歐洲聯盟推動共同移民政策的發展與挑戰---兼論對台灣的比較與借鏡

Abstract

第二次世界大戰之後，隨著歐洲經濟的復甦、「歐洲共同體」的成立與順利發展，以及「歐洲聯盟」的擴大等因素之影響，愈來愈多的非會員國居民陸續移入歐盟的重要會員國境內，同時也帶來更多的社會、經濟與治安的問題。根據2007 年9 月11 日歐洲聯盟所公布的一項報告指出，直到2006 年為止，歐盟27 個國家中共有約1850 萬的外籍移民，約占歐盟總人口的3.8%，同時自2002 年起每年約增加150 萬到200 萬的成長人數。就移民政策的範圍而言，在歐洲統合的初期，歐洲共同體條約中雖強調了會員國人民自由流通的目標，但實際上，這個範圍完全屬各會員國的權力，直到1985 年的「申根協定」以及1986 年的歐洲單一法中才開始進行此項議題的合作。隨著 1992 年的歐盟條約、1997 年的阿姆斯特丹條約、1999 年歐盟坦貝爾高峰會議宣言以及2001 年的拉肯高峰會議宣言，歐盟開始強調並具體推動建立共同移民與庇護政策的目標。2005 年10 月，歐盟執委會公布「新移民策略」以加強整合及推動各項措施。2006 年3 月，「歐洲境外管制局」也正式開始運作以打擊非法移民為主。這些作為的主要其目的就是希望能推動共同政策以有效解決歐盟境內移民及其所衍生出的問題。就台灣而言，近十幾年來，隨著經貿全球化的需求、社會人口的轉型以及兩岸關係的開放交流，愈來愈多的外籍移民湧入台灣，對國家的經濟、社會以及國家安全皆產生重要的影響。由於長久以來我國也是一個移出的國家，有關外籍移民的法令規章及制度也有許多不足之處，如何因應未來的發展是一個重要課題。本研究之目的係希望經由國際遷移理論的途徑，先就歐洲聯盟推動移民政策的歷史沿革加以探討，其次進一步探討歐洲聯盟在移民政策上的法律架構以及策略依據，之後將就歐盟推動此項政策的實施經驗與成效加以分析，最後並與台灣現況比較期而對我國未來移民政策提出具體且前瞻性之建議。

With the economic revival in Europe afterWWII, the successful development of the European Community, and the establishment of the European Union and its expansion, has motivated more people to immigrate to the European Union member states which, at the same time, has brought more social, economic and public security problems. According to a report announced by the European Union in 2007, until 2006, there were approximately 18,500,000 non-European immigrants within the 27 member states, which was about 3.8% of the total European Union population.. Simultaneously, from 2002, there has been an increase of 1,500,000 to 2,000,000 immigrants per year. Although the European Community Treaty did emphasize on the free mobility between member states at the beginning of the European unification, it has actually been totally under the control of each member state. It was not until the Schengen Agreement in 1985 and the European Single Act in 1986 did the member states begin to work on the cooperation for the immigration policy. In the Treaty on European Union in 1992, the Treaty of Amsterdam in 1997, the Declaration of Tampere in 1999 and the Laeken Summit in 2001, the establishment for a Common Immigration and Asylum Policy was an emphasized goal. For more than a decade in Taiwan, with the need for globalization in economic and trade, the transformation of population in society and the open cross-trait communication, more and more foreign immigrants have been rushing into Taiwan and this has influenced the country’s economy, society and public security seriously. Since Taiwan has also been an emigration country for a long time, inadequacy and deficiency regarding foreign immigration in the local enactment and system is inevitable. Therefore, it is essential for us to learn and act according to the development in the future. The purpose of this research is, firstly, to explore and discuss the history of the European Union’s push on immigration policy and the European Union’s legal structure and strategic basis on immigration policy, then to analyze it’s actions and results on the push for common immigration policy; thirdly, to evaluate on some of the merits and drawbacks of the policy, and to make a comparison to the current situation of Taiwan. Finally, to give a few concrete and insightful advices on the future immigration policy in Taiwan