以香港居民來臺尋求庇護案件論我國政治庇護機制與公私協力運作

香港自2019年反送中運動後，大批香港居民離港尋求他國援助。臺灣由於毗鄰香港，且有相近的生活型態，成為部分香港居民選擇移居的目的地。然而我國因特殊的國家政治環境，且對於難民相關之立法未臻完備，導致香港居民欲向我國請求援助造成障礙。依現行《香港澳門關係條例》，我國政府僅得依據第18條因政治因素致安全、自由受有緊急危害之香港居民提供必要之援助，然而實際援助內容卻未有更細節之作法得以依循。2020年7月大陸委員會提出「香港人道援助關懷行動專案」，欲在《香港澳門關係條例》的基礎上提供香港居民來臺尋求庇護者更即時的援助。然而即使在專案的運作下，我國在處理個案來臺申請援助的程序與實質權益保障上仍有不足，甚至過去高度仰賴非政府組織在庇護工作的型態也未有顯著的改善。本研究在文獻回顧部分先爬梳聯合國難民方案，接續探討現行法規對於香港居民來臺尋求庇護者的保障，以檢視我國在處理庇護案件之形式。此外嘗試理解在公私協力運作下，政府機關如何與非政府組織之間互動以及如何達成政策目標。研究方法採用質性研究的深度訪談法，研究對象為曾執行服務香港居民來臺尋求庇護者或曾在相關議題進行倡議的非政府組織人員共4組與香港居民來臺尋求庇護者1組。研究結論發現由於立法不足，非法入境等具非法態樣的尋求庇護者無法納入我國庇護體系。且來臺尋求庇護的管道、在臺取得居留之事由以及專案審查決定都有規範不明確與未實際依法落實的狀況存在，給予尋求庇護者向我國請求援助上造成偌大的障礙。建議我國政府應確保專案審查後之決定得以讓個案有行政爭訟之機會，且應擴大現行「香港人道援助關懷行動專案」適用範圍，使更多實際上有援助需求之個案得以涵蓋在內。此外，水平互動的協力治理模式有助於政府機關與非政府組織的關係建立，有利於政策的經驗傳承與風險的轉移。而政府機關應更強化跨部會的協調與合作，有效統合各部會專業並打破部會本位主義，以因應未來更多個案向我國政府提出庇護請求。

關鍵字

尋求庇護者；政治庇護；非政府組織；公私協力

並列摘要

Since Hong Kong's anti-transmission campaign in 2019, a large number of Hong Kong residents have left Hong Kong to seek aid from other countries. Due to its proximity to Hong Kong and similar lifestyles, Taiwan has become a destination for some Hong Kong residents to emigrate to. However, due to our country’s special political environment and the incomplete legislation regarding refugees, it has created obstacles for Hong Kong residents to come to Taiwan for help. According to the Laws and Regulations Regarding Hong Kong Macao Affairs, our government can only provide necessary assistance to Hong Kong residents whose safety and freedom are endangered by political factors in accordance with Article 18. However, the actual content of assistance has not been followed in more detail. In July 2020, Mainland Affairs Council released the "Hong Kong Humanitarian Aid Project", aiming to provide Hong Kong residents with more immediate assistance on the basis of the Laws and Regulations Regarding Hong Kong Macao Affairs. However, even under the operation of the project, our country still has insufficient procedures for handling cases of Hong Kong residents coming to Taiwan for assistance and protection of substantive rights and interests. Even the type of asylum work that highly relied on non-governmental organizations in the past has not been significantly improved. In the literature review, the study first explains the UN refugee programs, and then continues to explore the protection of current laws and regulations for asylum seekers from Hong Kong, in order to examine the way our country handles asylum cases. In addition, the study tries to understand how government interacts with non-governmental organizations and how to achieve policy goals under the operation of public-private partnerships. The research method uses qualitative in-depth interviews. The interviewees included 4 groups of non-governmental organization personnel who have assisted Hong Kong residents in seeking asylum in Taiwan or have initiated related issues, and a group of Hong Kong residents seeking asylum in Taiwan. The study concludes that due to insufficient legislation, asylum seekers with illegal status, such as illegal entry, cannot be included in our country's asylum system. In addition, the channels for seeking asylum in Taiwan, the reasons for obtaining residence in Taiwan, and results after case reviews are all unclear and not actually implemented in accordance with the law. This has created obstacles for asylum seekers to request assistance from our country. It is suggested that the government should ensure that the decision made after the review allows asylum seekers to have an opportunity to submit an administrative litigation, and should expand the scope of the current "Hong Kong Humanitarian Aid Project " to include more cases that actually require assistance. In addition, the horizontal interaction helps establish the relationship between government and non-governmental organizations, and is helpful in passing on experiences and transferring risks. Government should strengthen coordination and cooperation across ministries, and effectively integrate the professions of ministries, so as to respond competently to more cases of asylum requests to the government in the future.