日本外國人勞動力政策與「特定技能制度」之建構：以2018年〈入管法〉之修正為中心

Japanese Foreign Labor Policy and the Construction of a '' Specified Skilled Worker System'': Centered on the Revision of the 2018 Immigration Law

日本之外國人勞動力政策，長期以來以禁止引入外國單純體力勞工為原則。然而，隨著少子高齡化之影響，部分產業，特別是中小企業面臨人力嚴重不足，促使日本政府除了提升生產力與確保本國人才以外，於2018年12月透過〈出入國管理及難民認定法〉之修正，創設了新「特定技能制度」，開放14項產業領域引入具有一定知識經驗之外國單純體力勞工（1號特定技能外國人、2號特定技能外國人），預計於5年內將引入約34萬人。此為日本的外國人勞動力政策有史以來「初次」「正面」引入單純體力勞工，該轉變值得注目。此「特定技能制度」除有產業面的考量以外，亦立基於過去技能實習制度所產生的各種勞動或人權爭議，而於制度設計上利用如登錄支援機關、支援計畫等新措施，確保較弱勢的1號特定技能外國人能受到勞動與社會生活方面的保障。同時，亦修正職業仲介事業之運用要領，以防範職業仲介業者與輸出國的當地代辦機構有不當仲介壓榨的行為。另一方面，隨著特定技能制度的施行，日本政府亦開始著手策劃「外國人才引入‧共生之綜合性對應策略」，寄望得從日本語教育、公共服務環境整合、促進加入社會保險、地方社會持續發展、治安防治等「社會統合策略」層面，使外國勞工得順利融入、共生於日本社會。惟上述制度並非毫無可議之處，如居留期間限制、禁止依親、是否應同時廢止技能實習制度、防止惡意仲介壓制之規範是否有實效性、共生策略仍不明確等，皆有論者提出批判。有關該制度後續發展仍須深入觀察。

Due to the ageing population, besides increasing manufacturing productivity and ensuring national labor force, from Dec. 2018 Japan has eased immigration rules and created a new system, “Specified Skilled Worker” , for foreign blue-collar workers. Under the new system, over next 5 years more than 340,000 foreigners could be allowed to work in 14 sectors facing a labor crunch. This has been the first time that Japan positively recruits the low-skilled workers from other countries. In addition to the industrial aspects, considering various labor or human rights disputes arising from Technical Intern Training Program, the ''Special Skilled Worker'' system is also designed new measures such as registration support agencies and support programs in order to ensure the foreign blue-collar workers be protected by labor and social law. At the same time, it amended the regulation for human resources agency to eliminate intermediate exploitation, especially from Cross-national human resources agency. On the other hand, with the implementation of Specified Skilled Worker systems, the government of Japan has also begun to plan comprehensive measures for acceptance and coexistence of foreign human resources. The purpose of this strategy is to let foreign workers integrate smoothly and live in Japanese society. The measures are including, improving Japanese language education, integrating public services, promoting the enrollment for social insurance, supporting the development in local society, and maintain the public order etc. However, the new system still has attracted few criticism, such as the restriction of period of residence, prohibition for dependent relative, abolishing Technical intern training program, the effect of regulation preventing intermediate exploitation, and the vague in comprehensive measures. The follow-up development of the system is still worthy of further observation.