臺北市新住民服務之非營利組織與政府的互動關係：以非營利組織之視角

Abstract

本文由非營利組織角度出發，探討臺北市提供新住民服務的非營利組織與政府部門間的實際互動關係。本文藉由文獻檢閱，把非營利組織與政府的互動關係分為三種模式，包括：「公私合夥模式（Public-Private Partnership module）、補充模式（Complementary module）與對立模式（Confrontation module）」。 臺北市提供新住民服務的非營利組織可以分為兩大類：第一類為長期與政府部門合作的非營利組織；第二類為短期或未曾與政府部門合作的非營利組織，此分類也符合目前臺北市的實際情況。基於以上分類，本文採用深度訪談法，對臺北市提供新住民服務的七家非營利組織進行訪談。訪談結果顯示，長期與政府部門合作的非營利組織為臺北市社會局的主要委辦機構，其主要任務為提供新住民直接服務，而兩者的互動關係是以委辦模式為主。至於短期或未曾與政府部門合作的非營利組織，其任務除了提供新住民直接服務以外，還積極推動和參與新住民相關法案的修改過程，因而與不同政府部門有不同的互動關係，分別為：監督、倡導或合作。 基於非營利組織與臺北市政府的互動關係，這些非營利組織從三方面帶給新住民更多元的服務與更好地保障新住民的權益。第一，非營利組織與政府部門合作能提供更多元的服務給新住民，加上政府部門對新住民輔助政策的推動，因此能讓新住民有更多的輔導措施和有更好的渠道來展現自己的才能。第二，某些非營利組織藉由法案倡導，促使政府修法，其中〈國籍法〉與〈入出國及移民法〉的修改已朝向促進新住民的利益前進。第三，非營利組織扮演代替政府部門作為監督媒體的角色，對不友善或帶有歧視性的新住民報導進行糾正。 筆者從訪談結果發現，非營利組織與政府部門的委辦關係上存在不少問題，因此向難成為真正的合夥關係。針對此問題，本文提出以下建議：第一，為避免資源集中在少數非營利組織，政府部門應加強與不同的非營利組織合作。第二，社福團體的採購方式應該在〈政府採購法〉裡另立專章。第三，「新住民發展基金」應擴大對非營利組織的補助比例。第四，政府部門應簡化對非營利組織的行政作業要求，並留有一定預算與空間給非營利組織設計符合實際需求的服務與活動。 最後，本研究發現臺北市提供新住民服務的非營利組織與政府部門並沒有處於完全對立的關係，而是跟不同的政府部門會有不同的互動關係。本文在此提出以下看法：第一，非營利組織的法案倡導行為會促進與政府部門的合作關係。第二，非營利組織接受政府補助與法案倡導這兩種行為並不衝突。第三，非營利組織接受政府補助後並不會影響其參與法案建議的意願。

This research bases on the perspective of non-profit organizations, and investigates the real interaction between governmental sector and non-profit organization, which provides new immigrant services in Taipei city. Based on the existing literatures, this research categorizes the interactions between both parties into three modules, i.e. Public-Private Partnership module, Complementary module and Confrontation module. This article classifies the current non-profit organizations of new immigrant services in Taipei city into two categories: One that has long-term cooperation with governmental sectors, and one that has cooperated once or never with the governmental sectors. This classification also corresponds with the current situation in Taipei city. Based on this classification, this research adopts qualitative methodology by interviewing seven non-profit organizations, which provide most of the new immigrant services in Taipei city. The interview results indicate that the organization, which has cooperated with the governmental sectors in long run, are the appointed agents of Department of Social Welfare of Taipei City Government. The primary tasks of these non-profit organizations are providing direct services to new immigrants, and their interaction is contracting-out. Another category, the organization, which has cooperated once or never with the governmental sectors, provides direct services to the new immigrants on the one hand, and actively practices and prompts the government to amend the laws for new immigrants on the other hand. These organizations have diverse interaction with different governmental sectors, including supervision, advocacy, and cooperation. Based on the interaction between both parties, non-profit organizations provide more diversified services and better protection to the rights and benefits of the new immigrants through three aspects. Firstly, non-profit organizations cooperate with the government by providing more diversified services to the new immigrants, under the promotion of new immigrant supporting policies by government. Therefore, new immigrants will be able to enjoy more assistant measures and channels to display their abilities. Secondly, non-profit organizations advocate policies in order to prompt the government in law amendment, especially “Nationality Act” and “Immigration Law”, so that they incline to the interests of new immigrants. Finally, non-profit organizations play the role of supervising the media, and denounce the media that publishes any unfriendly or discriminatory news about new immigrants. The interview results indicate that there are many problems in the contracting-out relationship between non-profit organizations and government. This causes the difficulty in establishing real partnership. This research proposes four recommendations: Firstly, government should reinforce the cooperation with different non-profit organizations in order to avoid resources from over-concentrating in the hands of few non-profit organizations. Secondly, a new corresponding chapter under the current “Government Procurement Law” should be enacted. Thirdly, the “New Immigrants Development Fund” should expand the proportion of subsidies to non-profit organizations. Fourthly, governmental sectors should simplify the administrative procedures to be fulfilled by the non-profit organizations, and should retain certain budget and flexibility for non-profit organizations in order to plan the appropriate services and activities to fulfil the realistic demands. In addition, this research finds out that confrontation relationship does not exist between non-profit organizations, which provide new immigrant services in Taipei city, and the government. The relationship changes with different governmental departments. This article shows that: Firstly, the policy advocacy act of non-profit organizations would improve the cooperative relationship between both parties. Secondly, the non-profit organizations behaviors between receiving governmental grants and advocating policies do no conflict at all. Thirdly, the intention for giving policy advices does not be affected after non-profit organizations receive governmental grants.