從臺灣恢復一年期義務役探討募兵政策困境之研究

Abstract

從2024年一月份開始，政府恢復了一年期義務役的役男徵集，讓臺灣實施了十年的傾向於全募兵的兵役政策，調整為徵募併行制傾向於徵兵制的兵役制度，這十年的政策推動過程，國軍的兵力結構有了明顯的變化，役期僅僅四個月的軍事訓練役成為國軍基礎戰力的速成班隊，為了達成募兵的政策目標，國防部在過去十年期間，在薪資福利待遇上做了全面提升，並且再到各項軟硬體設備上更新建制，全力打造職業化的服役環境。 國軍推動募兵制的過程中，在招募志願役官士兵人力過程中，在推動前期有明顯的人數成長，也符合預期的政策設定目標，但是近三年來面對少子化的趨勢，以及臺灣一直名列世界末端的生育率，讓兵役招募的母體人數嚴重不足，加上臺灣社會始終存在好男不當兵的陳舊觀念，讓役齡青年願意投入軍旅的人數無法與招募目標相符，因此政府於2022年底宣布自2024年起恢復一年期義務役徵集作業，讓義務役士兵成為國軍的常備兵力，這樣的調整是否可以紓解部隊人力荒並強化部隊作戰量能值得後續觀察。 募兵制度在臺灣實行的過程中，面對許多難解的困境，除了上述少子化的趨勢外，近年受國軍管理文化影響，志願役的留營率明顯降低，軍官在服役年限未滿提早報退人數暴增；又因自2016年起對岸的「灰色襲擾」頻繁，導致戰備任務壓力增加，讓年輕人服役意願降低，2024年統計資料顯示，國軍整體人力編現比已低於八成門檻，讓部分原本招募艱困單位運作更加雪上加霜。 本文以各國兵役制度的比較，以及國軍實行十年傾向全募兵的徵募併行制的發展歷程，探討兵役制度變化對兵力結構的影響，以及募兵制施行的優缺分析和困境探討。

Starting in January 2024, Taiwan reinstated a one-year conscription military service for conscripts, marking a shift from a decade-long voluntarism-focused military policy to a compound of both conscription and voluntarism systems leaning towards conscription. Over the past decade, this policy shift has significantly reshaped the composition of the armed forces. The four-month military training service became a rapid training program for basic combat units. To achieve the voluntarism policy objectives, the Ministry of National Defense has significantly improved salaries, and benefits, and updated infrastructure and equipment to create a professional service environment. During the early stages of implementing the voluntarism system, the number of voluntary officers and enlisted personnel grew noticeably, aligning with the expected policy goals. However, in recent years, the declining birthrate and Taiwan’s consistently low fertility rate—among the lowest globally—have significantly reduced the recruitment pool. Additionally, the prevailing societal perception that ‘good men do not serve in the military’ further hindered recruitment efforts, leading to a shortfall in meeting recruitment targets. Consequently, the government announced in late 2022 that mandatory one-year conscription would resume starting in 2024, with conscripts becoming a standing force. Whether this adjustment can alleviate manpower shortages and enhance operational capabilities remains to be seen. The implementation of the voluntarism system in Taiwan has encountered numerous challenges. Apart from the declining birthrate, recent issues such as military management culture have caused a significant drop in voluntary service retention rates, with a surge in early retirement applications from officers. Since 2016, frequent “gray-zone harassment” from across the strait has further increased combat readiness pressure, further deterring young individuals from pursuing military service. By 2024, official data showed that the military’s staffing ratio had fallen below the 80% threshold, exacerbating the operational difficulties of units already struggling with recruitment challenges. This paper compares conscription systems worldwide and examines Taiwan’s decade-long experience with a combination of conscription and voluntarism. It analyzes the impact of military service policy changes on force composition and explores the recruitment system's advantages, disadvantages, and challenges.