- 學位論文
內政部入出國及移民署成立之研究-政策窗的觀點
The process of the Establishment of National Immigration Agency in Taiwan- Policy Window perspective
摘要
舉凡公共政策的制定應該是順應民眾需求與因應環境變化而生。因此，政策的制定，理應與民意息息相關。然而，每天所發生的公共問題多如繁星，也僅有一小部分能受到青睞進入政策議程。因此，某些公共問題總是無法進入政府議程，究係因問題或事件本身無法得到政策制定者青睞？或是政治系統動員造成的結果？抑或是多方利益團體角力的因素？這個過程對大多數人而言，有若摸不透的迷宮，實有待深入探究。 在全球化及國際化趨勢下，跨國遷移已成為普遍現象。國際間人口的流動，包含著社會多元化、經濟自由化以及政治因素的影響。隨著國人與國際間及兩岸人民往來事務頻繁，所衍生出跨國境犯罪及非法居停留問題，已成為社會廣泛討論及注目的焦點，尤其大陸及外籍配偶的假結婚案件層出不窮，造成極大的社會成本負擔。而我國入出境及移民作業事權分散各單位，並無專責機構統一辦理，造成權責不明，作業流程繁複且行政效率不彰。尤其是大部分入出境管制和移民作業多由警察機關辦理，使我國無法擺脫警察國家的形象。因此，1991年8月22日行政院召開全國治安會報，指示內政部會同外交部、法務部、國家安全局等相關機關研究，希望能將外國人入出國及移民相關作業，成立移民專責機關；且為了能加速移民法法案立法之需要，內政部特別邀集有關機關代表及專家學者，於1996年5月14日成立「內政部研訂移民法及籌設移民署專案小組」，研議「入出國及移民法」草案及「內政部入出國及移民署組織條例」草案，並分別於1997年2月13日、2月25日送請行政院審議。「入出國及移民法」於1999年5月14日三讀通過，同年5月21日經總統公布 ，行政院發布自該日施行。然而「內政部入出國及移民署組織條例」卻因政府著手進行組織改造，認為應等「中央政府機關組織基準法」、「中央政府機關總員額法」及「行政院組織法」完成立法後，再規劃成立內政部入出國及移民署(以下簡稱移民署)。但是，移民署何以仍能在政府組織精簡的一片聲浪中獲得青睞，於2007年1月2日掛牌成立，引發研究者動機? 本次研究係以金敦提出的政策窗模型理論為主要架構，探討移民署組織重組的過程，並說明當時的「問題流」、「政治流」及「政策流」為何？著重探討促使移民署草案進入政府議程的各種問題及關鍵事件，並藉由文獻資料或媒體報導，呈現這些事件所引發政府機關關 注的面向並剖析當時國內政治環境的變遷、政治菁英的更迭、民意的趨向與利益團體活動等，對移民署成立的意義，最後探討政策窗是如何被開啟?如何在此契機中，將倡議的政策方案送入政策議程內，並由立法院審議通過，移民署終至成立。
關鍵字
內政部入出國及移民署；政策窗並列摘要
All the community policy formulation should be complied with the populace demand with lives in accordance to the environmental variation. Therefore, the policy formulation, should be closely linked with the public opinion. However, occurs every day public question many like stars, also only some small part can receive the favor to enter the policy agenda. Therefore, certain public questions are always unable to enter the government agenda, investigates is because the question or event itself is unable to obtain the policy maker to favor? Perhaps the political system mobilization creates result? Or is in every way the benefit association test of strength factor? This process speaking of the majority people, has if traces the airtight labyrinth, really has treats the thorough inquisition. Under the globalization and the internationalization tendency, the transnational migration has become the universal phenomenon. The international population flowing, is containing the social multiplication, the economical liberalization as well as the political factor influence. And international and both banks people intercourse business is frequent along with the people, grows the cross border crime and illegal stops for a while and take up temporary lodging keeps the question, has become the focal point which the society widely discusses and gazes, especially the mainland and the foreign spouse's vacation marriage case emerges one after another incessantly, creates the enormous social cost burden. But our country enters leaves country and immigrates the work governance to disperse various units, and the non-sole responsibility organization unification handles, creates the power and responsibility to be unclear, work flow complicated also administrative efficiency not clear. Majority of enters in particular leaves country the control and the immigration work many handles by the police institution, causes our country to be unable to get rid of the police state the image. Therefore, on August 22, 1991 the Executive Yuan convened the national public security bulletin, instructed the Ministry of Interior handles jointly with Ministry of Foreign Affairs, the Ministry of Justice, National security Bureau and so on Related Institution studies, the hope can enter the foreigner the study abroad and the immigration correlation work, the establishment immigration sole responsibility institution; Also in order to can accelerate need of the immigration law bill legislation, the Ministry of Interior calls together the related institution to represent and the experts specially, established “the Ministry of Interior May 14, 1996 to grind subscribes the immigration law and establishes after consideration the immigrant bureau special case group” , the thorough discussion “national immigration law” the draft and “the Ministry of Interior National Immigration Agency organic rules” the draft, and in February 13, 1997, on February 25 delivered separately asks the Executive Yuan to consider. “Entered the study abroad and the immigration law” three reads in May 14, 1999 passes, on May 21 announces in the same year by way of president, the Executive Yuan issues from this day execution. Because however “the Ministry of Interior National Immigration Agency organic rules” the government takes steps the organization to transform actually, after thought should wait for “the central authorities institution to organize the datum law”, “the central authorities institution total specified number of personnel law” and “the Executive Yuan constitutive law” completes the legislation, again plans establishes the Ministry of Interior National Immigration Agency (hereafter refers to as immigrant agency). But, how could the immigrant agency still obtain the favor in a piece of voice which the official organization simplified, licenses the establishment in January 2, 2007, initiates the researcher motive? This research is the policy window model theory which proposed by Kingdon is the main construction, discusses process which the immigrant agency organization reorganizes, and explain to the "problem tream", "political stream" and "policy stream" why? Discusses emphatically urges the immigrant bureau draft to enter the government agenda each kind of question and the essential event, and reported because of the literature material or the media, presented these events to initiate the governmental agency to pay attention face and analyzes at that time the domestic politics environment vicissitude, political cyanine England alternates, the public opinion trend and the benefit association activity and so on, to the immigrant agency establishment significance, how finally discusses the policy window is opened? How in this turning point, the policy plan which proposed sends in the policy agenda, and considers by the Legislative Yuan passes, the immigrant bureau results in the establishment.