從憲法觀點論移工權益的平等保障──以限制轉換雇主規定為例

On the Equal Protection of Rights of Migrant Workers from the Constitutional Perspective: Taking the Regulation of Changing Employers as an Example

出於欠缺勞動力為由，自1989年開放外國勞動力進入我國勞動市場。關於國際移工議題所涉及的面向主要有二：一是國家是否開放移工進入內國勞動市場的決策以及對於移工權益保障之立法與行政，這涉及國家權力行使有關；二是從勞動關係而言，涉及雇主與外國移工之間的勞動契約關係形成，其中是否可能侵害外國人勞動的權益。在整體法律秩序中，外國移工的特徵主要有二：一是移工身份所產生我者（本國人）與他者（外國人），這不僅是與國籍身份有關，也涉及種族（膚色）或者族群（涉及語言、文化等因素）；二是勞動身份而連結勞動權益與社會安全體系。這兩個特徵顯示出外國移工之相關法律制度建構的重要性。本文的研究目的以探討外國人勞動領域之平等保障為目的，檢視就業服務法限制外籍勞工轉換雇主之合憲性審查。首先，本文檢視外國人權利受憲法平等保障之基礎。其次，本文對於限制外國勞工轉換雇主的法律規定，檢視其合憲性，探討外國人之職業自由是否以及如何受平等權保障。本文認為這個差別待遇之法律規定，雖具有憲法公益目的，但從限制手段之正當性來看，此一規定不能達成維持國內勞動秩序之目的，更加弱化移工勞動權利保障，進而使得勞動就業安全無法實現，因此具有高度違憲之可能性。

Due to insufficient labor problems, the foreign labor has been permitted to enter the labor market in Taiwan since 1989. There are two main dimensions relevant to the issue of foreign migrant workers. The first dimension concerns the state's decision on permitting migrant workers to enter the domestic labor market and the legislation and administration of protection of their rights, which involves the exercise of authority of the state. The second dimesnion signifies the aspect of labor relations which points to the formation of a labor contractual relation between employers and migrant workers, and the likelihood of infringement of the rights and interests of migrant workers. In the overall structure of law and order, migrant workers exhibits two primary characteristics. The first characteristic is related to a worker's nationality, race (i.e., color), or ethinicity (i.e., linguistic or cultural factors) generated by differentated identities between“us”(domestic workers) and“them”(foreign or migrant workers). The second characteristic involves the labor identity which links to labor's rights and social security systems. These two characteristics show the importance of establishing relevant legal systems for migrant workers. This paper aims at examining the equal protection of foreigners in the labor field and discussing the constitutional review on the restraints of the Employment Services Act on changing employers for migrant workers. This paper first reviews the foundation of rights of equal protection for foreigners embedded in the Constitution. Secondly, this paper analyzes the constitutional legitimacy for restricting the change of employers for migrant workers by exploring whether and how foreigners' professional freedoms are protected by equal rights. Additionally, this paper argues that although differential treatments by law purports to the public welfare constitutionally, in light of the legitimacy of restrictive means, this regulation cannot achieve the purpose of maintaining a domestic labor order and further weakens the protection of rights of migrant workers. Thus, this regulation is possibly and highly unconstitional as it could impede the achievementof labor and employment safety.