台灣原住民族政策的發展：透過身份、語言、生計的分析

Abstract

本文探討台灣原住民政策的發展，透過原住民/族身份、語言、生計三條線索，評析原住民族現況與現行政策的發展。\n\n 原住民族及政策發展，深受台灣政治社會變革及原運之影響，1996年國會「二月政改」運動，促使原民會成立，原住民族政策邁入新的里程碑；2000年民進黨執政期間，更是原住民族政策法制化的關鍵時期。諸項政策裡，原住民/族身份、語言及生計等政策，攸關著當代原住民族發展的核心議題。\n\n 身份，係指國家認定原住民個人和民族身份，個人身份必然是民族的一份子。是國家作為行政的第一步，亦是政策給付的依據。為確保原住民身份邊界，採用血緣主義及「從姓或傳統名字」的家族主義原則認定。民族認定政策，以民族學理為基礎，尋找或分辨不同群體之間的差異，以維繫民族身份邊界。在此進程裡，提案修訂刪除「家族主義」與平埔族問題；以及民族認定，主觀認同凌駕客觀條件，均是挑戰原住民/族身份邊界的關鍵因素。\n\n 語言，為民族邊界的首要客觀條件，區辨我族與他族的重要依據，是原住民族社會整合過程的最後一道防線。主流社會輿論壓力，成為原住民族重新檢視核民族發展的核心價值，進而制訂族語振興計畫。自2001年首屆辦理族語認證、族語納入教育體制、九年一貫族語教材、頒佈書寫系統、原生族語考試，編纂辭典，以及搶救瀕危族語等計畫，帶動原住民族社會對族語的重視。為鼓勵以族語書寫創作及開拓族語發展途徑，國家辦理「族語文學獎」，意義深遠。\n\n 生計，為原住民族社會整合過程的生計變遷，牽涉人口遷徙、職別及生計方式等變遷。受到國內外勞工及產業政策等之衝擊，致原住民族失業情況，歷年均高於一般國民。為能保障在原鄉就業機會，制訂並修訂相關法令之外，並提出原鄉部落產業經濟發展的政策，以吸引族人回流，舒緩人口持續外流；發展原鄉部落經濟；以達族語文化傳承之目的。\n\n 綜觀原住民族政策是為保護原住民族生計，惟具原住民/族身份者始可享有各項政策資源；而語言，則是維繫民族身份邊界的重要條件。因此，身份、語言、生計政策，是攸關當代原住民族發展的重要條件。

The dissertation explores the evolvement of Taiwan’s policy towards aboriginal peoples to analyze the current state of Taiwanese aboriginal peoples and the current policy in the three aspects of ethnicity, languages, and livelihood.\n\n The development of Taiwanese aboriginal peoples and the evolvement of Taiwan’s policy toward aboriginal peoples have been profoundly influenced by political and social reforms in Taiwan and the Indigenous Rights Movement. The “February political reform” in the parliament in 1996 resulted in the establishment of the Council of the Indigenous Peoples (CIP), setting a new milestone to Taiwan’s policy toward aboriginal peoples. In 2000, the DPP came to rule an began a critical period for the policy toward aboriginal peoples to become institutionalized. Among the established policies, the policies relating aboriginal ethnicity either personal or ethnic, languages, and livelihood are highly related to the key issues for the contemporary development of Taiwaneses aboriginal peoples.\n\n Ethnicity specifically refers to an officially certified status both for a person and for one’s own ethnic group. A certified aborigine must be a member of a certified aboriginal people. It is the first step of government administration and also where the policy-related payments are based on. To maintain ethnic boundries among individuals, consanguinity and familism (adopting the surname of the aboriginal parent or using an aboriginal name) are the principles for ethnicity certification. As to the policy for ethnic certification, it is based on ethnological theories and tries to find or distinguish the differences among ethnic groups to maintain ethnic boundries among aboriginal peoples. Along the way, abolishing the “familism” principle and discussing the issue on Pingpu aborigines have been proposed. Also, the trend of ethnic certification goes that subjective identity overrides objective criteria, which is a key factor impacting the boundries of aboriginal individuals and ethnic groups.\n\n Language is the top objective criterion to define ethnic boundries, serving as a crucial basis to distinguish one’s own ethnic group and the other peoples, and as the last line of defense in increasingly integrated aboriginal society. Pressures from mainstream society made aborigines re-examine the core value of aboriginal development, further drawing up plans for revitalizing aborignal languages. The following has made people pay close attention to aboriginal languages in aboriginal society: that the Accreditation Test of Aboriginal Language Proficiency for Adults began in 2001, aboriginal languages are taught at school, the 9-Year Integrated textbooks for aboriginal languages have been edited, the writing systems of Taiwanese aboriginal languages have been announced, the Accreditation Test of Aboriginal Language Proficiency for Students has been held, and the plans for editing several aboriginal language dictionaries and revitalizing endangered aboriginal languages have been implemented. To encourage creative writing in aboriginal languages and broaden the way for the development of Taiwanese aboriginal languages, the government established the Awards for Creative Writing in Aboriginal Languages, which has been meaningful.\n\n Livelihood traces the changes of the economic life in increasingly integrated aboriginal society, covering the aspects of immigration, jobs and ways of earning a living. Impacted by other domestic workers, foreign workers and the industrial policy, the unemployment rate of aborigines has been higher than that of other Taiwanese citizens. To promote employment in aboriginal communities, the government not only makes new laws and revises related regulations, but also puts forth policies with the aim to spur the economic development of aboriginal communities. It might attract aborigines back home and slow the rate of outward migration. Further, aboriginal languages and cultures could be passed down.\n\n Overall, the policy toward aboriginal peoples aims to protect aboriginal peoples’ livelihoods. Only certified aborigines enjoy various resources provided by the policy. On the other hand, language is a crucial criterion for maintaining ethnic boundries. Thus, policies of aboriginal ethnicity, languages, and livelihood are important factors in the contemporary development of aboriginal peoples.