我國新住民服務組織之運作與轉型

Abstract

國際移民是全球化趨勢，各國均重視移民治理，並將移民政策與移民制度改革作為人才競逐及國家發展重要對策。我國少子化為國安問題，為解決超高齡社會來臨與人口紅利消失之衝擊，政府亦將開放移民列為解決人口對策之一。面對新住民人口逐年增加，為我國重要人力資源，因應國家發展需要，如何經由組織變革設計出適格且便民之新住民組織型態，以達成照顧服務、培育發展及攬才留才之政策目標，為政府必須嚴肅面對重要課題，並有助於台灣邁向國際化發展。 本研究於全球化及少子化環境系統脈絡下，基於新住民權益保障精進與友善移民環境營造之目的，以代表性官僚觀點，分析我國新住民身分法益及面臨問題。另探討我國新住民服務組織設置、資源配置及運作現況。依據相關文獻研究及深度訪談，綜整不同受訪者之專業意見。就目前新住民事務之組織設置及運作困境，提出未來新住民事務服務組織改造時，可能之組織型態政策選擇建議以供參考。 經由研究發現，我國政府對於新住民及其家庭所提供的照顧及保障措施，相較於早期已便利許多，惟在身分法益及權益保障上仍有斷點。當今各國都競相提高移民機構組織及功能定位，反觀我國移民議題多元複雜，事權分散各機關，組織分工模糊化，在組織變革上，現行新住民服務組織是否權責相符，有進行組織轉型之必要？然組織變革不易，行政資源有限，需通盤權衡的因素很多，未來仍待廣納意見，匯集各界意見以達成多數共識，並期待新住民代表性官僚目標能盡早實現。 本研究建議，為發揮民主政治多元文化精神，期待未來政府之施政作為，能讓我國新住民亦具有官僚代表性，以彰顯致政府照顧新住民美意，並確保新住民權利義務得以實踐。又為應國家攬才、促進國家發展及提升國家競爭力，未來新住民服務組織之服務對象及範圍應予擴大，並將移民署列為優先進行組織改造的重點目標，使移民組織之職能適切相符。此外，為利友善移民環境之營造，應結合公私力量，致力於新優質人力之培育。

Considering international migration has become a global trend, countries worldwide place great importance on immigration governance, and regard immigration policy and system reform as crucial strategies for talent competition and national development. Taiwan's declining birth rate has become a national security concern. To address the impact of an impending super-aged society and the disappearance of the demographic dividend, the Taiwanese government has listed opening up immigration as one of the strategies to solve demographic issues. Faced with the increasing population of new immigrants, which has become an important human resource of Taiwan, it is necessary for the Taiwanese government to seriously design appropriate and citizen-friendly institutional structures for new immigrants, so as to achieve policy goals, such as provision of care services, development cultivation, and talent retention, thereby contributing to Taiwan's international development. This study, within the context of globalization and low birth rate, aims to analyze the rights and problems faced by new immigrants in Taiwan from a representative bureaucracy, with the purposes of enhancing the protection of the rights and creating an immigration-friendly environment for new immigrants. It also explores the current status of the establishment, resource allocation, and operation of new immigrant service organizations in Taiwan. Based on relevant research and in-depth interviews, this study integrates the opinions of different professional interviewees. Regarding the current organizational challenges in new immigrant affairs and their operation, this study proposes potential policy options for the reference of future institutional reform over new immigrant affairs service. This study finds that compared to earlier stages, the Taiwanese government's provision of care and protection measures for new immigrants and their families have become much more convenient, yet there are still gaps in both rights and benefits protection. While countries around the world are striving to enhance the institutional structure and functional positioning of immigration agencies, the immigration issues in Taiwan are diverse and complex, with issues of fragmented authority across various agencies and blurred functional division among institutions. Argument of institutional reform includes the necessity to align the current institutions with their responsibilities. However, institutional reform is not easy, not only because of limited administrative resources, but also because of various factors in stake. Therefore, efforts should be taken continuously to gather opinions from various sectors to reach a majority consensus, with the hope that the goals of representative bureaucracy for new immigrants can be achieved as soon as possible. The study suggests that to promote multiculturalism in the spirit of democratic politics, the Taiwanese government should take governance actions that enable the new immigrants to also enjoy bureaucratic representation, which would further demonstrates the government's friendly policies for new immigrants and ensures the realization of their rights and obligations. Furthermore, to attract talents, promote national development, and enhance national competitiveness, the scope of service as well as the target population of new immigrant service institutions should be expanded in the future, with the priority of reforming Immigration Agency to ensure that the functions of the authorities concerned are appropriately aligned. Additionally, to create a friendly immigration environment, efforts should be made for reinforcing collaboration between the public and private sectors to cultivate quality human resources.