我國遠洋漁船境外聘僱船員勞動權益保障之研究

Abstract

為因應遠洋漁船作業人力不足問題，在僱用外籍勞工之法源依據《就業服務法》尚未制定前，行政院農業委員會即以「漁船及船員在國外基地作業管理辦法」及「台灣地區漁船船主僱用外國籍船員管理規定」，例外允許台灣籍漁船在國外港口聘僱外籍船員（即海洋漁撈工，本文均以船員稱）。「境外聘僱外籍船員」制度實際存續至今，於2017年《遠洋漁業條例》施行後，改以同法第26條授權訂定「境外僱用非我國籍船員許可及管理辦法」作為境外聘僱外籍船員之法源依據。此一制度允許漁船在我國境外僱用外籍船員，惟其招募、僱用乃至於工作場所均不在我國管轄範圍內；針對境外聘僱勞動保護問題，勞動部採取的立場係認為不宜以抽象之管轄權觀念將境外海域之漁船視為我國領土之延伸，故於境外僱用之外籍漁工（境外僱用、境外作業）未有我國《勞動基準法》之適用。\n遠洋作業漁船的作業環境兼具全球性與封閉性，在有別於陸地工作型態的特殊勞動環境中，船員工作與生活的場域難以劃分，尤其境外聘僱船員還須面對適用法規涵蓋範圍不足及差別待遇問題，勞動權益難以保障，在船員與幹部的不對等權利關係中，更屢傳傷害、凌虐、性侵害等事件，甚至演變成海上喋血案；這些事件往往因為漁船海上作業距離陸地遙遠，公權力難以在第一時間介入，後續查處相對困難，形成保護的一大漏洞。\n本文由遠洋漁船的勞動結構出發，分析船員的勞動型態及互動關係以了解其所面臨的困境，並由現行制度問題探討境外聘僱外籍船員的勞動狀況難以改善之成因。至於如何促進制度修正，本文由國際管制措施與海事相關公約之演變，探討管制手段對於國內法規修正之影響；針對內國法之討論，則逐一檢討現行法規保障不足部分，並探討勞動基準法於境外聘僱法律關係之適用問題，最後對於改善措施提出觀察與建議，期以減少外籍船員受剝削之情形，不再讓血汗海鮮成為揮之不去的印記。

In 2017, the Act for Distant Water Fisheries was enacted, in which the article 26 authorized the legislation of Regulations on the Authorization and Management of Overseas Employment of Foreign Crew Members. This provided the source of law for foreign fishermen under overseas employment. The Taiwanese fishing vessels can employ foreign crew members, but the recruitment, employment, and the working area are not under the domestic jurisdiction. The Ministry of Labor claims that the Labor Standards Act is not applicable to foreign fishermen under overseas employment.\nThe working environment of distant water fisheries is both transnational and closed. The types of labor of fishermen are different from that of workers on land. The working and living spaces of the crew members cannot be clearly distinguished. What is more, the foreign fishermen under overseas employment face mistreatments due to the insufficient considerations of regulations and the lack of labor rights. There have been numerous incidents of labor abuse, assault, sexual assault, and even murder of foreign crew members. Law enforcement on such cases are often hindered by the distance of the location. Since the fishing vessels are far from land, it is relatively difficult to carry out investigations.\nThe paper is an attempt to understand the predicaments of fishermen crew members by analyzing the types and structures of labor and their working relations. By probing into the problems of current regulations, I seek to identify the difficulties of improving the working condition of foreign fishermen under overseas employment. The study also discusses the effects of national regulations on domestic legislations and amendments by examining the evolution of national regulations and maritime agreements. Finally, to reduce the exploitation on foreign fishermen, observations and suggestions are provided on the insufficient protections provided by domestic laws and the problems of application in Labor Standards Act related to overseas employment.