移民權利、移民管制與整合－入出國及移民法在立法院修法過程的分析

Immigrant Rights, Immigrant Regulation and Integration: A Scrutiny of the Legislative Process

黃秀端(Shiow-Duan Hawang) ； 林政楠(Nick C. N. Lin)

《臺灣民主季刊》 11卷3期 (2014/09) Pp. 83-133

摘要

隨著全球化的腳步，台灣已由人口移出國家變為人口移入國家，為因應此種變化，行政院在2005年提出對《入出國及移民法》的大幅修正。經過立法院審查後，該法之最終內容與行政院版本有明顯不同，為什麼這個一向由行政院主導的移民立法，卻在立法院遭到相當多的修正？而修正案由最初的強調國家權力與移民管制，到最後加入諸多強調移民整合的內容？本文檢視《入出國及移民法》第四次修正在立法院的審查過程，發現Freeman的顧客型政治可以用來解釋此種轉變。顧客型政治的議題之受益對象集中於少數特定的個人或團體，但成本通常為社會大眾所共同承擔。受益者有強烈之動機進行動員，分擔者由於感受輕微，因此通常不會關心，使得這類團體往往能在該類議題上取得一定程度的成功。移民政策便是屬於此一類的議題，移盟所代表的十五個團體有動機結盟與動員，他們將焦點放在對立法委員的遊說，立委感受到移盟一面倒的強烈壓力，加上缺乏反對力量的遊說，使得最後的政策往移盟的主張方向傾斜。行政院版草案中，明顯的以國境管制與移民管理為核心，並未對移民權利及移民整合著墨太多。在移盟的推波助瀾下，確實帶給立委相當的壓力，該法最後的通過，對移民權利的保障帶來許多進展。

關鍵字

移民權利 ； 移民政策 ； 移民整合 ； 入出國及移民法 ； 顧客型政治

並列摘要

In order to respond to the changing role as a recipient country of international immigrants, in 2005 the Taiwanese government proposed to modify the Immigrant Act. Yet, the amendment to the Immigrant Act proposed by the Executive Yuan underwent a substantial scrutiny in the Legislative Yuan and the final outcome was significantly different from the Executive Yuan's proposal. What causes the differences between the executive and the legislative branch? What are these differences? And why did the Legislative Yuan successfully change the direction of the immigrant policy? To answer our inquiries, we focus on the legislative review process of the 4th amendment to the Immigrant Act and interviewed several legislators as well as non-legislative actors who participated in this process. We also reviewed the legislative debates and discussions, treating them as additional evidence in order to unriddle the puzzle. Our analysis shows that the executive branch, as a gate keeper, prefers immigration control/regulation over integration since it concerns issues such as national security as well as the protection of ＂we-group＂ from ＂they-group＂. On the contrary, legislators and social groups are more willing to give civil and social rights to immigrants. They prefer immigrant policies that help to integrate immigrants to our society, instead of simply managing them in certain ways. Moreover, we believe that the legislative process of the amendment of the Immigrant Act can be well explained by the ＂Client Politics Model＂ proposed by Freeman. Specifically, since immigration policy lacks for public attention, small and well-organized groups intensely interested in the policy may develop close working relationships with officials and may ultimately impact the policy outputs.

並列關鍵字

Immigrant rights ； immigration policy ； immigrant integration ； the Immigrant Act ； client politics model

參考文獻

王宏仁(2001)。社會階層化下的婚姻移民與國內勞動市場─以越南新娘為例。台灣社會研究季刊。41，99-127。

王麗娟（2011）。〈挪威血案，預謀2年，要趕走穆斯林；殺人魔1,500頁宣言：殘忍，但非做不可〉，《聯合報》，7月25日，版A1。(Li-juan Wang [2002]. “Norway Slaughter Prepared for Two Years Get Rid of Muslim Killer's 1500 Pages Manifesto: Brutal but Have to do it.” United Daily, July 25:A1.)

立法院（2005）。《立法院公報》，第95卷，第3期。台北：立法院。Legislative Yuan [2005]. Legislative Yuan Bulletin, Vol. 95, No. 3. Taipei: Legislative Yuan.

立法院 （2006）。《立法院公報》，第95卷，第16期。台北：立法院。[2006] Legislative Yuan. Legislative Yuan Bulletin, Vol. 95, No. 16. Taipei: Legislative Yuan.

立法院（2006）。《立法院公報》，第96卷，第2期。台北：立法院。Legislative Yuan [2006]. Legislative Yuan Bulletin, Vol. 96, No. 2. Taipei: Legislative Yuan.