行政裁量適用於外來人口延長收容之研究

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题名:	行政裁量適用於外來人口延長收容之研究
其它题名:	The study of administrative discretion on non-citizen detention extension
作者:	張淑娟;Chang, Shu-Chuan
贡献者:	淡江大學公共行政學系公共政策碩士在職專班邱華君;Chiu, James Hwa-Jiun
关键词:	收容;外來人口;羈押;人權兩公約;detention;non-citizen;detained;the two international covenants on human rights
日期:	2013
上传时间:	2013-04-13 11:33:49 (UTC+8)
摘要:	人權乃具有根本性之普世價值，係人人皆享有之權利。外來人口收容及延長收容涉及人權，實為確保遣送出境之暫時性保全措施，係行政處分而非刑事處罰。惟收容已限制人身自由，應避免濫用收容及延長收容之行政裁量權，而導致無限期收容之情況，造成外來人口在臺因案遭「收容」，實際卻形同「羈押」之情形，有「以收容之名，行羈押之實」之疑義，此恐難保障外來人口之人權。自我政府簽署人權兩公約後，因應兩公約相關修法，以符合我國憲法第8條及公民與政治權利國際公約第9條關於人身自由之規定，為保障受收容外來人口之基本權利，明定收容及延長收容之目的、要件及收容期限，使行政裁量適用於外來人口延長收容不致逾越法定之職權範圍，外來人口延長收容亦受到我國法律之保障。受收容人之延長收容影響臺灣地區無戶籍國民、外國人（含無國籍人）、香港或澳門居民及大陸地區人民等外來人口之基本權利至深且鉅，其行政裁量之行使應符合平等原則、比例原則、不當聯結禁止原則、禁止恣意原則等憲法原則及行政法上之一般法律原則。就理論面或實務面而言，行政裁量如何合法、合理、合情適用於我國之延長收容，可謂殊值研究；尤以入出國及移民法第38條於100年12月9日修正公布施行後，是項問題益形受到各界關注重視。本文爰以「行政裁量適用於外來人口延長收容之研究」為題目，探討行使外來人口延長收容處分之行政裁量權相關課題，並提出建議與結論。本論文計分五章，各章摘述如下：第一章部分：闡述本研究之背景、動機與目的、研究架構與方法、研究範圍與限制及重要名詞定義。第二章部分：探討行政裁量理論，並兼論行政裁量適用於外來人口延長收容理論基礎、基本原則及行政裁量、延長收容與相關權利義務之關係。第三章部分：探討我國、美國、日本、加拿大及德國等五國行政裁量適用於外來人口延長收容相關法制，並加以比較分析。第四章部分：就我國目前行政裁量適用於外來人口延長收容之爭議點及面臨的問題，實地深度訪談實務單位及學者專家等相關人員的意見，旋即整理及歸納訪談結果作一深入分析。第五章部分：針對我國目前行政裁量適用於外來人口延長收容執行情形及遭遇的問題，在兼顧理論與實務意見下，提出具體可行之結論與建議，期能提供主管機關改進芻議及未來修法之參考，使我國延長收容之行政裁量處分更臻於符合法治人權。 Human Rights are universal values enjoyed by every human being. As an administrative measure rather than a criminal punishment, the detention for non-citizen is but a temporary security measure to ensure the eventual deportation. Nonetheless, such measures infringe the personal liberties, and already there have been cases in which non-citizen was detention involved in criminal investigations were said to be under detention, but actually detained like criminals. To prevent this administrative measure from being overextended to where the detainees are held indefinitely, and to protect the fundamental human rights of the non-citizen when they are in the country, limit the non-citizen’s freedom should to avoid. Since the implementation of International Covenant on Civil and Political Rights and the International Covenant on Economic, Social and Cultural Rights, legislators have passed corresponding acts to accommodate the treaties, in compliance with Citizen’s right in political participation and in personal liberty as specified, respectively, in Article 8 of our Constitution and Article 9 of International Covenant on Civil and Political Rights. To safeguard the fundamental rights of non-citizen under detention, there needs to be a specified and stipulates that the purposes ,the elements and deadline to constitute the extension of the detention, so that the administrative measures would not usurp the boundaries of the agencies authority, and that the rights of the said person would be protected by due process of the law. Since the extension of non-citizen detention affects profoundly the fundamental rights of nationals with household registrations, foreigners (including stateless persons), and residents of Hong Kong and Macao, the exercise which must conform to the principle of equality, the principle of proportionality, Irrational prohibited principle、prohibiting wanton principle of our Constitutional and administrative law on the general principles of laws. How the detention extension can be fairy, legally, and sensibly exercised under administrative measures, both in theory an in application, is up for much investigation. This has become especially significant, since the announcement and enactment of the amendment of Immigration Law Article 38 on December 9 of 2011, which has garnered considerable attention from the general public. This thesis seeks explore the various issues regarding of administrative discretion on non-citizen detention extension, and will hopefully generate valuable insights for further discussion. This thesis will be divided into the following five parts: Chapter I part: A description of the background, motivation, purpose, research structure, methods, the scope and limits, and definitions of terms. Chapter II part: Exploration of theories of administrative measures, as pertaining to the principles and application to detention extension for non-citizen, as well as the related rights and obligations of either paries. Chapter III part: A comparison between the corresponding laws regarding administrative discretion on non-citizen detention extension in the Republic of China, USA, Japan, Canada, and Germany, and a close analysis of advantages and shortcomings of each. Chapter IV part: The current dispute points and the problems on administrative discretion on non-citizen detention extension , A survey of professional opinions from scholars and agencies regarding the issues they face when enforcing these administrative measures discretion on non-citizen detention extension. Chapter V part: The current execution situation and the problems on administrative discretion applies to detention extension for non-citizen, taking into account the opinions of the theory and substantive units, based on the above discussions in theory in application, for the legislators to consider when making laws, so to promote human rights in the future.
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