創設獨立機關，是在科層體制的行政部門劃出ㄧ定行政職掌給具有ㄧ定程度獨立的機關，使其在行政體系內享有特殊地位。我國建制獨立機關，ㄧ方面希望透過法規範確保這類機關的運作維持相當的獨立性，另ㄧ方面卻忽視與既有訴願制度的衝突性，未就此類行政機關所為行政處分之救濟設計特別爭訟程序，使其如同ㄧ般行政機關受訴願監督。由於獨立機關的行政處分通常具有高度專業性、技術性，訴願管轄機關面臨如何審查其行政處分之適法性與妥當性，以兼顧獨立機關獨立性保障與訴願功能發揮之問題。 本文主要是分析我國訴願制度的規範內容、學說及實務運作情形，探討我國獨立機關組織建制歷程、運作情形、憲政與法律爭議、司法實務與學說等，比較其他先進國家如美國、法國、德國、日本、英國等有關獨立機關之發展經驗，尤其是獨立機關所為決定之爭訟制度設計，希冀有助了解我國訴願制度與獨立機關運作特色，探究訴願制度適用於獨立機關產生之相關問題及其爭訟程序設計如何符合建置獨立機關的政策與目的，提供我國訴願制度適用於獨立機關的思考，乃至法制變革的法理基礎與方向。 / Setting up independent agencies out of the hierarchical system of the Executive branch is to allow a portion of its administrative duties to the independent agencies and to grant them a certain degree of independence and special status. However, the independent operation of such agencies ensured through law seems to ignore the conflict with the existing appeal system. The file for relief procedure of administrative disciplinary action of such independent agencies shall be distinguished from that of the general administrative agencies which are under the jurisdiction of administrative appeal. Taking into account both the independence and appeal functions, the agencies with jurisdiction of Administrative appeal confront the problem reviewing the legitimacy and propriety of the administrative sanction of the independent agencies as the administrative disciplinary action by independent agencies is highly specialized and technical. This article aims to analyze the content, theory and common practice of the administrative appeal system in Taiwan, such like the developing procedure and the operation of the independent agencies, the constitutional and legal disputes and the judicial common practice and theory. Compared with that of the other advanced countries such as the United States, France, Germany, Japan and the United Kingdom, this article, especially, highlights the developing procedure of the appeal system of the independent agencies. In order to understand the existing operation and to investigate into the issues of the appeal system in Taiwan, this article illustrates the setup of the appeal procedure of the independent agencies to comply with its policy and purpose. In the end, this article provides for the independent agencies applicable appeal system and the legal basis and direction of the change of legal system.

傳統行政機關受限於「行政一體」之限制，必須服從上級機關之指揮監督，未必總是能夠確保行政權之行使係在專業性、公正性與中立性的考量下完成。這樣的國家組織運作，若遇上特定領域或產業，認為有進一步加以管制必要時，容易因無法及時地制定相對應的政策方針，而形成與世界潮流相悖的國家決策，甚至導致抑制國家社會進步的可能，故設置超然獨立的行政組織以確保決策公正、公平與專業即有其必要。 透過本文之研究觀察發現，通訊傳播領域常常因全球化之變遷、科技整合的趨勢與需求而有較大的浮動。對於此種變化，國家行政組織時常面臨著政策、法律上彈性回應之挑戰，由於有這樣的需求，故在組織改造之下，順勢推動了有別於傳統的行政組織，也是本文關注的主題—「獨立機關」。獨立機關在世界上之發展，儘管已經運轉將近一世紀，但不論學術界或實務界，迄今仍在努力透析獨立機關之概念、型態、組織地位與範圍之界定，與一般行政機關間之抗衡關係。本文擬以此方向探討我國獨立機關之組織定位與權責分工等問題，藉以理解獨立機關之設置與管制權限，是否的確為因應某項經濟或社會事務特殊需求，基於專業及去政治化目的考量而設置，且具有最重要的特徵—「獨立性」。另外，本文亦透過組織法上之討論，以表格化之研究模式，探析我國獨立機關之間被賦予之權限及任務為何，並援引美國與德國之法制架構，討論我國近年來引發許多法律上爭議之通訊傳播管制權責劃分疑慮。期能作為我國未來於通訊傳播管制之相關法令修正及實務運作之參考。