and the to Complete Legislative Procedures

民主國家政府機構的作為都有法源依據，而且，其法源依據可以上溯到憲法。這特別是實施剛性憲法的國家尤其如此。《中華民國憲法》屬剛性憲法，而且強調實施憲政體制，但是，自行憲以來，中華民國始終缺乏規範國防的法律，這不能不說是實施憲政的遺憾。
In every democratic country, measures adopted by every government agency have to have legal basis, and, normally the legal basis can be traced back to the constitution. This is particularly the case for countries with written constitution. The ROC Constitution is of this type. However, The ROC government’s defense measures lacked the legal basis since the constitution had been enacted. This was a defect to be addressed.

《中華民國憲法》第一三七條規定：「中華民國之國防，以保衛國家安全，維護世界和平為目的。國防的組織，以法律定之。」因此，任何有關國防組織必須有法源依據。然而，自從行憲以來，國防組織始終缺乏法源依據。行政院曾於民國四十一年和四十三年兩度將《國防組織法》送請立法院審議，但是，由於涉及總統與行政院間權責劃分的爭議，特別是統帥權誰屬的問題，及台海局勢持續緊張等因素，國防組織都沒有完成立法程序。2
Article 137 of the ROC Constitution stipulates, “The organization of national defense shall be prescribed by law.” However, since the Constitution went into effect, although the Executive Yuan had submitted drafts of the National Defense Law to the Legislative Yuan in 1952 and again in 1954, due to the controversy over who has commander-in-chief authority between the president and premier, and tensions across the Taiwan Strait, the legislative process was not completed.2

即使《國防部組織法》後來在立法院通過，但是，也是在沒有母法下所通過的子法。民國五十九年十一月，立法院立法通過《國防部組織法》，同時，國防部依據該法制定《國防部參謀本部組織法》及其他相關法律和法規，但是，這些法律和法規的訂定程序是有瑕疵的。這也就是說，直到國防二法於最近通過以前，國防相關組織都是在沒有法源依據或法源依據有瑕疵情形下運作的。這使憲法沒有被嚴格遵守，更是憲政運作的瑕疵。
Even though the Organic Law of the Ministry of National Defense has passed by the Legislative Yuan, it was a sub-law without the original source. The Legislative Yuan had passed The Organic Law of the MND in November 1970. Meanwhile, the MND had formulated other related enactments and regulations, such as the Organic Law of GSH, MND. Nonetheless, these laws and the legislative procedures had deficiency. This indicates that the related defense agencies operated under the circumstance of insufficient legal basis until the two laws have passed recently. This resulted in that the constitution was not observed.

民國八十年代是相關制度調整的契機。當時《戒嚴令》被取消，長期實施的《動員勘亂臨時條款》被廢止，社會上要求實施民主政治的呼聲日益升高，再加上反對黨已經成立，及幾度修改憲法以因應台灣政治的需求，有關依法制定國防組織和文人領軍的時機比較成熟，同時其呼聲越來越高。
1990s was an opportunity to adjust the related regulations. At that moment, Taiwan’s Marshall Decree and Temporary Provisions Effective during the Period of National Mobilization for Suppression of the Communist Rebellion had been terminated, the appealing for democracy increased gradually. The establishment of the then opposition party, the Democratic Progress Party, and the appealing for fully restoring the constitution contributed to the rising pressure for establishing the defense system based on the laws and the civilian control over the military.

民國八十六年七月國民大會完成階段性修憲後，行政院根據李總統指示，要求國防部分別研議《國防法》草案及《國防部組織法》修正草案。國防部擬具草案，並報行政院轉立法院審議後，立法院院會於民國八十八年十月將草案送國防和法制二委員會審查。歷經三個多月的審查，立法院院會於民國八十九年一月十五日完成二法的立法。立法的完成使國防體系組織在憲法架構下取得完整法源依據，也完成程序的完整性。
After the National Assembly in July of 1997 completed the third round of constitutional amendments, the Executive Yuan, acting on a presidential directive, requested the Ministry of National Defense to prepare simultaneously two new draft bills, the National Defense Law and a revised Organic Law of MND, and submit them to the Executive Yuan. The MND complied, and the drafts were eventually approved by the Executive Yuan and submitted to the Legislative Yuan. The Legislative Yuan, in October 1999, sent the bills to a joint session of the National Defense and Organic Laws Committees for consideration. After three months, the Legislative Yuan ratified the two laws on 15th January 2000. The completion of legislation of two laws has resulted in that the national defense organizations may obtain the entire legal basis and the completion of the legislative procedure.

（二）軍隊國家化與文人領軍
The Nationalization of the Armed Forces and the Civilian Control over the Military

由於軍隊合法擁有，並管理龐大的武器，因此，任何涉及軍隊和政治的問題都是極度敏感的政治議題。在任何民主國家，軍隊被嚴格規範為必須遵守國家憲法，獨立於政治之外，並受合法民選政治領導人的統率。軍隊的任務是抵禦外侮，維持國家主權及領土完整，進而維持世界和平。
Any Issue related to the military and politics is extremely sensitive owning to the fact that military possesses and manages legally the enormous weapons. In any democratic system, the military is required to rigorously conform to the constitution, to play a neutral role, and to be commanded by highest administration chief through legitimate election procedure. Missions of the military are to defend foreign invasion, sustain the sovereignty, the territorial integrity and world peace.

《中華民國憲法》有完全相同的規範。《憲法》第三十六條規定：「總統統率全國陸海空軍。」《憲法》第一三八條規定：「全國陸海空軍，須超出個人，地域及黨派關係以外，效忠國家，愛護人民。」《憲法》第一三九條規定：「任何黨派及個人不得以武裝力量為政爭之工具。」凡此設計都是文武關係的規範，使軍隊服從透過國民大會機制選出的合法領導人，軍隊屬於國家，並保持中立。簡言之，這是軍隊國家化的設計。
The ROC Constitution has the exact regulations to explain the above statements. Article 36 of the Constitution stipulates, “The president of the republic shall have supreme command of the ground, sea and air force of the whole country.” Article 138 of the Constitution stipulates, “The ground, sea and air forces of the whole country shall be above personal, regional, or party affiliations, shall be loyal to the state, and shall protect the people.” Article 139 of the Constitution stipulates,” No political party and no individual should make use of armed forces as an instrument in a struggle for political powers.”
The prior designs attempt to set up a norm for both the military and civilian leader to follow: the military, which belong to the state and should be neutral politically, should obey legally elected civilian leader. In brief, these are designed for the nationalization of the armed forces.

但是，政治現實的發展不利軍隊國家化的實施。由於當時特殊的政治環境與政治任務，從一九二○年代黃埔陸軍官校設立之始，軍隊和國民黨有密不可分的關係，使中華民國軍隊成為國民黨的軍隊而不是符合憲政的中華民國的軍隊，也使軍隊實施的是國民黨的政策。國民黨和軍隊的關係是合而為一的。
However, the reality of political development of the ROC had not matched the design of the constitution. This is resulting from that the sophisticated external political environment and special political tasks. The ROC political leadership is insufficient of the political legitimacy, which is required in a democratic country since the Whampoa Military Academy had established in the 1930s. At that moment, the intimate relationships between the military and the Kuo-Ming Tang (KMT), and long period dominate conducts by the former presidents – Chiang Kai-Shek and Chiang Ching-Kuo had resulted in the consequence that the ROC military was officially the military arm of the KMT instead of the nation. The military was infused with KMT ideology to implement the KMT’s policy. They were nearly the same group.

從一九九○年代起，由於台灣整體政治的變化，中華民國軍隊的性質也逐漸產生變化，而走向國家化。一方面，隨著戒嚴令與動員勘亂體制的廢除，憲法與法律制度逐漸恢復。另一方面，反對黨已經成立，而且反對黨力量日益強大。再者，台灣實施總統直接由民眾選舉，使得透過選舉產生的政治領導人統率軍隊的正當性無可置疑。這些變化使軍隊與政治的關係逐漸產生變化：軍隊開始超出黨派以外，為國家化奠下契機。
Since 1990s, the character and nature of the ROC military had altered towards to the nationalization due to the changes of the whole Taiwanese politics. The abandonment of the systems of Emergence Decree and national mobilization for suppression of the communist rebellion had steadily revived the constitutional system. In the meantime, the opposition parties were formed and its civil support was getting stronger. In addition, the direct presidential election brought out the doubtless of the legitimacy of the commander-in-chief the military. The changes have altered the relationships between
the military and the politics: the troops do not belong to any governing parties, which laid a foundation of the nationalization.

國防二法進一步鞏固軍隊國家化的發展。二法使國防組織完全整合到憲法與法律架構內，使軍隊完全置於法律的體制之內，達到國防法治化。《國防法》第六條對憲法的相關規範有進一步的闡釋：「中華民國陸海空軍??不得為下列行為：一、擔任政黨、政治團體或公職候選人提供之職務。二、迫使現役軍人加入政黨、政治團體或參與、協助政黨、政治團體或公職候選人舉辦之活動。三、於軍事機關內部建立組織以推展黨務、宣傳政見或其他政治性活動。」這代表了「國家法治主義的勝利」，使「國會的監督可以透過國防部，對政策負責，讓軍隊所做所為符合全民要求。」3
The Defense Two Laws had further solidified the progresses of the nationalization of the armed forces. The Defense Two Laws had led the defense organizations to be entirely integrated into the structure of the constitution and laws, and to guide the military within the system of law-and-order to reach the goal of the ruling by law. Article 6 of the National Defense Law had further explanation of the constitutional related regulations, and it stipulates “the ROC military including the army, navy and air force are not allowed to devote the following events. First, severing as any post, which offered by the parties, political groups or candidates of any elections. Second, forcing the conscripts to attend any parties and political groups or assist the campaigns, which hold by the parties, political groups candidates of any elections. Third, establishing any organizations to lead an impetus of the party’s affairs, political views and other political campaigns.” This represents “the victory of the principle of ruling by law,” and the results in that “the supervision of the Parliament through the MND could be responsible for the policies and generate the military behaviors in accordance with the public demands.”3

從某種角度而言，這是台灣民主化的鞏固。一般而言，權威主義國家向民主體制轉變時，如以官僚體系的轉變為指標，則民主化可區分為三個階段。第一個階段是一般官僚體系首先接受國會全面監督。台灣一般行政體系早已受到國會全面的監督。隨著民主化發展，社會上對軍隊國家化的討論和呼聲越來越高，在討論和呼籲的社會教育過程中，國軍開始接受民主化的價值，並接受國會全面監督。因此，國防二法的實施表示，台灣民主化進程向前邁出一大步。4
On one side, this is also the consolidation of Taiwan’s democratization. Generally speaking, if we adopt the changes of bureaucracy as a measure of the transformation form the system of the authoritarian towards to the democratic one, the evolution of democratization can be divided into the three stages: First stage is that the bureaucratic system would accept the supervision of the Parliament. Taiwan’s general administration system has received the supervision from the Parliament for a long period. Consistent with the developments of democracy, the public demands the nationalization of the armed forces had risen steadily. During the discussions and appeals of the process of social education, the military has started to receive the value of democracy and the supervision of the parliament. Hence, the implementation of the Defense Two Laws marks that the progress of the democracy has advanced to a new level.4

（三）軍政軍令一元化與文人領軍
The Unification of the MND Policy-making and Command
Systems and the Civilian Control over the Military

國防二法確立了文人領軍的社會期待，並調整了國防部長和參謀總長間的權力關係，使國防部長成為國防部門的首長。《國防法》第十二條規定：「國防部部長為文官職，掌理全國國防事務。」第十三條規定：「國防部設參謀本部，為部長之軍令幕僚及三軍聯合作戰指揮機構，置參謀總長一人，承部長之命令負責軍令事項指揮軍隊。」這使國防部長同時掌握軍政和軍令的權力，達成軍政軍令一元化。
The Defense Two Laws did achieve the public expectation of the civilian control and adjust the power relationship between the Minister of National Defense and the Chief of General Staff. The Minister of National Defense is now the chief of the MND. Article 12 of the National Defense Law stipulates, “The Minister of National Defense is a civil officer and mainly in charge of managing the national defense affairs.” Article 13 of the National Defense Law stipulates, ”the GSH, established under the MND, is the advisory body to assist the Minister in commanding and the mechanism to direct the joint operations. The Chief of General Staff is instructed by the Minister to command the troops.” This results in the fact that the Defense Minister controls both the military administration and military command to achieve the goal of unification of the policy-making and command systems.

這是國軍權力運作機制極大的改變。在改變以前，軍政和軍令權力分屬不同的人掌握。國防部長雖然率領軍政方面，是名義上的國防部門首長，並隸屬行政院，代表國防部出席立法院，接受立法院的監督。然而，實際上，國防部長缺乏實質權力，只能以個人威望領導國防部門，形成有責無權的現象。反而，代表軍令系統的參謀總長因為直接隸屬總統，同時，參謀本部被賦予龐大權力，因此，參謀總長成為國防部門實質的首長。
This is a significant change in Taiwan’s defense system. Before it, the heads of the military administration and command systems are different persons. Although the Defense Minister, who is one of the cabinets (Executive Yuan) and controls military administration, is by name the head of the defense establishment and represent the MND to receive the supervision of the Legislative Yuan. However, in reality, the Defense Minister does not have the real command authority. The leadership of Defense Minister only based upon his personal prestige. Therefore, the minister takes responsibility (in term of supervision of the Legislative Yuan) while without the real authority for his conducts the MND. Conversely, the Chief of General Staff, who is the head of the military command system, belongs directly to the president and the GSH is given the enormous authority. Hence, the Chief of General Staff becomes the de facto head of the defense establishment.

舉例而言，以使用預算的金額而言，在最近以前，國防部長所能掌握的預算僅是國防部總預算的百分之五，其餘的百分之九十五由參謀總長負責。人事方面也有同樣的狀況。這形成有責無權——國防部長名義是國防部的首長，必須面臨國會的監督，同時，國會的監督權是不完整的，及有權無責——參謀總長不具部門首長身份，但卻有實際權力的後果。5這也表示，國防部長無法透過預算和人事權實施他的國防建軍構想。
To adopt the amount of the military budgets as an example, the Minister of National Defense only could utilize five percent of the total budgets; on the other hand, the Chief of General Staff controls the rest percent of total budgets. The same circumstance happened in the personnel system. It proves the prior statements: the Defense Minister is the supposed head of the MND and has to be supervised form the Legislative Yuan but does not have complete military authority; this also results in the incomplete supervision of the Parliament. In addition, the Chief of General Staff, who is not one of the cabinet, possess the real authority without any responsibility.5 This also reflects that the Defense
Minister cannot implement his idea through the budgets and personnel systems.

上述名實不符的問題在台灣進入民主化後將更形嚴重。二○○○年總統大選的結果表示，政黨輪替在台灣未來政治將成為常態。不同執政黨對包括國防領域在內的政策會有不同構想。而國防部長做為執政黨的政務官，必須推動及反映最高行政首長的意志。因此，國防二法的實施達成軍政軍令一元化：把參謀總長所代表的軍令系統放置在國防部長之下，成為部長的軍令幕僚，而使部長成為名符其實的國防部首長。
The pervious problems were getting worse when Taiwan sped up its democratization. The result of the presidential election in year 2000 represents the facts that it will different governing parties have different policies including in defense realm. The Defense Minister, as one political appointee of the governing party, must implement the will of the highest administrative leader. Hence, the implementation of the Defense Two Laws unifies the military policy-making and command system, replaced the military command system, which is controlled by the Chief of General staff, under the Minister of National Defense to become an advisory body to assist the Minister over military commands. This generates the Defense Minister could be the real head of the defense establishment.

此外，國防二法有助於文人領軍的實施。隨著台灣民主化所衍生出的政黨輪替，及國防事務與研究的普及化，純文人擔任國防部長的可能性越來越高。6然而，國防事務眾多繁雜，同時，國防事務也是非常專門的領域。一個人不可能瞭解所有國防專業事務。依據新的《國防部組織法》，在國防部長之下設立了幾個新的單位，協助文人部長透過國防政策制定、預算控制與人事任命，處理專業領域事務，有助於文人部長進行國防部門的領導。
In addition, the Defense Two Laws is helpful for the practice of the civilian control over the military. After the changing of governing party, which followed by Taiwan’s democracy, and the prevalence of the defense affairs and research, brings out the higher possibility of a pure civilian becoming the Minister of National Defense.6 Nevertheless, the defense business is numerous and complicated, also a specific and professional field.  A single person could not realize all the professional defense affairs. According to the revised Organic Law of MND, there are several novel branches settled under the Minister of National Defense to assist the civilian minister to deal with the professional defense affairs through making the defense policies, controlling the budgets and appointing the personnel. This facilitates the civilian minister to conduct a real leadership of the MND.