國立政治大學 勞工研究所

加拿大就業保險給付之內容，主要分為失業給付及就業給付與支持就業措施兩大類，失業給付之內容包括：一般給付、特別給付、工作分擔與漁民給付；就業給付與支持就業措施目的為協助失業者重返勞動市場。針對原住民、身心障礙者、老年與青年等特定對象亦提供相關就業促進措施與方案。

該國制度之成效方面，低收入戶之給付額較高，發揮所得重分配效果。以變動性區域失業率記算給付額度，雖能鼓勵低失業率區就業者多停留工作，但亦使高失業率區失業者不願移動至低失業率區域。給付資格以工時為計算基礎對非典型工作者保障較佳，但因給付資格之限制，不穩定就業者較全職就業者較不易達到給付資格。特定薪資補助、勞動市場合作計畫、工作分擔對於就業有正向影響，但就業給付與支持就業措施僅限於就保之適用對象，忽略無法進入勞動市場之弱勢就業族群。

加拿大之制度具有以下特點，值得我國參考：(1)以工作時數計算給付資格，使付出勞力之計算更精確。(2)給付週數之計算配合國內實際狀況規劃，亦發揮所得重分配效果。(3)將勞工可能遭遇工作中斷或面臨解僱危機之特殊情形納入給付，並配合就業促進措施。(4)與相關團體、組織合作，鼓勵提出改革方案，致力於制度之評估與改革。

The PartⅠof the Employment Insurance Act in Canada provides regular benefit, special benefit, work-sharing, and fishing benefit to assist Canadians in facing the risk of unemployment. The PartⅡof the Act provides employment benefits and support measures to help EI claimants maintain or obtain their employment. Government in Canada also provides employment promotion measures for aboriginal peoples, people with disabilities, seniors, youth, and students.

As for the impacts and effectiveness of the EI programs, Family Supplement plays a redistributive role in Canadian economy, enhance lower income claimants receive the same extent as higher earners. Although the VER（Variable Entrance Requirement）encourages people who live in the region with lower unemployment rate to work longer, but who lives in the higher unemployment rate region may reluctant to move to the lower unemployment rate region. Hour-based eligibility for EI benefits has better protection for the atypical workers, but they are harder eligible for benefits when compare with formal workers. Targeted Wage Subsidies, Labour Market Partnerships, and work-sharing have the positive impacts on employment. That EBSM eligibility is based on EI entitlement is limited for those clients with weak labour market attachment.

There are some characteristics of the institutes in Canada:1.More precise Hour-based eligibility for EI benefits.2.Benefit period depends on regions' condition and has income redistribution effect.3.Provide benefits when Canadians facing the risk of unemployment or the special situation interrupting their employment.4.Cooperate with relate groups and organizations and encourage them to provide programs and make efforts in evaluating and reforming.

觀察過去的工會發展史，從一黨主政政府把持的政黨工會，至經濟發展時期的政經結合穩定勞資關係，工會只是國家統治的外圍團體，直至解嚴及政治民主運動興起，勞工意識獲得啟蒙，帶起一波工潮，工會自主性才逐漸展開。中華電信工會成立至今已逾五十年之久，不僅見證台灣工會的發展，更親身經歷其中，最終擺脫官方掌控，其在行動力與組織規模方面皆極具工會代表性，因此本研究首在透過中華電信工會豐富的工會行動經驗，來檢證台灣工會對於集體行動理論的適用性，探討工會運用解決困境的途徑。本研究發現，中華電信工會成員參與工會的動機是個人理性(individual rationality)與自利(self-interest)的選擇邏輯。工會的集會行動定會受到團體大小、成本與效益間的關係、選擇性誘因(selective incentives)及政治企業家(political entrepreneur)型工會領袖等變項影響，而超理性動機(extrarational motivations)與公共財等的供給變項卻不足以用來解釋工會成員之所以參加集體行動的動機。至於工會方面所面臨動員的困境，可藉由提供選擇性誘因、提升勞動意識及增加會員認同感等方式來解決，其中又以提鋒勞工意識及增加會員認同為最根本的解決之道。

From the observation on the development history, trade unions are initially founded with politic purpose during the period of dictatorship by Kuomintang. During the phase of economic development, Trade unions transferred as a tool for the country to stabilize labor relations. In the meantime, trade unions were only regarded as fringe groups and dominated by the country. Until democratic movements were thriving and martial law was ended, labor consciousness were germinated and labor strikes are ignited, and union autonomy was gradually expanded.

CTWU ( Chunghwa Telecom Workers’ Union) was founded for more than 50 years, She was not only witnessed the development of Taiwan unions but underwent the changes, and eventually got rid of the authority’s control. Either from the respects of agency or scopes of organization, CTWU possesses the representation of Taiwan unions. Therefore, this research firstly demonstrated if the interpretation of collective action is applied to Taiwan unions in accordance with plentiful experience which CTWU have, and probed into the solution for trade unions to conquer dilemma.

From this research, it was found that CTWU members’ motivation of partaking in union activities are the selection logic between individual rationality and self-interest. The union’s collective actions will be influenced by the variables in size of organizations, relations between costs and revenue, selective incentives and union leaders with the form of political entrepreneur. However, the variables of extrarational motivations and supplies of public properties are not significant enough to motivate union member joining collective actions. As regards the plight of mobilization faced by unions, it can be solved by the methods of offering selective incentives, raising labor consciousness and increasing member engagement et cetera. Above all, the most fundamental solution is to raise labor consciousness and increase member engagement.

台灣目前4人以下事業單位勞工部分沒有加入勞保，或透過錯誤單位投保勞保，乃不利其參加勞保的權益。勞委會一直嘗試採取修正勞工保險條例第六條的策略，希望將4人以下事業單位改為強制納入勞保，以保障弱勢勞工的權益；卻面臨職業工會和中小企業的反對。為促進4人以下事業單位勞工參加勞保，本文主張，政府宜改採修正勞工保險條例第八條的策略，允許4人以下事業單位勞工至職業工會自願投保勞保，並對錯誤至職業工會投保勞保的4人以下事業單位勞工辦理特赦，並承認他們以投保的勞保年資。

There are some workers in units with four or less employees in Taiwan having no Labor Insurance or illegitimately participating Labor Insurance.The Council of Labor Affairs has adopted a strategy to amend Article 6 of the Labor Insurance Act in order to require compulsary participation for workers in units with four or less employees.Yet such strategy has been boycotted by occupational trade unions and small and medium size enterprises.This research advocates for amending Article 8 of the Labor Insurance Act to allow workers in units with four or less employees participating Labor Insurance vountarily through occupational trade unions and providing amnesty to those workers who may have illegitimately participated Labor Insurance through occupational trade unions in order to promote the participation of Labor Insurance for workers in units with four or less employees.

本研究鑑於現階段政府的外勞引進政策不論在總額決定因素或是名額分配上仍有明確化空間，故以分析過去我國引進外勞的原則與做法，參考他國經驗，並透過德菲法的調查，提出建構我國總額決定與分配因素之建議。

研究發現多數德菲法專家認為外勞總額決定應參考因素，依其重要性高低分別為「缺工率」、「經濟成長率」、「一般失業率」、「勞動參與率」、「物價上漲率」、「原住民失業率」。在名額分配方面，多數德菲專家認為除了整理總額之外。對於各行業可以引進的外籍勞工人數，也應訂定總額上限，而在訂定時，應以「該行業的缺工率」、「該行業的產業關聯效果」為最主要考量因素。

研究建議為：(1)建議政府為回應工商團體與部分專家學者認為在單一總額下，外籍看護工人數增加嚴重排擠產業外勞的引進名額之意見，可以在決定總額時，將產業外勞與社福外勞總額分立，以避免產業外勞的名額受到擠壓。(2)建議政府根據本研究提出的「缺工率」、「經濟成長率」、「一般失業率」、「勞動參與率」、「物價上漲率」與「原住民失業率」等多元面向的指標之相對權重，亦即增加與外勞替代性較高之本國基層勞工之失業率雨實質工資成長率等其他較客觀的指標，設算每年可以引進之外勞總額。(3)建議在整體總額架構下，政府開放特定行業申請聘僱外勞的考慮因素時，根據行業的「缺工率」與「產業關聯效果」、「該行業的關廠歇業家數」、「該行業的職業災害發生率」，訂定各行業外勞總額上限，亦可以減少母前外勞總額得釐訂過度偏重缺工率，增加其他客觀指標作為參考依據。最後，建議強化外勞政策諮詢小組功能，並舉辦工作坊，邀請外國有實務經驗之專家來台指導小組委員如何就外勞議題進行協商。

Despite the numerous domestic literatures conducted on the impact of foreign labor importation on the domestic employment market and industry development, inconsistent results were observed due to the diverse empirical models, sources and periods of information, and the sampling combinations utilized in each study. As a result, it is difficult to determine based on the previous studies whether the importation of foreign labors imposes a positive or negative overall influence.

The key research topics of this study include: (1) re-evaluate the impact of the former foreign labor importation policy on the domestic employment market and industry development; (2) launch an effective mechanism to control and manage the total quantity and the allocation of foreign workers; (3) evaluate the potentiality of introducing foreign labors into the service industry; (4) re-evaluate the current professional qualification restriction for foreign talents working in Taiwan and determine the likelihood of loosening the constrains. The result of the Delphi survey conducted in our research demonstrated that the majority of the experts believed that the factors determining the total quantity of foreign labors are, in the order of their importance, “labor shortage ratio”, “economic growth rate”, “unemployment ratio’, “labor-force participation ratio”, “inflation rate” and “unemployment ratio for the indigenous people.” Based on the results derived above, the following policy suggestions were proposed: (1) Establish separate total quantities for industrial and social welfare foreign labors to avoid repressing the quota for the industrial foreign labors. (2) Calculate the rate of change for the total quantity of industrial foreign labor population by multiplying the “rate of change for economic growth rate”, “rate of change for unemployment rate”, “rate of change for labor-force participation rate”, “rate of change for inflation rate”, and “rate of change for unemployment rate for the indigenous” with its corresponding relative weight. (3) According to the "labor shortage rate" and "industry-related effects," the government sets the upper limit of the total industry workers.