「差異化治理」與「民主參與」：臺灣因應貿易自由化的貿易調整協助就業政策分析

Differential Governance and Democratic Participation: An Analysis of Trade Adjustment Assistance Employment Policies in Response to Trade Liberalization in Taiwan

本文探討臺灣為因應貿易自由化而制定「貿易調整協助就業政策」的政策形成模式，並分析勞工團體與雇主團體在政策形成過程的民主參與機制以及問題。研究發現，經濟部依照「差異化治理」的原則，建構形成了「產業調整協助措施分類架構」，並且藉由「邀請雇主團體參與、排除勞工團體參與」的行政審查機制，針對產業進行分類認定的結果，依照規定卻成為勞動部實施貿易調整協助就業措施的認定依據，導致勞動部實施的貿易調整協助就業政策，其實只是一種「勞資參與不平衡」的「局部性代表制民主」政策形成模式，並不符合「政府、勞工團體、雇主團體」三方共同參與的代表制民主參與原則，因此衍生出「認定標準忽略勞工的失業情況」，以及「勞工申請就業協助措施的制度性障礙」二項制度性問題，進而造成勞動部執行貿易調整就業協助政策的就業成效不佳。研究建議，政府應訂立「因應貿易自由化協助企業與勞工專法」，在專法內建立「勞工團體與雇主資團體平衡參與」的就業協助政策形成模式，並且增訂勞工與勞工團體可以自行向勞動部申請就業協助措施的機制。

This article explore the policies formation model of trade adjustment assistance employment policies in response to trade liberalization, article also analyze the problems of democratic participation mechanism for workers’ group and employers’ group in policies formation process in Taiwan. The main finding is that Ministry of Economy constructed the “classification identification framework of industry adjustment assistance measures” were designed in accordance with the “differential governance principle”, in the meantime, Ministry of Economy also constructed the administrative examine mechanism that invite employers’ group participate but exclude workers’ group. Ministry of Labor implemented the trade adjustment assistance employment policies according to the administrative examine classification identification outcomes by Ministry of Economy. As a result, Ministry of Labor implemented an imbalanced participation model between workers group and employers group, it is just the partial representative democracy which derived institutional problems of “identification criteria ignore unemployment” and “worker’s apply barriers for employment assistance”, resulting in the low employment performance. In the future, the government should formulate a new special law for assistant affected workers and enterprises hat includes two democratic mechanisms in the new special law. Firstly, the balanced participation policies formation model between workers’ group and employers group, secondly, the worker’s and workers group’s application mechanism for employment assistance measures in response to trade liberalization.