Abstract
This paper mainly discussed and analyzed the employment policy for Indigenous
Peoples in Taiwan. The focus of this paper is to probe into the content of “Indigenous
Peoples Employment Rights Protection Act” and the mechanism for promoting
employment in Indigenous Peoples, analyzing their effects on closing the gap between
Indigenous Peoples and general population, and to make a further discussion into this
topic.
Indigenous Peoples, which consisted of 2 percent of the population in Taiwan,
are the minorities in this island. Faced with the dramatic socioeconomic and political
structure transformation, they are forced to withdraw from self- relied tribunal
economy to capitalism labor market. Due to insufficient human capital and difference
in culture, their competitiveness is weak and fall into jobless and insecurity, widening
their living gap with general population in Taiwan.
The writer has fully participated in the formation process of “Indigenous Peoples
Employment Rights Protection Act”. Based on her experiences and observation, she
applied the “Indigenous Peoples Employment Determination Model” and the theories
related to ethnical labor process—social justice theory, social exclusion perspective,
and racism theory— to gauge this issue, examining the theoretical foundation of this
policy.
After the passage of ”Indigenous Peoples Employment Rights Protection Act”,
the gap between Indigenous Peoples and general population in labor market has
narrowed from 3 to 1.5 times, demonstrating an initial success in promoting
employment in Indigenous Peoples and closing the rift. However, the writer believed
that the job opportunities offered by short-termed Public Service Expansion Program
can not last over a long period. A lasting and stable job is what Indigenous Peoples
waiting for. Therefore, the writer has proposed to make further investment in
education, upgrading Indigenous Peoples’ human capital, and to develop cultural
industry in Native Home as better strategies
Finally, the writer assumed that the works in closing the gap and protecting
Indigenous Peoples’ work right are the best strategies to achieve the goals for ethnic
harmony and social inclusion.
Keywords: Indigenous Peoples, Employment Policy, Taiwan
Closing the Gap in Labor Market—The Employment Policy for
Indigenous Peoples in Taiwan
Ju-Na Chiu ( Taiwan )
June, 2005
I. Introduction—Indigenous Peoples: a disadvantaged group in Taiwan labor market
As Pierson notes, “ethnical background is a powerful factor for social exclusion”
(Pierson, 2002), minority ethnic communities are more likely to face disadvantaged
situation than ordinary peoples in every societies. Taiwan is just another example.
Taiwan government has recognized 12 tribes of Indigenous Peoples, mainly
distributed in the east coast and southern, central and northern mountain area of the
island and amounted to 2% (457,604) of the population (22,708,280), as minorities.
Their conditions are much worse than ordinary people are in many facets based on the
statistic data, including lifetime, job stability, income, health, education, especially in
unemployment rate, which is 1.5-3 times to others (as shown in Table 1) and makes
their employment status a crucial issue. From the standpoint of Taiwan’s national
value1—“the State affirms cultural pluralism”, “the right to work shall be guaranteed
to the people” and “the State shall provide suitable opportunities for work to people
who are able to work”—the gap in unemployment rate between Indigenous peoples
and general population becomes a threat to racial equality, and ranks high in
administration’s priority as a result.
In modern society, a job not only becomes the main source for a person’s living,
but also an influential factor in determining his identity and social status. Just as
sociologist Peter Blau and Otis D. Duncan put it, an individual’s social position did
inherit from ascribed status in market-oriented society; however, achieved status
played an even essential role in establishing one’s place, especially his occupational
achievement (derived from Liu, 2004). Occupation is the major route for modern
people to derive prestige; it affects not only in lifestyles but in social network. In
European Union countries, whether trap in poverty is a phenomenon of social
exclusion or not is also a hot issue in last decade. Job insecurity, unemployment, and
long-termed jobless are sorts of exclusion in labor market, and also the main reasons
for poverty trap and social isolation (Silver, 1994; Gore, 1995; Percy-Smith, 2000;
Littlewood & Herkommer, 1999). Indigenous Peoples in Taiwan faced with
unfavorable employment situation, and consequently forced them into the corner of
1
Which is stated clearly in article 15, 152 and additional article 10 in Constitution.
poverty, family dysfunction, limits for their child in receiving education, and the
vicious cycle for their second generation. Therefore, unemployment is regarded as an
important misery index for gauging Indigenous people’s life. And, how to promote
their employment, “Closing the gap between Indigenous Peoples and general
population”, becomes the direction and goal in formulating Taiwan’s aboriginal policy
for 21 century2. The writer3 served in the Council of Indigenous Peoples4 (namely
APC) before and was in charged of the social welfare and employment promotion
affairs, fully participating in the formulation and execution process of aboriginal
employment policy. With her insight, this paper can provide an excellent analysis on
Taiwan’s employment policy for aboriginal population, discussing the strategies on
how to shorten the gap between Indigenous Peoples and general population in labor
market, and exchange experiences with all the delegates from every country.
Table 1 Comparison in Employment Status between Indigenous Peoples and
General Population in Taiwan
1999/03 195,502 68.1%
7.55%
General Population
Unemployment
Rate
Labor
Labor
Unemployment
Indigenous
Force
Participation
Rate
Peoples / General
(Unit: 10
Rate
Population Ratio
thousands
(times)
person)
954.7
57.5%
2.84%
2.66
2001/03 191,740 65.1%
9.24%
975.8
57%
3.89%
2.37
2002/05 199,254 63.7%
8.37%
995
57.3%
5.02%
1.67
2003/05 204,240 64.9%
9.64%
1,002
57.1%
4.98%
1.94
2004/05 218,113 65.4%
5.76%
1,021.4
57.6%
4.41%
1.31
Labor
Force
(Unit:
person)
Indigenous Peoples
Labor
Unemployment
Participation
Rate
Rate
1. Notes: The figures in labor force and participation rate for aboriginal population contained military
serviceman; however, both figures for the whole Taiwan area did not take serviceman into
consideration.
2. Source: Survey of Employment Status in Indigenous Peoples. (1999), (2001 1st half), (2002), (2003),
(2004): Council of Indigenous Peoples, Executive Yuan
II. Analysis on the Labor Participation and Employment Difficulties for Indigenous
Council of Indigenous Peoples has proposed “Closing the gap between Indigenous and Han peoples”
as its four years’ mid-term administration plan in year 2000.
3
The writer served in the Council of Indigenous Peoples at the start of 1997, and was the director of
Department of Social Welfare from 2000 to 2002, in charged of the social welfare, employment
promotion and health affairs.
4
“Council of Indigenous Peoples, Executive Yuan”, a cabinet-level administration aimed at protecting
aboriginal people’s rights and solving the problems arisen from cultural differences, was established on
December 10, 1996. Its jurisdictions include planning and formulating aboriginal education and culture,
welfare and employment, healthcare, homeland, economy and industry policies, with a vision of
building a equal society for the Indigenous Peoples.
2
Peoples in Taiwan
To deal with an ethnical issue must look back to its cultural context and historical
consequences (Sun, 2000). Therefore, we have first to find the way for Indigenous
Peoples to enter labor market with relation to their employment status, and then
identify the problem. We will elaborate this part from three perspectives:
1. The development of labor participation in Indigenous Peoples
The types of labor participation in Indigenous Peoples are deeply affected by
Taiwan’s political and economic development. Elites of the tribes believed the reasons
Indigenous Peoples reside at the bottom of this society are the outcomes of shock
from: (1) outside economy, especially the capitalism economic behaviors; (2)
colonized ruling; (3) strong culture from outside society (Kao, 2001). The
development of the type of Indigenous Peoples’ labor participation can roughly divide
into five phases:
(1) Tradition: Subsistent Economy and Labor Cooperation Mechanism
The major traditional production activity of Indigenous Peoples in Taiwan lies in
slash-and-burn, and the minor is hunting and collecting (Chou, Hsien-Wen, 1954:
230-237). The production is just to meet its need for subsistence, so they would not
produce more than that extent (Liao, Wen-Shan, 1984: 30). The labor process in the
Indigenous Peoples is mainly a mutual benefit one, that is labor cooperation
mechanism, and is kind of Subsistent economy as a whole. This kind of economy
lasted to 1960s, till the invasion of market economy (Liao, Wen-Shan, 1984: 91-92).
(2) Forced labor under national institution
Japan had colonized Taiwan for 50 years until the end of World War II. At 1945,
this island was returned to Republic of China. The labor status of Indigenous Peoples
in colonization period could be seen in the “Survey on Aboriginal Ethnics”(1938), a
report done by the Office of Taiwan Governor. We can find there was around 10% of
population act as forced labor. This could be the pioneer of the Indigenous Peoples
entered into market economy.
(3) Wage labor and commoditization of labor under capitalism
Taiwan government had set its policy theme for Indigenous Peoples as
“Modernization the Mountain Area”. On one side, they persevered the mountain area;
on the other, they actively promoted “Three Major Activities in Mountain
Area”(1951), attempting to turn this primary society into “modernization” and “plain
society”. These movements not only affected the traditional value of aboriginal
society (including habits and concept), but also in the form of land privatization, wage
labor, labor force outflow and labor commodification (Liao, Wen-Shan, 1984; Chiu,
Hei-Yuan, 1983; Institute of Ethnology, Academia Sinica,1983).
Sociologist also pointed out (Chou, 1983: 159), the mountain area had faced
with a dramatic change, caused by the invasion of market economy, in socioeconomic
status over 1960s. That is to say, the labor of Indigenous Peoples had enter the
capitalism market and act as “commodity”.
(4) The formation of “Urban Indigenous Peoples” and its characteristics
In 1970s, the population of Indigenous Peoples had greatly outflow to the labor
market. This was mainly induced by two forces: The socioeconomic in Taiwan
developed rapidly and the large quantity of opportunities “pull” the aborigines out of
their hometown; the widening gap between the Mountain and Plain area had “push”
these people out of their Home. Indigenous Peoples usually accept low-paid and
manual labor, like machine operator and driver, when they come to urban area. The
features of this type of work are short-termed contract, lack of protection and security,
and unwilling to be taken by peoples resided at plain. They are so-called jobs in a
“Secondary Labor Market” (Institute of Ethnology, Academia Sinica, 1983: 112).
For those Indigenous Peoples who earned a living in urban area, they may return
to their hometown collectively in tribute festival seasons and pose a big problem to
the employers in the city. Therefore, the employers would do whatever they can to
recruit guest work after the limit of importation was lift, and cause massive
unemployment problem among Indigenous Peoples (Tsai, 2001).
(5) The importation of foreign worker and the home-returning of Indigenous
Peoples
The government has lifted its limit on the importation of foreign worker for
speeding the progress of public construction. In 1990s, the government continued its
opening pace with an eye on the vacancy situation in domestic industries. Under the
pressure of the massive importation of foreign labor, the room for the Indigenous
Peoples is so narrow that forced them to return their Native Home. However, the
chances for these returnees are even slim due to the effects of entering WTO and the
land reservation policy.
2. Current Employment Status for Indigenous Peoples
The outcomes of the survey on Indigenous Peoples’ employment status do not
show much difference in recent years; however, there is a sharp contrast when
comparing with ordinary people. Their employment status is as below based on the
latest Survey on Indigenous Peoples’ Employment Status (May 2004):
(1) Labor Force
a. The number of Indigenous Peoples’ population over 15 years old is 333,303,
consisting of 218,113 in labor force. The labor participation rate for them is
65.4% (including military serviceman, 63.9% for not included), higher than the
average rate, 57.6%, for Taiwan area in the same period (military serviceman
excluded).
b. As for their sex, the labor participation rate for male is higher than female
(75:54), and both of them are higher than general population. As for their age,
the rate in the group of 25 to 44 years old, 82%, is the highest. With regard to
education level, Indigenous Peoples graduated from junior high school have the
highest labor participation rate, 76%, among others; however, the participation
rate for Indigenous Peoples graduated from college, university or above is
lower than general population.
c. The main occupations chosen by Indigenous Peoples lie in social, personal
service industry and Agriculture, Forestry, Fishery and Husbandry, 21% and
18% respectively; Manufacturing, 15%, Public Administration and
Construction, 13%, are the next. Comparing with general population, the ratio
for Indigenous Peoples serving in Agriculture, Forestry, Fishery and Husbandry
and Construction industries is apparently higher, however, the ratio is lower in
Manufacturing and Business industries.
d. The ratio of Indigenous Peoples employed by government (20%) is apparently
higher than general population (10%).
e. The per person’s monthly income for Indigenous Peoples is 16,000 dollars, and
the average monthly income for ordinary peoples is 25,000 dollars, 1.4 times to
Indigenous Peoples.
(2) Unemployment
a. Both the number of unemployed persons, 12,536, and the unemployment rate,
5.76%, for Taiwan Indigenous Peoples in May 2004 were down from the same
period in 2003 (9.64%), however, their unemployment rate was still higher than
the average rate in Taiwan area (4.44%)5.
b. Personal characteristics of unemployed were as below: (1) Both of the male and
female Indigenous Peoples had higher unemployment rate than the rate of
general population, and the rate in female aboriginals was obviously higher
than the rate of male; (2) With regard to age, the rates for Indigenous Peoples in
all age groups were higher than general population except for that was in the
group of 20-29 years old; (3) As for education level, the rates for Indigenous
Peoples in all education levels were higher than general population except for
that was in the level of college and university.
c. With respect to geographic distribution, Indigenous Peoples resided at the
southern and eastern of this island had higher unemployment rate than those
were in the central and northern area; among them, Indigenous Peoples resided
at mountain area had lower rate than those were in urban area.
d. Among the jobless Indigenous Peoples, 48% of them wished to work at “Native
Home”, 17.7% at “The township near the Native Home”, and just 14.3% of
them wished to work at urban area.
From the labor participation status and characteristics stated above, we can
conclude with the following features:
a. The outflow of population from the Native Home: the data shown that less than
half of the Indigenous Peoples resided in their Native Home; most of them
immigrated to the nearby plain or urban area. This trend was especially keen in
female aborigines and made the sex ratio in Native Home area extremely high
as a result.
b. The condition of the human capital in Indigenous Peoples was weaker than the
general population.
c. The major productive activities for Indigenous Peoples lay in agricultural and
forestry industries, which provided with low wages and socioeconomic status
jobs. Though youth aborigines may have better opportunities, they mainly
served in the sector of “secondary labor market”.
d. The job opportunities were limited in the Native Home, and forced the
Indigenous Peoples to take the low-paid, even unpaid agriculture and forestry
jobs, or to leave their home for searching better chances; however, what waiting
for them were always insecure jobs like production of manual labor.
5
The unemployment rate for Indigenous Peoples was estimated to be 7.92% if the effect of “Public
Service Expansion Program”—a temporary governmental plan aimed at reducing
unemployment—was excluded.
3. Analysis on the Employment Problems for the Indigenous Peoples
Academic in Taiwan had developed a series of studies into the unemployment
problems for Indigenous Peoples (Hsieh Kao-chiaoh and Chen, Hsin-mu, 1997; Wei,
Michael M, 1998; Cheng-Chun Lu, 1997; Ju-Na Chiu, 2003), and had concluded with
the following reasons:
(1) The work type of Indigenous Peoples was so rigid that can not keep up with the
changes, caused by the structure transformation of economy and industry.
(2) The Foreign worker importation policy had deprived the job opportunities for
Indigenous Peoples.
(3) The condition of human capital for Indigenous Peoples was so unfavorable that
lack of the competitiveness in job market.
(4) Job information was inaccessible to Indigenous Peoples due to their underusage in
government employment resources and facilities.
(5) Social discrimination and exclusion resulted from the stereotypes like alcoholic
and bungling.
(6) Lack of job opportunities in the Tribes; easily fell into unemployment when
returning home.
(7) Collective action made them hard to conduct employment counseling.
III. Related Theories and Viewpoints in Racial Labor Participation
With regard to the theories and viewpoints in racial labor participation, Wei Ming,
a Taiwan scholar, has constructed a model named “Indigenous Peoples Employment
Determination Model” to deal with employment issues. Beyond this, we will propose
three viewpoints from academic that is social justice, social exclusion and racism for
further discussion:
1. Indigenous Peoples Employment Determination Model
Wei Ming (1998) has studied into the employment security service system for
Taiwan Indigenous Peoples and proposed “Indigenous Peoples Employment
Determination Model”. He believed the employment status of Indigenous Peoples was
affected by two factors:
(1) Characteristics of Indigenous Peoples:
a. Human Capital: Skills, Knowledge, Education.
b. Cultural Capital: Cultural values and recognition with relation to
work.
c. Social Capital: Resources like social network for job-searching.
(2) Structural Factors in Labor Market:
a. Attitudes and Strategies for Employers
b. Employment Polices and Legislation for Government
c. Economic Prosperity and Structure
d. Characteristics of Job Market
Like Graph 1.
Characteristics of
Indigenous Peoples
- Human Capital
- Cultural Capital
-Social Capita
Graph 1
Employment Status
for Indigenous
Peoples
Structural Factors in Labor Market
- Attitudes and Strategies for Employers
- Employment Polices and Legislation
for Government
- Economic Prosperity and Structure
- Characteristics of Job Market
Indigenous Peoples Employment Determination Model
From the Indigenous Peoples Employment Determination Model, Aborigines
have their unique “Human Capital”, “Cultural Capital” and “Social Capital”. All three
of them influenced their employment situation. According to the Dictionary of Social
Policy (Alcock, Erskine & May,2002), the definition of “Human Capital” refers to the
idea that future income or value added through personal training or education.
“Cultural Capital” is a forms of knowledge, skill, education and any advantages a
person has which give them a higher status in society, including high expectations.
The reason that working class or oppressed group can not survive in society is not the
fault with its cultural features, but the facts that mainstream class keep passing down
tits culture to other, and devaluating other’s cultural capital. As for “Social Capital”, it
refers to the collective value of all 'social networks' and the inclinations that arise
from these networks to do things for each other. Professional specialized in social
capital theory believes that these social networks place a significant role in enhancing
mutual trusts, benefit and social welfare.
2. Social Justice Argument
Social justice argument usually serves as the basic platform for discussing the
equality issue among ethnic groups, and is the ultimate goal for social policy. The first
scholar to develop this theory is John Rawls, and the book, ”A Theory of Justice”,
points out the two fundamental rules of justice (John Rawls, 1971):
(1) Principle of justice: Each person is to have equal right.
(2) Principle of differential: Social and economic inequalities are to be arranged
differentially so that they are to the advantage of everyone.
Therefore, the term, social justice, is referred to whether an existing social
arrangement is right or fair, especially the allocation of resources and opportunities in
the social networks. The pursuit of social justice is based on three rules of justice:
rights, deserved and need. As for “rights”, social justice has expanded its meaning
to ”social right”, not only for a person’s legal and political rights, but for his rights on
social welfare, healthcare and education. The foundation of this concept lies in equal
worth to all civilians; and the term, “equal worth”, can enlarge its meaning to a
universal resources allocation process, or a fair opportunity distribution mechanism.
In recent years, the development of the theme of social policy has switched from
universal rights to conditioned rights, and made it closer to the meaning of social
justice. Further, there are two types with respect to the term “deserved”: the first is the
reward gained from one’s performance; the other is the compensation granted on the
basis of disadvantages, like the social exclusion due to handicaps or minorities.
Finally, as for the term “need”, the concept of social justice lies in resources
redistribution based on social needs, and forms two major criteria as a result:
universality and selectiveness. People supported universality believe that the basic
needs for everyone should be met without condition, and the ones who proclaimed
selectiveness assume that the welfare resources should be delivered to person with
special needs (Alcock, Erskine & May,2002).
From the viewpoint of social justice, we can deploy its ideal on the Indigenous
Peoples’ employment issue and conclude with the following rule: In the resources
allocation, we would better accept deferential strategy, that is to weight the
resources and opportunities to the disadvantaged, compensating their deserved
needs and granting them with equal rights.
3. Social Exclusion Argument
The term “social exclusion”, adapted extensively in United Kingdom and
European Union at the beginning of 21 century, is used to describe a circumstance
different from poverty, but highly related social problem. The term social exclusion is
also used to depict deprivation, a barrier limited people from participating in social
activities and public and private sector service, and is referred to some special groups
or communities. This term deals with the process of exclusion as well, especially for
those who acted as exclusionist. While we use “social exclusion” to conceptualize the
situation face by disadvantages, we propose a strategy to counter “social exclusion”,
that is social inclusion. This strategy includes enhancing the access to service delivery,
both for government and private sector, in deprived area; improving peoples’ abilities
and making them active citizens; promoting economic regeneration in local area
(Alcock, Erskine & May, 2002).
From the viewpoint of social exclusion, we can deploy its ideal on the
Indigenous Peoples’ employment issue and conclude with the following rule:
Removing the barrier on Indigenous Peoples’ social participation, enhancing the
service accessibility to Indigenous Peoples, granting empowerment to Indigenous
Peoples.
4. Racism Argument
Anti-racists value the characteristics of different races in the context of history,
economy and social structure. They express their views toward labor distribution,
occupational structure, housing allocation, health assessment and education training,
and ask to remove discrimination in culture, dialect, language, body image, marriage
and other habits. Anti-racists claim that the formation of social policy should include
the field of “publicity” and “culture” (Denney, 1995).
From the viewpoint of racism, we can deploy its ideal on the Indigenous
Peoples’ employment issue and conclude with the following rule: Respecting the
cultural characteristics of Indigenous Peoples, distinguishing their cultural
potential and eliminating the racial discrimination.
Ⅳ. Employment Promotion Policy and Strategy for Indigenous Peoples
1. Employment Policy for Indigenous Peoples
Legislation is the major form of the employment policy. In democratic Taiwan,
the process of policy formation has diversified foundation that not only involves the
policy ideal proposed by government, but struggles, expressing in the form of civil
power, from all kinds of interest groups. The formation process of employment policy
for Indigenous Peoples has the same procedure. On the side of government, the
context of social policy takes into the consideration of caring disadvantages in order
to meet the goal of social justice, as it is always the value of this society. With respect
to society, groups and legislators form Indigenous Peoples show their concerns in the
process of legislation.
As a result, besides the principles claimed by the Constitution, employment
policy for Indigenous Peoples mainly contains: (1) “Employment Service Act”－
provides to formulate special plan for disadvantages (including Indigenous Peoples)
to seek employment; (2) ”Government Procurement Act” － provides winning
tenderer who hires more than 100 employees locally shall employ a fixed ratio of
Indigenous Peoples; (3) “Indigenous Peoples Employment Rights Protection Act”.
The first section is the active policy from government for caring disadvantages, and
the last two sections is the outcome of active involvement of legislators
”Indigenous Peoples Employment Rights Protection Act”, passed on the end of
October 2001, is the most specific and representative government endeavor in
Indigenous Peoples’ employment policy. This act also includes the part related to
Indigenous Peoples in”Employment Service Act” and”Government Procurement Act”.
There are six features as for the policy theme and context in”Indigenous Peoples
Employment Rights Protection Act”:
(1) Employment Protection
a. General Embedded Employment:
(a) Fixed ratio in public sector’s employment: All government
establishments, public schools, and state-owned enterprises, except
establishments located in the counties of Penghu, Kinmen, and Lianchiang, are
required to employ one aborigine employee for every 100 persons employed
in the its positions (article 4).
(b) Fixed ratio employment in Government Procurement contracts: The
winning tenderer who hires more than 100 employees locally shall employ a
fixed ratio of Indigenous Peoples; the ratio can not less than 1% (article 12).
b. Employment Protection in Indigenous Peoples Area:
(a) Employment Ratio Protection for Non-professional: All the government
establishments, public schools, and state-owned enterprises in Indigenous
Peoples Area6 are required to employ 33 aborigine employees for every 100
“Indigenous Peoples Area” refers to the districts Indigenous Peoples historically resided at. These
places are with historical and cultural meaning to Indigenous Peoples, and are proclaimed by the
administrative authority (CIP). Currently, there are 55 township covered and proclaimed to be
Indigenous Peoples Area (368 township in Taiwan).
6
persons employed in the positions like contract workers, police, technician,
driver, janitor, cleaner, toll/fee collector and other non-technical positions
where civil service eligibility is not required.
(b) Employment Ratio Protection for Professional: All the government
establishments, public schools, and state-owned enterprises in Indigenous
Peoples Area are required to employ more than 2% of Indigenous Peoples with
civil service eligibility in their bodies (article 5).
(c) Priority for Government Procurement with Small Scale: All the
government establishments, public schools, and state-owned enterprises hold
government procurement with small scale7 in Indigenous Peoples Area are
required to be given to the individuals, institutions or groups of Indigenous
Peoples (article 11).
(2) Enhancing Human Capital in Indigenous Peoples:
a. Conducting Vocational Training for Indigenous Peoples: Administrative
labor authority (CLA) shall consider the employment needs for Indigenous
Peoples, offering them with the opportunities of accepting vocational training
programs and assisting them with living allowance in that period (article 15）.
b. Improving Professional Skills: Administrative authority (CIP) shall reward
the Indigenous Peoples who passed the skill certificate in order to upgrading
their skill levels (article 15).
(3) Cultural Mode of Employment
a. Assisting Community Employment (Cooperative Center): Government shall
assist the Indigenous Peoples to form all kinds of cooperative center based on
their working habits, in order to develop job opportunities (article 7).
Cooperative center founded by Indigenous Peoples is exempted from taxation
for 6 years from the day it established (article 8).
b. Developing Cultural Industry: Administrative authority (CIP) shall conduct
skill training program based on the cultural features of Indigenous Peoples,
developing cultural industry in order to create job opportunities (article 16).
”Government Procurement Act” refers to the contracting of construction work, the purchase or lease
of property, the retention or employment of services.
7
(4) Principle of Justice in the Workplace
a. Cultural Inclusion in Disputes Settlement Process: (1) Labor dispute that
involve with Indigenous Peoples shall be settled and mediated by a committee in
which one of the member with Indigenous background (article 20). (2) The
committee lists recommended by local government according to article 30 in
Labor Dispute Law shall consist one in five members with Indigenous
background (article 22）。
b. Prevention of Work Discrimination: Government shall provide legal
assistance when Indigenous Peoples suffer from work discrimination and labor
dispute in workplace (article 21).
(5) Job-providing to Unemployed
Protection to involuntary unemployed: Indigenous Peoples who suffered from
involuntary unemployment and fell into the corner of difficulties may apply for
temporary public work (article 18).
(6) Establishing Employment Promotion Mechanism
a. Establishing Council for Employment Promotion in Indigenous Peoples:
Central government shall establish Council for Employment Promotion in
Indigenous Peoples for planning, investigating, consulting, and promoting
related employment affairs for Indigenous Peoples (article 13）；
b. Encouraging the Establishment of Vocational Training Institutes:
Administrative labor authority shall encourage the establishment of vocational
training institutes in order to providing training to Indigenous Peoples (article
15).
c. Professional Consultation: Private organizations employed more than 50
Indigenous Peoples may establish a social worker to provide employment,
workplace, and life consultation (article 17).
We can compare the context and strategies of”Indigenous Peoples Employment
Rights Protection Act” with the theories and viewpoints discussed in chapter II. It is
highly coincident between the two (Table 2):
Table 2
Comparison between Employment Policy for Indigenous
Peoples and the Theories
Policies
Employment
Protection
Strategies
General Embedded
Employment
Fixed ratio in public sector’s
employment
Fixed ratio employment in
Government Procurement
contracts
Employment Protection in
Native Home
Theoretical Statement to Theoretical
Viewpoints
Viewpoints
Social
Eliminating the barriers
Exclusion
for Indigenous
Peoples’ Workplace
Social
Participation
Justice
Redistributing the
resources and
opportunities in order
to compensating their
deserved needs
Employment Ratio Protection
for Non-professional
Employment Ratio Protection
for Professional
Priority for Government
Procurement with Small Scale
Enhancing
Human
Capital
Cultural
Mode of
Employment
Conducting Vocational
Training
Improving Professional Skills
Assisting Community
Employment (Cooperative
Center)
Developing Cultural Industry
Human
Capital
Establishing
Employment
Promotion
Mechanism
Council for Employment
Promotion in Indigenous
Peoples
Vocational Training Institutes
for Indigenous Peoples
Professional Consultation
Social
Capital
Human
Capital
Principle of
Justice in the
Workplace
Racism
Cultural
Capital
Cultural Inclusion in Disputes Racism
Settlement Process
Prevention of Work
Discrimination
Job-providing Protection to involuntary
Social
to
unemployed
Justice
Unemployed
Enhancing the skills and
upgrading the
knowledge
Respecting the cultural
features of Indigenous
Peoples (collective
working culture)
(Turn the culture into
industry)
Enhancing the
construction of
employment resources
networks for Indigenous
Peoples
Enhancing their skills
and knowledge
Empowering them with
consultation
mechanism
Respecting the
differences and
eliminating
discrimination
Reallocation to
resources and
opportunities
2. Employment Service Mechanism
The government also adapted a series of employment service plans before the
passage of “Indigenous Peoples Employment Rights Protection Act”. Among them,
the plans that make direct employment assistance to Indigenous Peoples are: (1)
Encouraging Indigenous Peoples to participate in vocational training program:
distributing living allowance in the period of training; (2) Encouraging them to
upgrade professional skills: rewarding scholarship if they pass the certificate testing;
(3) Encouraging employers to hire Indigenous Peoples: partial wage assistance (two
to third of the minimum wage) in the initial period (half to one year); (4) Providing
temporary public work: providing governmental work like environment cleaning and
care-giving; (5) Encouraging multi-employment at the local: assisting the training and
marketing in cultural industry (like sewing, crafting, dining and homestay).
After the passage of that law, the departments continued with the original plan and
made further enlargement, especially in the fix employment ratio policy. The
regarding parties who break the rule will be fined (per person multiply monthly
minimum wage). Council of Indigenous Peoples has established a fund to collect the
fine and used it in the related employment promotion affairs.
We can divide into 5 systems with regard to a further integrating employment
measure for Indigenous Peoples: (1) Unemployed Reporting System; (2) Matching
System; (3) Training System; (4) Temporary Work System; (5) Work System. The
service delivery process is as Graph 3 (Ju-Na Chiu, 2003):
1. Unemployed Reporting System
The unemployed will notify the employment service staff at local level, or will
be investigated by the staff. Since 1999, Council of Indigenous Peoples has
requested the head of the village to serve as employment service staff; then, in
2002, the Council has recruited “employment consultants” to do this job.
2. Matching System
Providing job-matching service to unemployed, job-switching or job-searching
Indigenous Peoples in time. EVTA has provided this service through its local
branches, amounted for 44 places. CIP also offered Indigenous Peoples with
employment service counter in urban area. The context of these services contained
job-registration, consultation, and so on.
3. Training System
Jon-seeker unable to be placed due to the lack of certain skill will be
recommended to take vocational training. The program included short- to
long-termed training and community program. Indigenous Peoples will be
granted with scholarship if they pass the certificate testing after training.
4. Temporary Work System
This is a temporary stop for Indigenous Peoples who still wait for a stable job
in case of economic insecurity. The system contained Sustainable Employment
Program (namely Multi-employment Program) and Temporary and Seasonal Public
in Work Reconstruction Area8.
5. Work System
This refers to a long-termed and stable employment. The system contained the
terms of self-employed and employed.
8
Reconstruction Area refers to the area destroyed by 921 earthquake in 2000. The government has
rehabilitated this area with lots of temporary hiring for local, including aborigines.
Vocational Training System
(Vocational Training/
Unemployed Population
Work System
Unemployed
Unemployed
Reporting System
(Self-employed/ employed)
Employment Service System
(Long-termed/ Stability)
(Consultation/ Matching)
Temporary Work System
(Public Works/ Community
jobs)
Investment in Education. Upgrading Indigenous Peoples’ Ability For Employment
Table 3 Employment Service System for Indigenous Peoples
Survey on Employment Ststus
Skills Testing)
Ⅴ. Effects and Discussion
What are the effects of employment policy for Indigenous Peoples in Taiwan?
Though the period for the passage of “Indigenous Peoples Employment Rights
Protection Act” is less than 5 years, however, the strategies of promoting employment in
Indigenous Peoples has already deployed as noted above, and we believe this effect
should be accumulated. We will assess the performances through the changes in
unemployment rate and work satisfaction in Indigenous Peoples.
1. Changes in Unemployment Rate
From Table 1, we can see the unemployment rate among Indigenous Peoples has
shortened comparing with the general population, though there is still a long way to go.
We can have gain a whole picture through Graph 1.
12
10
9.64
9.24
8.37
8
%
7.55
6
5.76
5.02
4
4.98
4.41 Indigenous Peoples(%)
General Pouplation(%)
3.89
2.84
2
0
J-00
J-01
J-02
J-03
J-04
Mar-00
Mar-01
May-02
May-03
May-04
Indigenous Peoples(%)
7.55
9.24
8.37
9.64
5.76
General Pouplation(%)
2.84
3.89
5.02
4.98
4.41
Graph 1 Comparison betwenn Indigenous Peoples and General Population in
Unemployment Rate
2. Work Satisfaction in Indigenous Peoples
From the survey data collected in recent years, Indigenous Peoples were highly
satisfied with their working conditions (the rate of work satisfaction is over 78% based
on the survey in 2004). Maybe this was related to the optimistic nature of Indigenous
Peoples. The reasons that caused aborigines unsatisfied with their jobs are as followed
(1) low-paid 58%; (2) long work hours 15%; (3) vision 14%; (4) unfavorable work time
slot 14%; (5) environment around workplace 13%. After further examination, we find
that: the reason for dissatisfaction was highly related to the type of job. Low-paid,
job-insecurity and unfavorable workplace are the main reasons for Indigenous Peoples
unsatisfied with their jobs (CIP, 2004b).
3. Discussion
(1) Although the gap in the unemployment rate between Indigenous Peoples and
general population is closing, we find there is a large percentage of aborigines
participated in the temporary work provided by government. Council of
Indigenous Peoples has estimated that the annual unemployment rate for 2004 is
7.92%, not 5.76%, if the employed that joined “Public Service Expansion
Program” 9 were excluded. And we also discover most of the Indigenous Peoples
expect for a “general pay, long-termed and stable job”. Therefore, the providing
of temporary public work, especially those of embed employment, is important to
uncompetitive disadvantaged, however, it can not last long.
(2) And, how could Indigenous Peoples gain their favorable”long-termed and stable
job”? Actually, this expectation is the same among others. Only accumulation in
human capital can make the difference. Comparing with the unemployment rate in
different education levels, we can also find that the unemployment rate in
Indigenous Peoples received college education is lower than general population
(the only category). A series of studies also pointed out that human capital,
including skills, knowledge and “education”, the most representative one (Becker,
1964), is the primary condition to achieve occupational status. Therefore, to invest
in education is the fundamental route for Indigenous Peoples to gain “long-termed
and stable job” in labor market.
(3) Besides education, it is also worthwhile to discuss how to create job opportunities in
the Native Home. We also observe that, in the survey, most of the Indigenous
Peoples wish to work in the “Native Home”; and the primary reason for
job-searching Indigenous Peoples not to find a job is “no job opportunities in life
circle”. Many researchers also upheld the idea of developing the Native Home,
however, it is hard to strike a balance between the consideration of land reservation
and job creation; how to develop a mutual benefit strategy needs a delicate
designation. Currently, there is a good example for combining tourism with job
creation.
(4) “Indigenous Peoples Employment Rights Protection Act“protects the Indigenous
Peoples’ employment right by stipulating a fix ratio employment in public and
“Public Service Expansion Program” is an employment measure proposed by the government in
January 2003. The aim of this program is to deal with structural and cyclic unemployment (the rate of
unemployment was over 5% at that time) and to cover the mid- and old-aged and disadvantaged
(including aboriginal) peoples. The scale for this program is amounted to 20 billion NT dollars, assisting
100 thousands unemployed and lowering the rate by 0.23% (2003) to 0.31% (2004).
9
private sector. The effect and reaction of this act is also worth discussing. From the
perspective of enforcement, we did not have much problem with public sector,
which worked smoothly with this system; however, we encountered resistance in
the enterprises. According to the statistic data provided by the Council of
Indigenous Peoples, from November 2001 to August 2004, the number of
enterprises that were obliged to recruit the aborigines but refused to do so was
amounted to 1,750, and the fines had accumulated to 1.6 billion NT dollars. The
common reaction for enterprises is hard to find a suitable candidate in Indigenous
Peoples. Maybe. But it is worth to discover the underlying reason beyond that.
Ⅵ. Conclusion
The diversity in ethnic and culture is the feature of Taiwan, which approved by our
Constitution, and is also the asset of this island. Therefore, to protect the coexistence
and co-prosperity among different ethnics is the social value in Taiwan, and is also the
direction for the Government and the Opposition. The current Premier Frank Hsieh
had announced his administration ideal of ”Symbiosis” as soon as he took office at
February 2005. Minority, like the majority, should have the same opportunities to
include into mainstream. Faced with the dramatic socioeconomic and political
structure transformation, the Indigenous Peoples are forced to withdraw from selfrelied tribunal economy to capitalism labor market and fall into jobless and insecurity,
widening their living gap with general population in Taiwan. We believe, the strategies
in closing the gap and protecting Indigenous Peoples’ work right are the best strategies
to achieve the goals for ”Ethnic Symbiosis” and ”Social Inclusion”.
Reference
Department of Aborigines Affairs, Bureau of Police, Office of Taiwan Governor. (1938).
Survey on Aboriginal Ethnics. Taipei: Bureau of Police, Office of Taiwan Governor.
Chou, Hsien-Wen. (1954). Primitive Economy in Taiwan. Bank of Taiwan, 7(1):
229-243.
Chiu, Hei-Yuan. (1983). The Socioeconomic Status and Population of Mountain
Villages in Taiwan. Journal of China Sociology. 7：5~175。
Institute of Ethnology, Academia Sinica. (1983). Analysis and Evaluation Report on the
Mountain Administration Policy. Taipei: Nankang.
Liao, Wen-Shen (1984). Analysis on the Structural Transformation of Socioeconomic in
Taiwan Mountain Area. Master Thesis. Department of Sociology, National Taiwan
University.
Hsieh, Kao-chiaoh and Chen, Hsin-mu (1997). Enhancing the Job Skills and Upgrading
the Occupational Levels in Indigenous Peoples. Council for Economic Planning and
Research, Provincial Government of Taiwan.
Lu ,Cheng-Chun (1999). Protection for Social Right and the Employment Assistance to
Indigenous Peoples. Journal of Sociology in Soochow University. (8): 195－221.
Wei, Michael M. (1998) Investigation into Employment Security Service System for
Indigenous Peoples.《The Planning for Indigenous Peoples’ Social Welfare System》，
Council of Indigenous Peoples, Executive Yuan. Taipei: Council of Indigenous Peoples,
Executive Yuan.
Council of Indigenous Peoples.（1999）. Investigation Report on Employment Status for
Indigenous Peoples in Taiwan.
Sun, Ta-chan. (2000). Ethnic Constructing: Taiwan Indigenous Peoples’ Language,
Culture and Politics in a Narrow Opening. Taipei: Linking Books.
Kao, Cheng-Shang.（2001）. Constructing Taiwan to a Country Valued the Human
Rights of Indigenous Peoples the Most: Indigenous Peoples’ Rights and Autonomy.
Taipei: Avan Guard.
Council of Indigenous Peoples.（2001）. Investigation Report on Employment Status for
Indigenous Peoples in Taiwan.
Tsai, Ming-Jer（2001）. The History of Indigenous Peoples in Taiwan: Urban Indigenous
Peoples. Nantao: Council of Cultural Affair, Provincial Government of Taiwan.
Council of Indigenous Peoples.（2002）. Investigation Report on Employment Status for
Indigenous Peoples in Taiwan.
Ju-Na Chiu. （2003） Integrating Resources to Build a Comprehensive Employment
Service System for Indigenous Peoples. Employment Security. I(2): 75－81.
Council of Indigenous Peoples.（2003）. Investigation Report on Employment Status for
Indigenous Peoples in Taiwan.
Council of Indigenous Peoples（2004）. Investigation Report on Employment Status for
Indigenous Peoples in Taiwan.
Liu, Mei-chun (2004). Investigation Report on Employment Status for Indigenous
Peoples in Taiwan. Council of Indigenous Peoples, Executive Yuan.
Rawls, J.（1971）. A Theory of Justice, New York：Harvard University
Becker, G. S. (1964). Human Capital : A Theoretical and Empirical Analysis, With
Special Reference to Education New York : National Bureau of Economic Research,
Columbia University Press
Silver, H. （ 1994 ） “Social Exclusion and Social Solidarity: Three Paradigms”.
International Labour
Review, Vol. 133, p.531－578
Denney, Denny (1995). ''Hall'', from George, Vic and Robert Page (eds.) Modern
Thinkers on Welfare. Hemel Hempstead: Harvester Wheatsheaf
Gore, Charles（1995）.“Introduction: Markets, Citizenship and Social Exclusion”, in
Rodgers, Gore and Figueiredo (eds), Social Exclusion: Rhetoric, Reality, Responses.
Geneva: International Institute for Labour Studies.
Sabour, M.（1999）
“The Social-Cultural Exclusion and Self-Exclusion of Foreigner in Finland”, in
Littlewood et al. (eds.), Social Exclusion in Europe: Problem and Paradigms. Ashgate.
Percy-Smith, J.（2000）
“Introduction: The Contours of Social Exclusion” in Janie Percy-Smith (ed.), Plicy
Responses to Social Exclusion. Open University Press.
Alcock P., Erskine A., & May M.（edited）, (2002), The Blackwell Dictionary of Social
Policy, UK: Blackwell Publishers Ltd.
Pierson, J.（2002）.Tackling Social Exclusion, London: Routledge.