（四）專業分工
The Professional Division of Labor
國防二法確立專業分工的需求，帶動國防體系的進步。隨著時代進展、社會發展、與科技一日千里進步，國防事務也越來越趨於複雜與專業。因此，國防部門在組織上必須做出相應調整。
The Defense Two Laws conformed the needs of professional division
of labor and accelerated the progress of the defense system. In accordance
with the increasing development of society and technology, the defense
affairs become more and more complicated and professional. Hence, the
defense establishment should adjust its organizational structures accordingly.
國防二法把整個國防體系分為三大領域，使每個領域得以在相互合作協調中取得專業發展，進而增進國防力量。《國防法》第十一條規定：「國防部主管全國國防事務，應發揮軍政、軍令、軍備專業功能，本於國防之需要，提出國防政策之建議，
並制定軍事戰略。」這個條款明確區分國防體系為三大領域，並使每一領域有專門的最高主管。
The Defense Two Laws have divided the defense systems into three
parts. It alsoleads each part to cooperate with each other smoothly
to gain the professional developments and then increase the total defense
capacities. Article 11 of the National Defense Law stipulates, ”the
MND is in charge of utilizing the professional functions of military
administration, command and armament to govern the national defense
affairs. Based upon defense needs, MND suggests the defense policy and
formulates military strategy.” This ordinance has clearly divided the
defense system into three components and each one has a professional
chief.
《國防部組織法》依據上述條款和概念明確設立相關機構。《國防部組織法》第六條規定：「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，掌理提出建軍備戰需求、建議國防軍事資源分配、督導戰備整備、部隊訓練、律定作戰序列、策定並執行作戰計畫及其他有關軍隊指揮事項；其組織以法律定之。」這個條款明確規範參謀本部的職責係在軍令和作戰領域。第七條則規定：「國防部設軍備局，掌理軍備整備事項；其組織以法律定之。」
In The Organic Law of the MND the related organizations have been
established according to the clear scheme and the above ordinance. Article
6 of The Organic Law of the MND 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 GSH is responsible
for proposing needs for the build-up combat preparedness, suggesting
allocation of military resources, supervising combat readiness, training
troops, determining the order of battle, formulating and executing operational
plans, and other
matters concerning command of troops. Its organization should be set
by law.” This ordinance
clearly stipulates that the responsibility of the GSH is confined to
the fields of military command and operations. Article 7 also stipulates,
”the MND shall establish the Armament Bureau to manage the military
procurement affairs. Its organization should set by law.”
這和過去的做法迥然不同。國防二法通過以前，參謀本部幾乎完全承擔軍政軍令與軍備任務於一身。具體而言，負責軍事科技研發的中山科學研究院即隸屬於參謀本部，受參謀本部的指揮。此外，包括國防政策規劃執行、預算編列、人員任免遷調、後備事務的規劃、乃至於建軍整合及評估等建軍事務也幾乎完全由參謀本部負責。
This is totally different than what they had done before. Before
the Defense TwoLaws had passed, the GSH mostly control the military
administration, command and armament systems exclusively. For example,
the Chungshan Institute of Science and Technology (CIST), which was
responsible for the R&D of defense technology in the ROC, belonged
to the GSH and received the commands from the GSH. Moreover, the GSH
was in the charge of formulating and executing the military policies,
compiling the defense budgets, setting the military personnel promotion,
delineating reserve system,and taking charge of integration and assessment.
國防二法不但強調專業分工，更強調與社會資源結合，寓國防於社會，並帶動整體產業能力。這特別是在軍備發展方面尤其如此。《國防法》第二十二條規定：「行政院所屬各機關應依國防政策，結合民間力量，發展國防科技工業，獲得武器裝備，以自製為優先，向外採購時，應落實技術轉移，??國防部得與國內、外之公、私法人團體合作或相互委託，實施國防科技工業相關之研發、產製、維修及銷售。國防部為發展國防科技工業及配合促進相關產業發展，得將所屬研發、生產、維修機構及其使用之財產設施，委託民間經營。」
The Defense Two Laws emphasize not only on the professional division
of labor but also on the combinations of the societal resources in order
to accommodate the whole society with the national defense, and to improve
the capacities of the whole industries, in particular the development
of military armaments. Article 22 of the National Defense Law stipulates,
“in order to achieve the goal of our defense policy, the subordinated
branches under the Executive Yuan shall combine the capacities of private
sectors to develop the military technology. Equipments procurement should
be emphasized on local production or on technology transfer in case
of procurements from abroad being needed… The MND might cooperate with
or delegate to the domestic or foreign, public and private corporations
on the related developments, researches, manufactures, maintain or marketing
of the defense technology industry. Furthermore, The MND might entrust
the related corporations to manage the MND-owned research, manufacture
and maintaining facilities in order to stimulate the development to
the defense related industries.”
把軍備發展獨立出來，並與社會結合在當前科技發展日新月異的時代確有其必要。高科技的高速發展固然使武器裝備必須與高科技結合，另一方面，這使武器裝備發展必須要和專業的科技管理相結合。同時，為了武器裝備的發展能有所持續，則必須從社會取得必要的支持與能力。因此，軍備發展成為越來越專業的領域，同時必須與社會充分結合。
It is necessary to stress the autonomy of the military armaments
developments, which combined with the society, in the era that the high
technology improves dramatically. The sharply increasing developments
of the high technology lead the indispensability of the combination
of the military equipments and high technology. Meanwhile, it is also
necessary to gather round the support and ability form the society to
develop the equipments. Hence, if the armament development is getting
more and more professional, it must be combined with the society completely.
軍事作戰也面臨同樣情形。高科技的發展固然使武器裝備朝向高科技化，但是，如何有效操作高科技武器，使其發揮所有性能，也是非常大的考驗。這特別是在現代戰爭強調聯合作戰下，如何使各軍種在使用高科技武器裝備下有效執行聯合作戰更成為挑戰。因此，經常持久的演練成為必要。因而，作戰趨向專業化也屬必然。
The same case happened in the military operations. The developments
of technology guided the advanced weapons, however, it was uncertain
if soldiers can successfully man these high-tech weapons to utilize
the functions. This is in particular in the modern warfare, which focuses
on the joint operations. Therefore, it is a challenge for all three
Services to utilize their high-tech equipments efficiently in the joint
operations. In short, it is obvious that the indispensability of the
regular maneuvers and professional conduct of war.
（五）全民國防
All-out Defense
國防二法的實施有助於落實全民國防的目標。全民國防做為一種號召在台灣已經行之多年，但是，其做為一種長期號召也反映出實質內涵的不足及難以落實，及國防孤立於社會之外的窘困。究竟何謂全民國防？這特別是，在當前社會高度分工，各領域高度專業化發展時期，全民國防應該如何定義，並要如何達成？
The Defense Two Laws facilitate the goals of the all-out defense.
The appeal of the all-out defense has declared in Taiwan for a long
period. Nevertheless, a long-term appeal reflects its insufficiency,
the difficulty of implementation and the circumstance that the national
defense has been isolated outside the society. What is the all-out defense?
What is the definition of the all-out defense, and how to achieve it
in this period that the society has specializations in the various fields?
國防二法的制定顯示，全民國防不論在概念上，或政策上均已找到突破口。如果國防事務可以成為全民討論的公共政策議題，則表示軍隊已充分國家化。而軍隊國家化則表示，軍隊已整合入國家與社會並溶為一體。這為國防全民化找到立足點。在概念方面，二法的規範顯示，全民國防是在社會分工與專業發展需要的基礎上，把國防事務透過行政體系與社會結合起來，充分寓國防於社會。
The Defense Two Laws reveal a turning point of the all-out defense
no matter in the conception or policies. If the national defense affairs
could be a public issue, it implies the successful nationalization of
the armed forces, the status that the armed forces had been integrated
into the nation and society fully. This is the pedestal of the all-out
defense. Logically speaking, the Defense Two Laws demonstrates that
the all-out defense, which is based on the needs for the division of
labor in the society and for the professional development, combines
the defense affairs with the society through administration systems
and base the national defense upon the whole society.
在法規方面，二法具體地規範國防的全民化。除了前面所述有關軍備發展與社會結合的《國防法》第二十二條外，後備事務與全民防衛是另外一個明顯例子。《國防法》第二十五條規定：「行政院平時得依法指定相關主管機關規定物資儲備存量、擬訂動員準備計畫，並舉行演習；演習時得徵購、徵用人民之財物及操作該財物之人員；徵用並應給予相當之補償。」第二十八條規定：「行政院為落實全民國防，保護人民生命、財產之安全，平時防災救護，戰時有效支援軍事任務，得依法成立民防組織，實施民防訓練及演習。」凡此，都屬法規方面的規範，以保證全民國防的達成。
In the regulations, the Defense Two Laws clearly stipulate the ideas
of all-out defense. Besides the Articles 22 of the National Defense
Law, which described the combinations of armaments and society previously,
there is an obvious example of the reserve affairs and the all-out defense.
Article 25 of the National Defense Law stipulates, ”the Executive Yuan
shall assign the related branches to govern the amount of reserve materials,
suggest the plan of mobilization preparation, and hold the exercise
according to the law; when the exercise is held, it shall levy the civilian
properties and enlist the civilian who owns the properties, the Executive
Yuan shall compensate the civilian while levying the properties.” Article
28 of the National Defense Law stipulates, ”in order to implement the
all-out defense, protect the public and their property form danger,
the Executive Yuan shall implement the civil defense training and exercise
and construct the civil defense organizations according to the law to
prevent the disasters and first aid the injured persons in the peacetime;
to support the military affairs efficiently in the war.” Hence, the
above ordinances mainly guarantee the achievements of the all-out defense.
除了行政院所扮演的角色外，二法也規範國防部與地方政府間的關係，使全民國防能透過行政體系貫徹到地方。除了上述有關爭用規定外，《國防部組織法》第二條規定：「國防部對於各地方最高級行政長官執行本部主管事務，有依法指示，監督之責。」第三條規定：「國防部就主管事務，對於各地方最高級行政長官之命令或處分，認為有違背法令或逾越權限者，得提經行政院會議議決後停止或撤銷之。但有緊急情形者，得陳請行政院院長先行令飭停止該項命令或處分之執行。」
As well as the functions of the Executive Yuan, the Defense Two
Laws also regulate the relationships between the MND and the provincial
governments to penetrate the all-out defense into each province through
the administrative system. Besides the prior ordinances, Article 2 of
The Organic Law of the MND stipulates, “the MND is in charge of supervising
the highest administrative officers of each provincial governments to
implement the defense affairs.” Article 3 of The Organic Law of the
MND stipulates, “for defense affairs, the MND has the authority to propose
the Executive Yuan Committee to cancel or suspend the orders issued
by the highest administrative officers of each provincial
government if their orders are considered as against laws or unauthorized.
Under any emergency, the MND could propose the Premier to cancel or
suspend such orders first.”
整體而言，國防二法及相關法律的制定誠屬國防體制上的進步，也適應政治、科技和社會發展趨勢。二法使整個國防體系完全整合到憲法與法律架構下，使軍隊完成國家化，也使文人領軍，軍政軍令一元化，和全民國防在強調專業分工畢其功於一役。
General speaking, the Defense Two Laws and the related regulations
are the improvements of our national defense systems, and also accommodate
with the trend of political, technologic and social developments. The
Defense Two Laws result in the entirely integration of the national
defense systems into the constitutional structure, the civilian control,
the unification of the military policy-making and command systems, professional
division of labor and the all-out defense.
未來展望
The Future Prospects
然而，國防二法由於受限於憲法體制的不明確，及制定時的匆忙以致並非完美無缺。這可能影響未來的運作。這特別是在總統和行政院院長的國防決策，國防部內的決策體制，文人領軍，和軍政軍令軍備的協調等層面尤其如此。
Nonetheless, the Defense Two Laws are restrained from the ambiguity
of the constitutional system and the precipitation of the legislative
procedure and hence result in the imperfection of the Defense Two Laws
which affects the future implementation, in particular the defense policy-making
betweens the Presidents and the Premier, the policy-making system within
the MND, the civilian control over the military, and the co-ordinations
among the military administration, command and armament.
（一）國防決策的憲法爭議
The Constitutional Disputes of the Defense Policy-making
國防決策的主要癥結在總統和行政院院長在軍隊指揮權上的爭議。問題是行政院院長是否可就軍事議題直接指揮國防部長，及行政院院長是否納入指揮體系。
The issue of defense policy-making mainly concerns about the disputes
that commandauthority between the President and the Premier. The problem
is that should the Premier directly command the Minister of National
Defense concerning military issues and should the Premier be under the
chain of command.
《國防法》第八條規定：「總統統率全國陸海空軍，為三軍統帥，行使統帥權指揮軍隊，直接責成國防部部長，由部長命令參謀總長指揮執行之。」第九條規定：「總統為決定國家安全有關之國防大政方針，或為因應國防重大緊急情勢，得召開國家安全會議。」第七條則規定：「中華民國之國防體制，其架構如下：一、總統。二、國家安全會議。三、行政院。四、國防部。」這三條條文都具體規定總統在國防軍事事務的指揮權，指揮的過程，及包含行政院在內的國防架構。其實，這些條文相當呼應我國《憲法》的設計。我國《憲法》第三十六條規定：「總統統率全國陸海空軍。」凡此種種都顯示，總統做為三軍統帥和對軍隊指揮權的地位。7
Article 8 of the National Defense Law stipulates, “the President
is the commander-in-chief of the armed forces, To execute his commands
the troops, the President directly delegate the Minister of National
Defense who instruct the Chief of General Staff to execute the orders.”
Article 9 of the National Defense Law stipulates, ”the President shall
hold the National Security Council (NSC) to assist with national security
policies and the response to emergency situations.” Article 7 of the
National Defense Law stipulates, ”the national defense system is constructed
as below: 1. the President; 2. the NSC; 3. the Executive Yuan; 4. the
MND.” These ordinances are clearly demonstrated President’s commanding
authorities of the military affairs, the commanding procedure and the
defense system which contained the Executive Yuan. These ordinances
are accordance
with the designs of the Constitution. Article 36 of the Constitution
stipulates, “the President commands the land forces, the navy and the
air force.” The prior statements reveal that the President as the commander-in-chief
of the armed forces.7
然而，我國憲政設計不甚明確。這特別是近十年來經過幾次修改《憲法》以後尤其如此。我國憲政的原始設計規定行政院為最高行政機關，且對立法院負責。《憲法》第五十三條規定：「行政院為國家最高行政機關。」第五十五條規定：「行政院院長由總統提名，經立法院同意任命之。」第五十七條規定：「行政院依左列規定，對立法院負責：一、行政院有向立法院提出施政方針及施政報告之責。立法委員在開會時，有向行政院院長及行政院各部會首長質詢之權。」這充分顯示行政院院長在《憲法》原始設計上地位的崇高，而足以率領包括國防部在內的所有部會。
Nevertheless, the design of ROC constitution is not very clear especially
when the Constitution has been amended several times in the last decade.
The original design of the ROC Constitution addressed that the Executive
Yuan was the highest administration organization, which was responsible
to the Legislative Yuan. Article 53 of the Constitution stipulates,
”the Executive Yuan shall be the highest administrative organ of the
State.” Article 55 stipulates, ”the Premier shall be nominated by the
President and with the consent of the Legislative Yuan.” Article 57
stipulates, ”the Executive Yuan shall be responsible to the Legislative
Yuan in accordance with the following provisions: The Executive Yuan
has the duty to present to the Legislative Yuan a statement of its administrative
policies and a report on its administration. While the Legislative Yuan
is in session,
Members of the Legislative Yuan shall have the right to question the
Premier and members of the Cabinet.” This reveals fully that the Premier
is at the high position in the design of the ROC Constitution, which
has authority to govern all the administrative departments including
the MND.
然而，近年來修憲的結果雖使行政院院長地位降低，但是，相關的規定並沒有完全修改過來。中華民國《憲法增修條文》第三條規定，「行政院院長由總統任命之」，取消了過去必須由立法院同意的條件。這使行政院院長的地位大幅下降，彷彿成為總統的幕僚長。但是，《憲法》第五十三條行政院為最高行政機關，和第五十七條第一款行政院有向立法院提出施政方針及施政報告之責的規範卻沒有同時修改。這使行政院院長做為全國最高行政首長地位不變。基於最高行政權的完整性，行政院院長對國防部應有完整的領導權。
Although the results of the constitutional amendments caused the
lower position of the Premier in the recent years, the related regulations
did not amend completely. Additional Article 3 of the Additional Articles
of the Constitution stipulates, ”the Premier shall be appointed by the
President,” which canceled the previous conditions that the nomination
of the Premier shall be agreed by the Legislative Yuan. This resulted
in the factthat the status of the Premier had declined and it seemed
to be the President’s Chief of the Staff. Nevertheless, Article 53 of
the Constitution stipulates that the Executive Yuan shall be the highest
administrative organ of the State, and Articles 57 stipulates that the
Executive Yuan has the duty to present to the Legislative Yuan a statement
of its administrative
policies and a report on its administration, which caused the consequence
that the highest position of the Premier has not changed. Based on the
cohesion of the highest authority of administrations, the Premier should
have the entire authority to command the MND.
此外，行政院院長的地位雖然降低，但是，《國防法》仍然賦予行政院相當的權力。《國防法》第十條規定：「行政院制定國防政策，統合整體國力，督導所屬各機關辦理國防有關事務」。這使軍隊指揮體系的最高層級形成憲法疑問，而可能形成制定國防政策者和軍隊統率者的潛在背離現象，以及總統責成國防部長時，置行政院院長地位於何處的窘境。
In addition, although the status of the Premier has declined, the
National Defense Law still gives the Executive Yuan the considerable
authority. Article 10 of the National Defense Law stipulates, ”the Executive
Yuan shall formulate the defense policies, integrate the whole national
capacity, supervise the related organizations to deal with the national
defense affairs.” This results in the constitutional dispute of the
chain of military command. It has high possibility to cause the circumstance
that the national defense policy maker and the commander of armed forces
are different persons. It also causes the embarrassing situation that
what role the Premier plays when the President delegate
the Minister of National Defense directly.
目前，學者傾向於把台灣的政治體制歸類為向總統制傾斜的雙首長制。認為，因為總統是人民直接投票選出，有比行政院院長較高的民意基礎。更何況，行政院院長現在是由總統任命，不需要立法院同意，使行政院院長的民意基礎不如總統。
Currently, the scholars consider Taiwan’s political systems as a
pro-presidency dual-governor system. This is due to the fact that the
direct-elected President who has more public supports compared to the
Premier. Furthermore, the Premier is appointed by the President directly
without the agreement form the Legislative Yuan. Hence, the Premier’s
public support is weaker than the President’s.
就像許多人擔心的，問題在於，如果掌握立法院超過半數的多數黨和總統隸屬不同政黨，同時，這兩個政黨有不同想法，而掌握立法院的多數黨要求總統所任命的行政院院長必須是他們所能接受者，否則他們將杯葛總統的國防決策時，則國防部將面臨被撕裂的可能。8
As many worried, the problem lies on a possible situation when a
party that controls over half seats in the Legislative Yuan is not the
President’s governing party. What if both parties have different views?
The majority party in the Legislative Yuan may boycott President’s defense
policies unless the President appoints a acceptable Premier. Under such
a circumstance, the MND might be torn down.8
國防部面對上面質疑時，僅僅是重述國防二法的規定，引述《國防法》第七、八、和十條的條文，及強調，國防部部長為行政院內閣閣員之一，當然受命於院長之指揮，辦理國防有關事務，以避免憲法爭議。
When the MND confronted these doubts, they only repeated the
regulations of the Defense Two Laws and quoted the Articles 7, 8
and 10 of the National Defense Law. For preventing from engaging
the constitutional disputes, the MND emphasized that the Minister
of National Defense is one of the cabinets and obviously accept
the Premier’s order to manage the defense affair.
（二）國防部體系內的指揮
The Command System within the MND
為了強調專業分工，這特別是軍備發展隨著高科技的發展越來越專業，及因為高科技武器裝備的使用使作戰也越來越專業，整個國防部組織區分為三大塊：軍政，軍備和軍令。軍政透過戰略規劃與資源分配負責國防政策制定，軍備則負責武器裝備的發展與採購，軍令則集中力量於訓練與作戰。其目的是透過專業與分工，建立起強大有效的軍力。此外，區分為三大塊也有縮小過去軍令系統獨大，而國防部長無法節制軍令系統的問題。為了因應這種組織設立的趨勢，國防部設置了兩位副部長及參謀總統，分別掌管軍政，軍備，與軍令。
In order to emphasize the professional division of labor especially
when armament development, following the technological progress,
becomes more and more professional and such a development make the
conduct of war a professional business, the whole organization of
the MND can be divided into three departments: the military administration,
command and armaments. The military administration is in charge
of formulating the national defense policies through strategic planning
and resource allocation; the military armament is in charge of the
procurements and developments of
weapons and equipments, and the military command focuses on the
trainings and operation. The purpose of such a distinction is to
build up strong and effective combat capacities through the professional
division of labor. In addition, the division decreases the dominance
of the military command and improves the Minister’s control over
the military command. In accordance with the three departments,
the MND establishes two Deputy Ministers and the Chief of General
Staff to rule the military administration, armaments and command
individually.
然而，這種設置方式是不妥當的。既然名為副部長，應該是部長之下總其成的領導人，而不是分管某一個特定領域的領導人。換言之，副部長應該是部長之下的統籌者，這樣，他才能對國防事務有全盤的瞭解，於必要時真正擔負起代理人職位。
This arrangement however is not appropriate. The Deputy Minister
of National Defenseshould be the second in command in the MND instead
of the leader of one specificfield. In other words, the Deputy Ministers
shall be the director under the Minister. Hence, he would have ability
to realize the entire defense affair and be responsible for the
position to command the MND when the Minister is absent.
因此，副部長應該只有一人，負責軍政和軍備發展的則應該是副部長之下的次長。美國國防部的編制就如此。這樣的編制組織的優點是上下權責分明。其實，這個問題在其他部會不難處理。其他部會沒有編制副部長，而以政務次長和常務次長區分，政務次長類似副部長地位，而常務次長則類似美國的次長地位。
As a consequence, the Deputy Minister shall be one person. The
responsibilities of developing the military administration and armament
shall belong to the Vice Ministers under the Deputy Minister of
National Defense. The U.S. national defense system is organized
as the prior system. The advantage of this system is that the responsibilities
of offices are very clear. In fact, the problem is not difficult
to solve in other governmental branches. In other branches, they
do not appoint any Deputy Ministers instead of the Vice Minister
(Policy) and the Vice Minister (Administration). The Vice Minister
(Policy) is similar with the Deputy Minister and the Vice Minister
(Administration) is similar with the Undersecretary in the United
States.
（三）文人領軍的困難
The Difficulties of Civilian Control
西方國家行之久遠的文人領軍是我們仿效的目標，也是政黨輪替後的趨勢。但是，我們需澄清文人領軍的概念和層次。如果文人領軍指國軍服從經過民選選出的最高領導人，則我國於二○○○年政黨輪替的總統大選已經進入文人領軍的發展階段。
The western practice of civilian control is the goal what we
want to achieve and also a trend after the governing party had altered.
However, the conception and the levels of the civilian control need
to be clarified at this point. If the civilian control means our
armed forces obey the elected leadership, then the ROC had entered
the civilian control era after the Presidential election and changing
of the governing party in the year 2000.
如果文人領軍指的是，由不具有軍事背景的純文人擔任國防部長，則，誠如陳水扁總統所指出的，在未來的短時間內，我國尚無法產生純文人部長。有幾個原因限制了純文人國防部長的產生。9第一，我們的政務官範圍非常狹小，而不利於文人領軍的培養過程。我們的政務官只限於部長和副部長，其餘以下的包括次長、司長、和副司長都屬於事務官體系。其後果是，被任何執政黨信任，並有意培養的純文人，無法直接由較低層級逐級而上歷鍊，熟悉國防體系複雜的人與事，終而擔負起文人領軍的重任。
If the concept of civilian control means a pure (without military
career) civilian as Minister of National Defense, then, as President
Chen Shui-Bian pointed out, we can hardly have a pure civilian Minister
in a short term. There are several grounds to restrain the possibility
of a pure civilian Minister. 9
Firstly, Taiwan has very limited range of political
appointees. In every ministry, only the minister and deputy minister
are political appointees while the career civil service fills all
other posts below deputy minister.
The consequence is that there is no way for any person who has the
trust of the ruling party to build up experience by working their
way up the hierarchical ladder and to appreciate the complexities
of defense affairs before assuming the highest position in the MND.
其次是過去軍中封閉的人事特性。我國軍事體系過去都是以三軍官校畢業的幹部為主，沒有由文學校畢業後進入國防部體系服務者。即使有，文人在國防部服務也多是約聘性質，而不屬於正式工作幹部。同時，軍事幹部間都是以學長學弟關係為主，這形成獨特的軍中文化，使經由其他方式進入軍事體系服務者很難完全溶入這個體系。
Secondly, it is due to the characters of the narrow personnel
system in the military. The ROC military system is mainly composed
by the graduates from various military colleges or academies. There
are hardly any civilian graduates served in the MND. Even there
are, the civilian officers are contract employee, not formal cadre.
Meanwhile, the special military culture, which mainly linked with
senior and junior, among officer corps obstructs the outsiders who
come from other channel to integrate into the system.
第三是軍事體系保密需求的特性也影響文人迅速瞭解全盤國防狀況。過去，任何有關國防軍事事務者幾乎都屬機密，同時，我國也缺乏使文人得以接觸機密資料的保密配套制度，這使有關國防軍事的專業研究無法在社會生根立足及擴散，這不但影響整個社會對軍事研究的熱潮，也使文人無法深入瞭解國防軍事問題。
Thirdly, the requirements of the military secrecy also affect
the abilities of the civilian officers to understand the defense
affairs comprehensively. In the past, any military issue was considered
as confidentiality. Meanwhile, the lack of the security system prevent
from civilian gathering any classified information. This resulted
in the impacts that the professional defense research could not
be based onto the society, the society is not interested in defense
research, and the civilian could not understand the defense issues.
第四是社會缺乏機制使高階退伍軍官能把軍事知識向社會傳播。過去，退伍的高階軍事幹部多轉進到「中華戰略學會」，這不但把軍中的文化與習性帶入中華戰略學會，使學會無法在社會契合生根，也使相關的專業知識沒有透過退伍幹部在社會上傳播開來。這限制了國防專業知識的傳播。凡此問題，皆阻礙了文人領軍。這也就是說，純文人領軍的理想在台灣現行的文官體制下在未來的相當長時間內幾乎不可能實現。
Finally, the society does not have the channel to let retired
senior officers to disclose their military knowledge to the civilian.
In the past, some retired senior officers organized into the ”Chung
Hwa Strategic Studies Association”. This only not brings the military
culture and habitual behaviors into the Association which leads
the Association cannot be combined with the society, but also impede
the disclosure of the related professional knowledge owned by the
retired officers. These kinds of problems impede the civilian control.
It also means that it is almost impossible to implement the idea
of a pure civilian Defense Minister under the current bureaucracy
system in the near future.
此外，我們對文人領軍的認知範圍應該擴大到軍隊和國會的關係。整體而言，文人領軍其實涉及整體的軍文關係。在民主國家，軍隊應該受到國會的監督，同時，國會經常是政務官的養成場所。因此，文人領軍也應該包括立法院和軍隊的關係。具體而言，這是指立法院對軍隊事務有監督能力。
In addition, our perception of civilian control over the military
should extend to the relationship between the army and the congress.
In general, civilian control involves the overall civil-military
relations. In a democratic country, the army is supposed to be under
the scrutiny of the congress that is considered to be the cradle
of future political appointees. At such, the implication of civilian
control should also embrace the relationship between the congress
and military. Specifically, it connotes the authority of the Legislative
Yuan to supervise military affairs.
但是，我國立法院因為諸多原因對立法院的監督卻是力有未逮。這包括立法委員專業能力不足，立法院國防委員會及各別立法委員缺乏瞭解國防事務的助理，及立法院的資訊中心也缺乏熟悉國防事務的幕僚群等。其後果是，立法院僅能就媒體報導的議題即興式的詢問國防部門。這不但不利於國會對國防部門的監督，更不利於民主政治的發展。
However, many factors cuase the Legislative Yuan’s incompetence
to execute its supervising power, including the lawmakers’ lack
of expertise, insufficient assistants with defense expereince in
the National Defense Committee and other committees, and even in
the Information Center of the Legislative Yuan. Eventually it will
not suprise us that our lawmakers are only capable of pinpointeing
some hot issues reported by the media during interrogation with
defense agencies. It is not only inconducive to the congressional
oversight function over the defense agencies, but also detrimental
to the democratic development.
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