順律顧問_2022年03月份國會動態報告

執行摘要

立法院3月關注的議題包括虛擬資產監理、強化電網千億預算計畫、精神衛生法修正草案、福島食品解禁、鐵道法部分條文修正草案等。

俄烏戰爭下,虛擬資產恐淪為詐騙洗錢工具,引發財政委員會多位委員的關注,對此金管會主委黃天牧表示已促請金融機構和虛擬通貨平台配合國際金融制裁,且金管會沒有自外於研究虛擬資產監理方向的國際趨勢。儘管如此,政府機關目前對於虛擬通貨監管的態度仍不明確。

經濟部次長曾文生至經濟委員會報告「強化電網千億預算」計畫,未來將加速推動分散式電網建設,多位委員對預算來源及計畫具體細項等表示關切。對此,曾次長表示尚須跨部會討論,希望4月底能列出改善項目,以趕上明年預算程序。「強化電網千億預算」計畫攸關台灣電力輸送,也是未來能源轉型的關鍵。

衛環委員會3月聚焦討論「精神衛生法修正草案」。部分委員與民間團體對院版「社區支持服務」未列法定業務事項及經費來源,且改由健保支應強制治療等相關費用,表達不滿。此案為本會期衛環類別優先法案,評估衛福部將針對各界質疑進行條文調整,此會期有望再行審議。

另4日送至院會備查的「福島食品解禁行政命令案」,朝野決議改交衛環、經濟等5委員會聯席審查,而後又因國民黨委員的杯葛,決定先辦理公聽會再審查。雖其審議程序已確定被延長,但評估大幅變動的可能性低。

交通委員會審議「鐵路法部分條文修正草案」,臺灣鐵路管理局局長杜微強調不會以賣地增加營收,並表示修法可讓臺鐵更有效運用不動產資源。另多位委員建議推廣鐵道觀光增加客源,交通部長王國材表示修法後可藉由高品質觀光服務提高票價,希望未來相關營收能成長兩倍以上。預期法規鬆綁後,臺鐵將提升其不動產的運用效益,如開放業者於車站內或周圍營運以收取權利金,此外修法後臺鐵也有望更靈活拓展鐵路觀光業務,增加與觀光平台的合作機會。

順律顧問長期關注立院財政、經濟、交通、社會福利及衛生環境委員會,以下為前述四個常設委員會的動態摘要:

財政委員會  經濟委員會    社會福利及衛生環境委員會  交通委員會

Executive summary

In March, the Legislative Yuan (“Legislature”) was focused on issues including virtual asset regulation, a NT$100 billion project to improve the electrical grid, an amendment to the Mental Health Act, the lifting of a ban on Fukushima-affected food imports, as well as an amendment to the Railway Act.

Amid the Russia-Ukraine war, the possibility that virtual assets could become instruments of fraud and money laundering has caught the attention of many on the Legislature’s Finance Committee. In response, Financial Supervisory Commission (FSC) Chairman Thomas Huang said that domestic financial institutions and virtual asset platforms have been instructed to comply with international financial sanctions, adding that the FSC has not excluded itself from the global pursuit of exploring virtual asset regulation. Aside from these remarks, it remains unclear as to what regulatory approaches the Taiwan government is prepared to take toward virtual assets.

Deputy Minister of Economic Affairs Vincent Tseng in a meeting with the Legislature’s Economics Committee spoke about the executive branch’s NT$100 billion project for improving the electrical grid by accelerating the development of a “distributed grid.” Lawmakers on the Economics Committee pressed the deputy minister for the project’s details and budgeting, to which the deputy minister said that the project is being discussed across different ministries and that project details hopefully can be presented by the end of April in time for review of the 2023 central government budget. The project in question is not only crucial to Taiwan’s electricity delivery but also to its energy transition.

The Legislature’s Health Committee in March was focused on an amendment to the Mental Health Act. Several legislators and civil society organizations voiced opposition to parts of the Executive Yuan’s draft amendment, arguing that the bill does not stipulate a scope nor a source of funding for “community support services” and that “mandatory community treatment,” which is separate from community support services, should not be funded by the National Health Insurance. Despite this, the amendment remains a priority for the Health Committee and is expected to undergo further review in the current session following revisions based on stakeholder input.

On March 4, the administrative directive lifting the ban on Fukushima-affected food imports was submitted to the Legislature by the Executive Yuan (“Cabinet”) for the Legislature’s reference in accordance with the law. Following cross-caucus negotiations, the Legislature resolved to have the administrative directive jointly reviewed by five of its standing committees including the Health Committee and Economics Committee. However, the joint review was delayed on March 16 after a boycott initiated by Kuomintang (KMT) lawmakers. A decision was subsequently made to hold public hearings prior to review. While the review process has been drawn out, the expectation is that the administrative directive will not be overturned.

The Legislature’s Transportation Committee on March 21 reviewed a draft amendment to the Railway Act, during which Taiwan Railway Administration (TRA) Director General Tu Wei emphasized that the TRA has no intention of taking advantage of the amendment by selling off land holdings for profit and that instead the TRA intends to more effectively utilize its real estate assets. With regard to several legislators’ recommendations to expand rail tourism, Minister of Transportation and Communications Wang Kwo-tsai said that following the amendment, the TRA will be better positioned to raise the quality of service and charge higher fares, which could lead to more than twofold growth in some revenue streams. Expectations are that once the amendment is passed, the TRA will be enabled to improve its asset utilization, such as by charging fees for the right of superficies at its train stations. In addition, under eased limitations, the TRA could be afforded more flexibility in expanding its rail tourism by forming partnerships with online travel platforms.

The following section contains more details about the above-mentioned developments at the four standing committees periodically tracked by Soundline, namely the Finance Committee, the Economics Committee, the Transportation Committee, and the Social Welfare and Environmental Hygiene Committee (Health Committee).

財政委員會

虛擬資產監管

金管會主委黃天牧3月9日赴立法院財委會就「俄烏戰爭與近期國際局勢對我國金融市場與金融服務業之衝擊與政策因應」進行專題報告。國民黨李貴敏委員質詢指出,俄烏戰爭期間虛擬資產交易盛行,恐淪為詐騙洗錢工具,政府該如何因應?對此,黃主委表示國際組織目前仍在研究虛擬資產的監理方向,金管會並沒有自外於這個趨勢。民進黨立委江永昌也指出,儘管金管會已通知金融機構和虛擬通貨平臺配合國際金融制裁,但仍不乏有心人士透過虛擬資產帳戶進行交易,金管會顯然無法掌握相關動向,且加密貨幣課稅議題也有待研議。

另外,李貴敏委員於3月21日財委會關注NFT監理議題,黃主委表示對某些科技新產物而言,監理機關若太早干預會限制其發展,國際目前對NFT也尚未有監理共識,黃主委並稱NFT是高度投機性的藝術商品。

  • 產業:虛擬資產業
  • 觀點:臺灣目前缺乏虛擬資產主管機關,金管會現階段只就洗錢防制加以管理,眾多衍生議題使得多位委員對於加密貨幣、NFT等關注度不墜,例如國民黨李貴敏委員便曾在立法院會和多個委員會上,多次向相關部會首長就虛擬資產監理加以質詢。儘管蘇揆近日答詢時允諾,將請相關部會盤點後一個月內說明,政府機關目前對於虛擬通貨監管的態度仍不明確,評估近期討論中未被提及的數位發展部,未來可能會在NFT相關政策制定中扮演一定角色。

Finance Committee

Virtual asset regulation

FSC Chairman Thomas Huang on March 9 gave a report before the Finance Committee on formulating policy responses to potential impacts of the Russian-Ukraine war on Taiwan’s financial markets. Citing a surge in virtual asset trading during the war, KMT Legislator Lee Guei-min asked what measures is the government prepared to take to prevent virtual assets from becoming a tool for fraud and money laundering. In response, the FSC chairman said that international organizations are still exploring regulatory approaches toward virtual assets and that the FSC has not excluded itself from these efforts. Democratic Progressive Party (DPP) Legislator Chiang Yung-chang said that despite the FSC’s notice for financial institutions and virtual asset platforms to comply with international financial sanctions, it is possible that some bad actors could use virtual assets to bypass said sanctions. It is clear that the FSC is unable to monitor virtual asset transactions, Legislator Chiang maintained, adding that tax rules on virtual assets have also yet to be finalized.

Separately, KMT Legislator Lee Guei-min on March 21 raised questions about the regulation of non-fungible tokens (NFTs). In response, the FSC chairman said that imposing regulations on emerging technologies may stifle development, adding that in the absence of international consensus on NFTs, the FSC’s view is that NFTs are essentially highly speculative artwork.

  • Industry: virtual assets
  • Takeaway: Currently, the FSC’s remit over virtual assets is centered on anti-money laundering. In the absence of a regulator, several cryptocurrency- and NFT-related issues have drawn the attention of lawmakers, including KMT Legislator Lee Guei-min, who have on multiple occasions pressed ministry heads to address the situation. While Premier Su Tseng-chang has promised to provide a written response addressing the regulation of virtual assets in one month’s time, it currently remains unclear as to what regulatory approaches the government is prepared to take toward virtual assets. Absent from the discussion has been the upcoming Ministry of Digital Development, which will likely play a role in NFT-relevant policymaking.

經濟委員會

強化電網千億預算計畫

針對303停電事件,經濟部次長曾文生31日至經濟委員會報告「強化電網千億預算」計畫並表示未來將以分散式電網工程建設作為主要方向。

民進黨立委邱志偉、賴瑞隆、陳明文、蘇治芬、國民黨立委吳怡玎、陳超明、呂玉玲、謝衣鳯、曾銘宗與時代力量立委邱顯智等皆對此表達關注,質詢內容聚焦於預算經費來源、計畫具體時程與細項。對此,曾次長表示預算來源及其他細節等尚待跨部會協調討論,希冀能在4月底列出所有改善項目以趕上明年預算程序。

  • 產業:主要為製造業、電力及燃氣供應業與營建工程業
  • 觀點:「強化電網千億預算」計畫不僅攸關台灣電力傳輸問題的改善,其分散式電網建構對蔡政府列為政策目標的能源轉型也極為重要。評估目前政策走向,計畫應可持續推進。

Economics Committee

NT$100 billion power grid reinforcement project

In the wake of the March 3 blackouts, Deputy Minister of Economics Affairs Vincent Tseng on March 31 gave a report before the Legislature’s Economics Committee on a NT$100 billion project to upgrade Taiwan’s electrical grid, indicating that the focus will be on developing a “distributed grid.”

Several lawmakers weighed in on the project, including DPP Legislators Chiu Chih-wei, Lai Jui-lung, Chen Ming-wen and Su Chih-fen; KMT Legislators Wu I-ding, Chen Chao-ming, Lu Yu-ling, Hsieh Yi-fong, Tseng Ming-chung; and New Power Party Legislator Chiu Hsien-chih. The legislators asked about the project’s funding sources and other details, to which the deputy minister said that the Cabinet is still deliberating the details and that the hope is to present the specifics by the end of April in time for the 2023 central government budget review.

  • Industry: primarily manufacturing, electric power and natural gas supply, engineering and construction
  • Takeaway: The NT$100 billion project is not only crucial in resolving issues with Taiwan’s electricity delivery, establishing a distributed grid is also a critical factor in determining the success of its energy transition, a long-standing priority for the Tsai administration. Given its importance, the expectation is that the project will continue to make progress.

社會福利及衛生環境委員會

精神衛生法修正草案與福食解禁

三月衛環委員會聚焦於「精神衛生法修正草案」的討論。衛福部心口司司長諶立中於9日備詢時表示,目前國內強制社區治療案件相對較少,主因是訪視費用偏低,未來期待能提高費用、增加誘因,進而改善強制社區治療量能。另外,各民間團體於21日公聽會主張院本草案所提「社區支持服務」,未列法定業務事項及經費來源,此外也一致反對改由健保支應強制治療等相關費用,認為應回歸公務預算。

有關2月甫上路的「福島食品解禁行政命令案」,在3月4日送至院會備查時,朝野黨團決議交由衛環、經濟等5委員會聯席審查,而16日審查時,又因國民黨委員的杯葛,經朝野協商決定先辦理公聽會再審查。

  • 產業:醫療保健業、居住型(護理)照顧服務業、食品業
  • 觀點:雖精神衛生法修正草案仍受部分朝野立委與民間團體質疑,但此案為本會期衛環類別之優先法案,評估衛福部將針對各界質疑進行條文調整,此會期仍有望再行審議。針對衛福部2月公告開放福食解禁的行政命令,雖其審議程序已確定被延長,但評估大幅變動的可能性低。



Health Committee

Mental Health Act amendment and lifting of Fukushima food ban

In March, the Health Committee discussed an amendment to the Mental Health Act. During a question-and-answer session, Department of Mental and Oral Health Director General Chen Li-chung on March 9 said that Taiwan’s relatively small number of mandatory community treatment cases has to do with insufficient funding for visitations by health professionals. The director general said that with more funding, incentives can be increased for the provision of mandatory community treatment. During a public hearing, several civil society organizations (CSOs) on March 21 said that the Cabinet’s draft amendment does not stipulate a scope nor a source of funding for “community support services,” making the amendment little more than empty promises. In addition, the CSOs also voiced opposition to having mandatory treatments funded by the National Health Insurance, maintaining that funding should be drawn from the government budget instead.

Separately, on March 4, the administrative directive lifting the ban on Fukushima-affected food imports issued in February was submitted by the executive branch to the Legislature for the latter’s reference in accordance with the law. Following cross-caucus negotiations, however, the Legislature resolved to have the directive jointly reviewed by five legislative standing committees including the Health Committee and Economics Committee. The joint review was further delayed on March 16 after a boycott initiated by KMT lawmakers. Following a round of cross-caucus negotiations, legislators agreed to first hold public hearings on the matter before resuming joint review.

  • Industry: healthcare, home care, food
  • Takeaway: Although some legislators and CSOs are skeptical of the draft amendment to the Mental Health Act, the bill remains a priority of the Health Committee. Expectations are that the amendment will undergo revision according to stakeholder input and will be further reviewed in the current legislative session. Regarding the directive lifting the ban on Fukushima-affected food imports, while the legislative review process has been drawn out, the expectation is that the ban will not be reinstated.

交通委員會

臺鐵資產活化、鐵道觀光

2018年普悠瑪事故後,交通部提出「鐵道法」修法。作為臺灣鐵路管理局(臺鐵)體制改革的重要方向之一,修法重點除強化事故處理機制、年度安全管理審查及事故調查權明確化等攸關安全的方案外,亦包括資產活化及推動鐵道觀光。

交通委員會於3月21日審議「鐵路法部分條文修正草案」。關於資產活化,草案新增第21條之1,明訂臺鐵報經主管機關交通部核准,得辦理其經管之國有不動產開發、處分或收益,不受國有財產法限制。國民黨立委魯明哲質疑修法後臺鐵是否會出售資產處理負債?對此,臺灣鐵路管理局局長杜微強調,臺鐵不會以賣地作為增加營收的選項,並表示修法可讓臺鐵更有效地處理不動產資源,如設定地上權等。

另外草案亦新增第47條之1,明訂臺鐵應報主管機關交通部核定,得依提供之觀光服務內涵收取費用,以增加臺鐵收益來源。民進黨立委蔡易餘、許智傑、國民黨立委許淑華、洪孟楷以及民眾黨立委張其祿皆認為政府應推廣鐵道觀光增加客源。交通部長王國材於答詢中表示臺鐵240個車站皆有特色,希望修法鬆綁後可以推動觀光發展,並舉例指出平溪、內灣、集集支線都有潛力,若能提供高品質服務便可提高票價,希望未來相關營收能成長兩倍以上。

  • 產業:觀光產業,百貨零售業
  • 觀點:政府目標於2024年達成臺鐵公司化,將參考日本鐵路公司(JR)以及香港鐵路公司等民營鐵路機構,以鐵路業外收入支應本業營運,政府認為活化資產增加業外收入,是未來臺鐵公司化後達成收益平衡的方向之一。預期法規鬆綁後,臺鐵將提升其國有不動產的運用效益,如開放飯店或百貨零售業者於車站內或周圍營運以收取權利金。另外,現階段臺鐵以外包方式經營的鐵路觀光,修法後將可更靈活拓展相關業務,也將會增加與觀光平台的合作機會。另一方面,臺鐵公司化面臨鐵路工會強力反對,3月23日近1,500名工會成員在立法院前抗議,表示公司化將危害臺鐵基層利益。來自代表超過15,000名臺鐵員工的工會壓力,將是政府推動臺鐵公司化的重大挑戰。

Transportation Committee

Taiwan Railway asset revitalization, rail tourism

In the wake of the 2018 Puyuma express train derailment, amending the Railway Act has been part of efforts by the Ministry of Transportation and Communications (MOTC) to structurally reform the Taiwan Railways Administration (TRA). Apart from strengthening the capacity to respond to major rail accidents, improve safety management and clarify jurisdictions in accident investigation, the bill also aims to promote asset revitalization and rail tourism.

The Transportation Committee on March 21 reviewed the proposed amendment to the Railway Act. On asset revitalization, the newly added Article 21-1 stipulates that with the approval of the MOTC, the TRA will be allowed to dispose of or develop its real estate holdings to generate revenue, exempt from the limitations of the National Property Act. In response to questioning by KMT Legislator Lu Ming-che, TRA Director General Tu Wei said that the TRA has no intention of taking advantage of the amendment by selling off land holdings for profit; instead, the TRA intends to revitalize its assets, such as by creating the right of superficies.

The bill also newly adds Article 47-1, which states that with the approval of the MOTC, the TRA may charge fees based on the type of tourism services rendered to bolster its income. On this front, DPP Legislators Tsai Yi-yu, Hsu Chih-chieh, KMT Legislators Hsu Shu-Hua, Hung Meng-kai and Taiwan People’s Party Legislator Jang Chyi-lu urged the government to develop rail tourism. Minister of Transportation and Communications Wang Kwo-tsai said that with the amendment, the TRA will be free to develop tourist attractions leveraging the unique attributes of its 240 train stations, adding that the TRA has several branch lines with the potential to become major tourist attractions, such as the Pingxi Line, Neiwan Line, and Jiji Line. If higher fares can be charged in return for higher quality of service, tourism revenues have a chance of being doubled, according to Minister Wang.

  • Industry: tourism, retail and department stores
  • Takeaway: The government is aiming to corporatize TRA by 2024 and plans to reference the playbook of Japan’s JR Group and Hong Kong’s Mass Transit Railway Corp., both of which saw success in improving profitability through newfound non-operating income streams. The government is hoping that tourism income from revitalized Taiwan Railway real estate assets can help the railway operator return to the black. Expectations are that if the amendment is passed, Taiwan Railway will be able to generate income from its real estate holdings by selling rights of superficies at its real estate assets to hotels and retailers. In addition, while the TRA currently works with contractors in promoting its tourism-focused routes and packages, following the amendment, the TRA will have greater flexibility in managing its rail tourism operation, increasing the potential for partnerships with online travel platforms. However, the Taiwan Railway Labor Union has strongly opposed the corporatization plan and on March 23 mobilized nearly 1,500 workers to stage a protest in front of the legislature, saying that the corporatization plan will compromise the interest of TRA workers. As the union represents more than 15,000 TRA workers, resolving its dissent will be a major challenge in the government’s bid to corporatize the TRA.

順律國際顧問Soundline Consulting

編譯
郭漢威 資深協理
林妤 專案經理 (meg.lin@jetgo.com.tw; +8862 2370-8000 #2211)
陳彥太 專案經理

衛環
黃柏勳 總監
洪政國 專案副理

交通
馮雅倫 總監

經濟
陳育正 副總監

財政
黃馨霈 專案經理

 

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