我國《新住民基本法》之立法必要性探討

新住民人口迄2019年12月止已超過55萬人，為我國的第五大新興族群。目前我國新住民相關法制規範係依照國籍來區分，因所適用的法律不同，其所涉及之問題與權責更是散落於不同部會。除此之外，許多與新住民相關的事務（如「新住民發展基金」、「新住民事務協調會報」），也因欠缺正式法源依據而時有爭議產生。有鑑於此，時任立法委員的林麗蟬及其餘立法委員遂於2017年提案制定《新住民基本法》，期待能藉由此法落實憲法上的平等權及多元文化意旨，增進新住民相關權益保障。《新住民基本法》草案雖已於2017年10月交付立法院內政委員會審查，然其後並無更近一步之發展。對此，本文採用文獻分析法與訪談研究法蒐集相關研究資料，綜整新住民在我國的問題現況，針對我國是否有制定一部《新住民基本法》的必要性進行分析與探討。本文之研究目的有三，其一係為了解《新住民基本法》草案之立法緣起、背景，以及相關利害關係人的訴求。再者，歸納探討草案的立法重點，透過檢閱和比較我國既有規範，評析《新住民基本法》於我國適用的助益。其三將根據本文之研究結果，對《新住民基本法》未來可行的規劃方向提出建議。本研究針對《新住民基本法》草案條文中所揭示的重點逐項探討，又將草案條文規範中所能產生之效果進一步地區分成「宣示性功能」與「實質性功能」。《新住民基本法》草案之宣示性功能包含該草案的「立法目的與保障對象範圍界定」、「如何促進新住民文化發展與交流」，以及「新住民相關重要權利保障」等三個重點，主要以宣示意義為主，較不具強制性。實質性功能的內容則較能針對我國的現行制度產生實質改變，將著重探討新住民專責機構「新住民事務委員會」的設置必要性，以及與「新住民發展基金」現行成效等相關議題。在草案的宣示性功能方面，由於目前「新住民」一詞欠缺具體定義，致使許多相關事項難以進入政策議程之中。《新住民基本法》草案針對保障對象進行規範，有助於明確新住民定位。在文化發展及相關權益保障的部分，草案條文目前所能產生的法律效果較弱，若能明示其施行的具體方式，針對部分規範設定最低限度保障或訂定相關罰則，則該草案將會更具意義。至於草案的實質性功能部分，設立新住民專責機構有助強化新住民相關政策的統籌與規劃，惟受限於行政院組織改造相關法律規範，設立一新興機構著實不易。另一方面，賦予新住民發展基金法律層級的保障，亦對於維持財源的穩定性有一定的助益。隨著我國少子女化問題日益嚴重，新住民的能量可成為我國未來人口政策發展目標之一。制定《新住民基本法》（或類似概念之專法）保障新住民發展有其必要性，惟並非指顧之際可以達成。本文建議，在維繫新住民相關權益方面，應先以修正既有法規問題作為當務之急，並為新住民發展基金建立特定財源，完備經費來源之保障。而在跨部會政策協調方面，建議可以任務編組之形式規劃相關業務，亦可加強現制下新住民發展基金管理會的功能性。除此之外，在新住民公共參與機會、老年安養問題，以及偏鄉地區發展等方面尚須持續關注，以妥善保障新住民的相關權益。

關鍵字

新住民；新住民基本法；新住民專法；新住民事務委員會；新住民發展基金

並列摘要

As of December 2019, the population of New Immigrant population has surpassed 550,000 and has become the fifth-largest emerging ethnic group in Taiwan. At present, the legal regulations related to New Immigrants in Taiwan are divided according to the original nationality, and the issues and responsibilities are scattered among different ministries and commissions because of the different laws that apply. In addition, many issues related to New Immigrants (such as the “New Immigrant Development Fund” and the “New Immigrant Civil Affairs Coordination Committee”) are also controversial due to the lack of a formal legal basis. In view of this, Lin Li-Chan, who was still a legislator at the time, and others proposed to enact the “Basic Law of New Immigrants” in 2017. It is expected that this law will implement the rights of equality mentioned in the Constitution and multiculturalism, and enhance the protection of the related rights of New Immigrants. Although the draft of the “Basic Law of New Immigrants” was submitted to the Legislative Yuan's Internal Administration Committee for review in October 2017, there has been no further development since then. In this regard, this paper uses literature analysis and interview research to collect relevant research data to synthesize the current situation of New Immigrants in Taiwan and to analyze and explore whether there is a need for the “Basic Law of New Immigrants” in Taiwan. This paper has three purposes. One of them is to understand the origin, background, and demands of the stakeholders of the draft “Basic Law of New Immigrants”. In addition, we will summarize the main points of the draft legislation and evaluate the usefulness of the “Basic Law of New Immigrants” by reviewing and comparing the existing regulations in Taiwan. Thirdly, based on the results of this paper, we will propose feasible suggestions for the future direction of the “Basic Law of New Immigrants”. This research examines each of the major points revealed in the provisions of the draft “Basic Law of New Immigrants”, and further divides the effects of the provisions of the draft “Basic Law of New Immigrants” into “declarative functions” and “substantive functions”. The declarative function of the draft “Basic Law of New Immigrants” includes the three main points of the draft law, such as “defining the purpose of the legislation and the scope of protection”, “how to protect the cultural development and exchanges of new immigrants”, and “protecting the related important rights of new immigrants". The main purpose of the draft is to declare the meaning of the law and it is not mandatory. The content of the substantive functions is more likely to bring about substantive changes to the current system in Taiwan, and will focus on the necessity of the establishment of the “New Immigrant Affairs Committee”, a specialized institute for New Immigrants, and the effectiveness of the “New Immigrant Development Fund” and other related issues. In terms of the declarative function of the draft, the current lack of a specific definition of the term “New Immigrants” makes it difficult for many issues related to them to enter the policy agenda. The draft “Basic Law of New Immigrants” will help to clarify the position of new immigrants by regulating the target population. In the area of cultural development and related rights and interests, the current legal effect of the draft provisions is relatively weaker. It would be more meaningful if it were to specify the specific manner in which it will be implemented, set minimum protection for some of the regulations, or establish relevant penalties. As for the substantive functions of the draft, the establishment of a dedicated agency for new immigrants will help strengthen the coordination and planning of policies related to New Immigrants, but it is not easy to establish a new agency due to the legal regulation of the Executive Yuan's organizational transformation. On the other hand, giving legal protection to the New Immigrants Development Fund is also helpful to maintain the stability of financial resources. With the growing problem of the low birth rate in our country, the energy of the New Immigrants may become one of the future goals of our population policy. The enactment of the “Basic Law of New Immigrants” (or a special law with a similar concept) is necessary to protect the development of new immigrants, but it cannot be achieved in a timely manner. This research suggests that, in terms of maintaining the rights and interests of the New Immigrants, the first priority should be to amend the existing laws and regulations, and to establish a specific source of funding for the New Immigrant Development Fund, and to complete the protection of funding sources. In terms of inter-ministerial policy coordination, it is suggested that the task force can be used to plan the related business and strengthen the function of the New Immigrant Development Fund management committee under the current system. In addition, there is a need for continued attention and proper protection in the areas of public participation opportunities for New Immigrants, elderly care, and the development of rural areas.