The Legislative Commentary and Analysis on the draft Special Act for Free Economic Pilot Zones (FEPZs)

[[abstract]]行政院於2013年4月核定自由經濟示範區規劃方案，期主動鬆綁法規及進行制度革新，以創造我國參與區域經濟整合的機會，並提升國內經濟成長動能，讓臺灣朝向「自由經濟島」的方向邁進。因此，行政院於2013年12月26日通過「自由經濟示範區特別條例草案」，並提送立法院審議。 由於該條例草案涉及許多法令制度的鬆綁，且全部73條條文中，有33條是屬於授權主管機關自行訂定相關規範的空白授權條款，因而造成許多爭議，嗣經立法院朝野協商決定先開5場公聽會再開始審查法案，公聽會後行政院國家發展委員會參採學者專家及民間團體代表所提意見，並修正部分條文。立法院於2014年4月28日進行實質審查，因朝野兩黨間仍有許多爭議，截至目前為止該條例草案尚未通過。 經本文研究，本條例草案確有諸多值得探討之處，為重點聚焦及便於評析，爰以反對本條例草案之民進黨2014年6月18日公布之「後門自經區，不顧前門，大開後門─解析行政院版『自由經濟示範區條例』」之見解，並參酌行政院各部會就其爭議點所作之澄清說明等，予以綜合評析。 依上開綜合評析，本研究提出以下結論：空白授權條款不宜過多、暫緩開放中國農產品免稅輸入示範區、暫緩開放新設示範區徵收土地、審慎評估中國人士商務居留對國安之疑慮、減稅招商並非萬靈丹、國際醫療專區應完全以外籍人士為服務對象、強化高教國際化之學習環境、示範區應落實保護野生動物、簡化新設示範區環評審查程序有其必要性及示範區開放外籍三師仍應慎酌等10項結論。另為利爾後本條例草案立法之參考，爰提出應積極強化現有自由貿易港區之經營成效及自由經濟示範區條例草案需再通盤檢討等2項建議。 關鍵字：自由經濟示範區、示範事業、區內一般事業、區內事業、申設機關、國際醫療機構、空白授權、國際健康、農業加值、教育創新。[[abstract]]The Free Economic Pilot Zone Plan approved by the Executive Yuan in April 2013 authorizes the relaxation of current legal restrictions and the implementation of critical reforms in order to pave the way for Taiwan’s integration with regional economic partnerships to stimulate domestic economic growth and ultimately to move Taiwan forward toward the long-term goal as a “free-economy island” The Executive Yuan subsequently passed the Draft Regulations for Free Economic Pilot Zones on December 26th 2013 and submitted this bill to the Legislative Yuan for legislative review This bill has since stalled in the Legislative review process due to contention over the breadth and depth of regulatory liberalization and the bill’s authorization in 33 of the 73 clauses that detailed rulemaking authority be released to relevant administrative authorities After informal negotiations the Legislative Yuan announced a decision that prior to giving formal consideration to the bill five public hearings would be held and that the National Development Council would make revisions to the bill document based on the consensus opinions and concerns of related experts and public advocacy groups The Legislative Yuan commenced their consideration of the revised bill on April 28th 2014 However owing to many disagreement over many issues related to this bill between the ruling and opposition parties continues to stall passage of this bill This research explores some of the most important issues related to this bill and the problems encountered during legislative review The Democratic Progressive Party (DPP) which largely opposes the bill in its current form issued a position paper on June 18th 2014 entitled “Backdoor FEPZs - Leaving the Front Door Unguarded and the Back Door Wide Open: Analysis of the Executive Yuan’s Version of the Draft Regulations for FEPZs” This position paper explained the opposition of the DPP to the bill in terms of its effect and impact on each executive agency of government After thoroughly reviewing this position paper this research offers the following 10 conclusions: 1) the number and scope of blanket authorizations of rulemaking authority given in this bill are excessive; 2) the tariff-free entry of China-origin agricultural products into FEPZs should be postponed; 3) permission to expropriate land for new FEPZs should be postponed; 4) the potential impact on Taiwan national security of Chinese establishing long-term business residency in Taiwan should be considered carefully; 5) the fact that tax reductions and similar incentives are not sustainable long-term tools for recruiting business investment should be recognized; 6) FEPZ international medical districts should be accessible exclusively to foreign clients; 7) Taiwan’s higher education environment should be further upgraded to prepare students to compete regionally and globally; 8) FEPZs should take all appropriate measures to protect the wildlife within their jurisdictions; 9) The FEPZ environmental impact assessment (EIA) process should be streamlined / simplified; and 10) the current bill’s permitting of foreign-registered lawyers accountants and architects to practice within FEPZs deserves further serious assessment and deliberation Furthermore this research also offers two suggestions to facilitate the future passage and implementation of the current draft regulations: 1) the efficiency and effectiveness of current Free Trade Zone (FTZ) operations should be significantly enhanced and 2) the current Draft Regulations for Free Economic Pilot Zones bill should be comprehensively reexamined Key Words: Free Economic Pilot Zone pilot enterprise general FEPZ enterprise FEPZ business establishment agency international medical organization blanket authorization international health agricultural added value education innovatio