拆解發展型移民國家：部會分歧如何塑造臺灣的移工政策

Abstract

本研究旨在探討臺灣移工政策制定過程中的部會分歧，並挑戰了過往認為勞動部在政策過程中相對處於弱勢的觀點。為了解答「為何勞動部在移工政策上並不如預期弱勢？」此一核心問題，本研究採用新制度主義與官僚政治的分析視角「拆解」臺灣的發展型移民國家，不再將國家視為鐵板一塊，而是希望能夠打開政策制定過程的「黑盒子」，釐清涉及其中的各部會所偏好的政策以及部會間的權力動態。 透過文獻分析以及對17位政策參與者的半結構式訪談，本研究發現各部會在移工政策上的確存在著諸多分歧，尤其以勞動部與經建部會之間最為顯著，雙方在開放引進移工的業別和規模以及薪資等勞動保障上都有不少扞格。研究結果進一步指出，勞動部之所以能有效抵禦來自經建部會的壓力，主要歸因於兩大關鍵：首先，專業分工下積累的知識權力，使勞動部在跨部會的協調機制中能有力地主導議程與論述，並在薪資脫鉤等爭議中，成為上位決策者眼中更具說服力的一方。其次，勞動部作為移工政策的主管機關，本身即享有層級上的決策優勢，並在與其他部會有分歧甚至是衝突時，多次爭取到行政院長乃至於總統等上位者的支持。 綜合上述，本研究認為，臺灣移工政策的部會分歧不僅彰顯了臺灣移民政策邏輯的複雜性，也呼應並深化了「發展型移民國家」的核心論點。尤其不如預期般弱勢的勞動部會在政策過程中扮演了積極干預的角色，主動建構多元的論述來捍衛其偏好的政策，這種策略性、目標導向的模式，與發展型移民國家主動管理移民以達成發展目標的特徵吻合。

This article investigates a key paradox in Taiwan’s labor migration policy: how the Ministry of Labor (MOL), often perceived as a ‘weak’ ministry, has successfully resisted pressure from powerful economic-sector ministries. To address this puzzle, we unpack the “black box” of the labor migration policymaking process. By disaggregating the developmental migration state and drawing on archival research and elite interviews with key policymakers, the qualitative analysis shows that the MOL’s influence is rooted in two core factors: specialization and hierarchy. The analysis reveals how the MOL has cultivated knowledge power via specialization to frame policy debates persuasively, while its hierarchical position—both as the competent authority and through its ability to secure support from higher-level decision-makers—grants it institutional veto power over proposals that conflict with its core mission of protecting the domestic labor market. These findings challenge the monolithic view of the developmental migration state, highlighting that the logic of migration governance is complex and pluralistic. The study concludes that policy outcomes are the product of competition between the distinct governance logics championed by different ministries.