從政策窗理論分析我國人才延攬法規及政策

Abstract

知識經濟的當代社會中，許多國家均面臨人才短缺的狀況。面對這樣的問題，各國均祭出人才延攬的公共政策，希望政策變遷後更多外國人才能夠加入國內的勞動市場。這樣的脈絡下，世界呈現「全球競才」的風貌。 由於人口結構變遷以及人才外流等因素作用，我國目前人才赤字的問題相當嚴重，近年我國以制定政策的方式試圖強化外國人才前來我國或留在我國的動機誘因與降低遷移的阻力。 近年國家發展委員會推動兩部針對外國人才延攬的特別法：《外國專業人才延攬及僱用法》以及《新經濟移民法》，兩者均是針對強化人才延攬制度而設計。《外國專業人才延攬及僱用法》於2017年三讀通過並於翌年開始施行，《新經濟移民法》自2018年提出後至今未能成功法制化。 本論文以人才延攬政策形成為研究主軸，以美國政治學學者Kingdon的政策窗理論中的多元流程框架來分析兩部法案。根據Kingdon，政策形成或政策變遷的原因是問題流、政策流與政治流等三個流程「交匯」，如果欠缺其中一個要件，新的政策不會形成或政策變遷不會發生。 本論文分析《外國專業人才延攬及僱用法》以及《新經濟移民法》兩部法案的問題流、政策流、政治流的發展狀況，以及兩部法案多元流程交匯的狀況。透過分析兩個不同政策結果的個案，對我國人才延攬政策如何形成得以有較深入的理解。

In today’s knowledge-based economy, many countries encounter the problem of talent shortage. To cope with this problem, countries place talent policies in hope of attracting more foreign talent to join the local workforce. Thus, we can see that the world is in the state of “global war for talent”. Owing to the demographic change and brain drain phenomenon, talent deficit problem of ROC is severe, thus the country makes talent rule and policy changes to increase the incentive for foreign talent to come or stay in the country, or reduce their friction of migration. National Development Council has been working on two special regulations regarding foreign talents these years, “Act for the Recruitment and Employment of Foreign Professions” and “New Economy Immigration Bill”, they are both designed to attract foreign talents. The prior successfully went through legislative process in 2017 and the latter failed to institutionalize since it was first introduced in 2018. This essay focuses on the formation of talent policy using American political scientist John W. Kingdon’s Policy Window Theory and its Multiple Stream Framework, the essay aims to analyze the two cases with the framework. According to Kingdon, policy formations or policy changes take place when the the multiple streams “couple”, the multiple streams are composed of problem stream, policy stream and political stream, without one of the streams, new policy cannot formulate, policy change cannot happen. This essay analyses the development and status of the three streams of “Act for the Recruitment and Employment of Foreign Professions” and “New Economy Immigration Bill” including the individual analysis of problem stream, policy stream, political stream and the coupling of multiple streams in the two cases. With the analysis of the two policy cases with different result, the researcher hopes to provide a better understanding on talent policy formations.