- 學位論文
台灣原住民族就業障礙與對策之研究：從社會排除觀點探析
Employment Difficulties of the Taiwan Indigenous Peoples and Its Policy Solutions: From Social Exclusion Perspective
摘要
台灣原住民族，是台灣島上的先住民。在台灣社會，以「少數族群」勇敢面對主流社會不同政體文化的衝擊，並從20世紀中期後，進入快速發展的資本主義經濟的勞動市場工作，並呈現許多就業問題；1996年底政府成立部會層級的原住民族事務機關－行政院原住民族委員會，2001年底頒布「原住民族工作權保障法」，但有關原住民的就業調查報告與研究都呈現出「就業劣勢」的地位。原住民的就業障礙在哪裡？本研究特從「社會排除」的觀點來探究，希望從研究發現中提出對策建議。 社會排除，是近年被歐盟國家用來制定與分析社會政策的概念，以防範社會解組。社會排除概念的特點，係重視問題的相對性、多面向、動態過程及關注造成排除的社會機制。 本研究以「社會排除」概念探析原住民族的就業障礙，研究方法採量化與質化併用的「三角檢測」。量化資料分析係利用1994年的原住民就業狀況調查資料，以「失業」、「長期失業」、「低工作所得」、「低工時」及「社會歧視感」為勞動市場排除的衡量指標，探析原住民在勞動市場相對一般民眾被排除的程度，及影響被排除者的人口特徵。質化研究則從「被排除者」的工作生命史探討被排除的「過程」及其陷入排除的能動力；同時也訪談「熟悉原住民事務者」對原住民就業排除的觀點。 研究結果發現台灣原住民族的「就業障礙」為： 1. 原住民在勞動市場，相對一般民眾呈現被排除的現象：其排除呈現在「失業」、「長期失業」、「低工作所得」及「低工時」等經濟面向，同時潛存「社會面向」及「制度與管理面向」的排除。 2. 影響原住民在勞動市場被排除的人口特徵，以「教育程度」影響程度最大、次為「年齡」、再次為「族別」、「婚姻狀況」、「行政區域」等。 3. 原住民在勞動市場被排除者的排除過程，發現呈現從「穩定性工作」流向「不穩定的低技術性工作」，並呈現「與教育訓練剝離」的現象；也發現其流動受「非自主性導向」的影響，並在多次流動後有「回歸原鄉」的趨勢。 4. 影響原住民在勞動市場被排除的原因：除教育程度及年齡等個人條件外，社會結構因素的影響重大，此包括：經濟產業結構因素、政策與管理因素、地域因素及社會歧視因素等。 本研究並從研究發現提出去除業障礙的對策建議： 1. 提升教育政策：建議（1）提升原住民教育程度（2）增強就業能力（3）培養自信及自我管理能力（4）普及多元文化的社會教育； 2. 加強就業政策：建議（1）落實原住民就業保障政策（2）就業資訊可近性與多元性（3）職業訓練多元化與在地化（4）有效管理外勞政策； 3. 經濟產業政策：建議（1）積極發展原鄉產業（2）建立政府、產業及部落的合作架構（3）鼓勵企業展現種族包容的作為； 4. 福利照顧政策：建議（1）建構以「家庭關懷」為基礎的社區照顧服務體系（2）建立族群社會工作制度（3）鼓勵建立原住民互助支持網絡。
並列摘要
Taiwan Indigenous Peoples (TIP) started living on Taiwan before Han peoples. However, they are a minority group in Taiwan today, and they bravely face the different cultural challenges from the main society of Taiwan. Since the mid-twenty century, they have participated in the labor market of the fast growing capitalism economy; and have confronted numerous employment problems. At the end of 1996, the Central Government of Taiwan established a Cabinet level council, “the Council of Indigenous People (CIP) ” to manage the Indigenous peoples affairs. At the end of 2001, the “Indigenous Peoples Work Rights Protection Act” was enacted. However, the employment status surveys of Indigenous Peoples have consistently shown that the Indigenous Peoples are in a disadvantaged position in labor market. What are the major obstacles standing in the way of Indigenous People’s employment? This research has been conducted by “social exclusion” and hoped to find some policy suggestions. Social exclusion is a new concept used by European Union (EU) in recent years to formulate and analyze social policy to prevent social disintegration. The features of the social exclusion are that it emphasizes the relativity, agency and dynamics of social problems. This research studied and analyzed the employment obstacles of Taiwan Indigenous Peoples from social exclusion perspective. Research methodology adopted trianglation which includes both quantitative and qualitative. For quantitative analysis, it used data from the 2004 Employment Status Survey of Indigenous Peoples. It selected unemployment, long term unemployment, low working earnings, low working hours and social discrimination as measurable index for labor market social exclusion. We compared the different degree of exclusion between Indigenous vs. Han Peoples and analyzed the characteristics of the excluded. For qualitative studies, working life story method was used to interview and record the process of exclusion for those being excluded; and in-depth interviewed experts who were familiar with Indigenous Peoples affairs. Major findings on employment obstacles for Taiwan Indigenous Peoples are as follows: 1. Comparing with the general population, TIP are excluded in the labor market: they are excluded in terms of “unemployment”, “long term unemployment”, “low working earnings” and “low working hours”. These exclusions do not only exist in economic dimension, they also exist in social dimension as well as regime dimension. 2. The characteristics of TIP that had significant effect on employment exclusion are: gender, ages, educational levels, marital status, tribes and living areas. The differences in degrees of exclusion were most obvious in different educational levels, followed by ages, tribes, marital status and living areas. 3. Observing the TIP on their process of being excluded, we found that their work tended to move involuntarily from “stable work” to “unstable low skilled work” and away from what they were trained for and eventually retreating back to their own home villages. 4. Major factors that caused TIP to be excluded in the labor market: Beside personal factors, social structure had severe impact too. It included economic industrial structure, policy and management factor, regional factor and social discrimination etc. Based on the research findings this research also proposes some policy suggestions: 1. Improving education policy: It includes upgrading indigenous peoples’ educational levels, improving employability and their self-confidence on the work, improving self-control and financial planning, promoting more diversified concepts in culture and education. 2. Re-enforcing employment policy: It includes the complete implementation of the Indigenous Peoples Work Right Protection Act and accessible and diversified employment opportunities, localized and diversified job training programs and, improving effective management of immigrant workers. 3. Industrial development policy: promote regional (tribal) industries, establish the cooperating mechanism among governments, industries and indigenous tribes; Encourage corporates to show their equal treatments to all ethnicities, and provide job opportunities for Indigenous Peoples. 4. Social welfare policy: construct a “family-care” based community care services system; establish social work systems; and encourge building social support network.