民間影子報告 · CRC 第二次審查 (2022)
財團法人台灣兒童暨家庭扶助基金會 2022 CRC 第 2 次國家報告民間影子報告
來源 PDF:34_20220406110137_3236369.pdf
中華民國
兒童權利公約第二次國家報告國際審查
非政府組織報告（NGO報告）
2022年3月
註：本報告為公開性質
目錄
涉及 CRC 條次………………………………………………………………………………………………2
緒論…………………………………………………………………………………………………………..3
議題一：兒少死因回溯分析制度…………………………………………………………………………..4
議題二：兒少心理健康……………………………………………………………………………………..6
議題三：兒少數位性暴力…………………………………………………………………………………12
議題四：教師對學生不當體罰……………………………………………………………………………16
議題五：替代性照顧………………………………………………………………………………………18
議題六：未成年青少女懷孕………………………………………………………………………………23
議題七：學習資源…………………………………………………………………………………………28
議題八：兒少性侵害………………………………………………………………………………………30
議題九：童工………………………………………………………………………………………………32
1
涉及 CRC 條次
議題 CRC 國家報告章節 CRC 條次
議題一：兒少死因回溯分析制度 第三章 一般性原則 第6條
第三章 一般性原則
議題二：兒少心理健康 第 6.24 條
第七章 身心障礙、基本健康與福利
第五章 保護兒少免受暴力侵害
議題三：兒少數位性暴力 第 19.34.35.36 條
第九章 特別保護措施
第五章 保護兒少免受暴力侵害
議題四：教師對學生不當體罰 第 19.28.29.37 條
第八章 教育休閒與文化活動
議題五：替代性照顧 第六章 家庭環境與替代性照顧 第 20.25 條
議題六：未成年青少女懷孕 第七章 身心障礙、基本健康與福利 第 6.24 條
議題七：學習資源 第八章 教育休閒與文化活動 第 28.29 條
議題八：兒少性侵害 第九章 特別保護措施 第 34 條
議題九：童工 第九章 特別保護措施 第 32 條
簡稱對照表
原名稱 簡稱
《兒童及少年福利與權益保障法》 《兒少法》
《兒童及少年性剝削防制條例》 《兒少性剝削條例》
衛生福利部 衛福部
衛生福利部統計處 衛福部統計處
衛生福利部社會及家庭署 衛福部社家署
衛生福利部國民及健康署 衛福部國健署
2
緒論
家扶基金會是一個關懷弱勢兒童少年及其家庭的國際性非營利組織，目前為國際責信組織
Accountable Now 之一員。自 1950 年成立迄今，我們始終秉持著對兒少的關懷與使命，提供貧困及遭
受不當對待之兒少個別化及在地化的深耕服務，陪伴兒少及其家庭走過這一段並邁向穩定的未來。
本報告針對政府於 2021 年提出之《兒童權利公約第 2 次國家報告》
，以及第 1 次國際審查迄今我
國政府之政策作為，提出 9 個議題：
1. 兒少死因回溯分析制度
2. 兒少心理健康
3. 兒少數位性暴力
4. 教師對學生不當體罰
5. 替代性照顧
6. 未成年青少女懷孕
7. 學習資源
8. 兒少性侵害
9. 童工
3
議題一：兒少死因回溯分析制度
第三章 一般性原則
壹、現況說明與分析
兒少能健康的生存與成長是兒童權利的基礎。我國對兒少死因相關議題之重視，源自於關注重大
兒虐以及殺子自殺事件，並漸續在中央政府與地方政府層級皆建立重大兒虐事件防治小組，期從跨專
業網絡周延兒少保護體系。但此等檢討機制主要僅對於重大致傷致死的兒少保護案件，採取被動與零
散的檢視機制，缺乏全國一致與具體的篩案標準與工作流程。因此，在 NGO 的倡議下，我國於 2019
年修法，將六歲以下兒童死亡原因回溯分析1入法，從其修法理由2可見對於兒少死亡原因，期能經由
分析、找出可在政策上著手改善之處。
自 2019 年迄今，我國政府雖持續有積極作為，但就兒少死因回溯分析之整體機制樣貌及其建置，
本會認為仍有不足之處。
一、首次國家報告結論性意見第 30.63 點提及我國兒少自殺議題、第 88 點提及我國原住民嬰兒死亡
率，皆為對兒少死亡防治之提醒。在第 2 次國家報告中，第 68.110（c）點提及依法之相關作為；
第 65.69-72 點呈現我國兒少死因統計數據，並敘明事故傷害致死以及自殺之防治措施，綜上可見
政府在這兩年對於兒少死因回溯分析之政策方向，以及著力於針對特定死亡議題提出對應方針與
作為，但惜未見政策發展之全貌。
二、我國的死因統計雖依循世界衛生組織所定之國際疾病分類標準，但缺乏更細膩的檢視與回應，另
一方面，我國兒少死亡防治措施多僅為特定死因作為，亦且多為預防宣導工作，可見我國對兒少
死因分析的政策回應，可能落於枝微末節的對策補救，而未見完整具脈絡與架構的政策規劃。
三、第 2 次國家報告之附件 3-1~附件 3-9 呈現我國兒少死因統計，自 2016 年至 2020 年之兒少死亡人
數從 1,472 名降至 1,086 名，其中值得注意者為嬰兒死因中「母體因素及懷孕、分娩、生產之併
發症所影響之胎兒及新生兒」數據略有上升。另值得進一步探究的是，兒少非自然死亡人數中，
「事故傷害」數據一直高居第 2 位，「蓄意自我傷害（自殺）」數據則是逐年上升，且幾乎全部
集中在 12-17 歲。
四、從第 2 次國家報告第 68 點提及持續中之計畫，可見政府以實證基礎加以檢視分析，且進一步提
出政策回應以及未來預測模型之嚴謹。
五、另一方面，在我國「行政院兒童及少年福利與權益推動小組」中，也持續就近年來之相關死因分
析提出專案報告與討論，最近一次更是近在 2021 年 4 月份，由衛福部提出請各部會配合地方衛
生單位辦理相關業務。
1
《兒少法》第 13 條第 1 項：中央衛生主管機關應進行六歲以下兒童死亡原因回溯分析，並定期公布分析結果。
2
規範中央衛生主管機關針對六歲以下兒童建立死亡原因調查機制，藉由分析該等兒童死亡原因，找出可矯正之致死原
因，續採取相關改善行政措施，避免類似事件再發生，有效降低兒童死亡率。
4
六、綜上所述，可見政府自 2019 年修法以來，針對 6 歲以下兒少死因回溯分析，已由衛生主管機關
從學術研究基礎出發，擴及跨部會、跨縣市之操作。但從呈現之資料成果及其規劃3可見，無論是
法源依據、發動之層級、參與之部會等議題，皆僅具雛型且多無強制性。
七、我國目前相關制度之主責單位為衛福部，但前述之重大兒虐事件防制以社政為主責、兒童死因回
溯分析以衛政為主責。此做法一方面除了此二制度之重疊權責須加以釐清之外；另一方面，相較
於國外多樣性的「兒童死亡檢視機制」有不同的部會或層級發動以及參與，我國制度建置尚未明
確釐清。以美國為例，死亡檢視與預防國家中心4輔導各州各郡推動兒童死因回溯分析，目前美
國在州或郡層級共有數百個兒童死因回溯分析小組，檢視對象的年齡從 0 歲到 18 歲或 21 歲不
等，許多州與郡更是全面性的逐案檢視行政管轄內的兒少死亡事件；另如英國、加拿大、澳洲、
紐西蘭等國的兒少死亡檢視制度，也都擴及不同年齡以及跨多個部會。
八、因此，我國現行做法將會走向怎樣的制度性建置，一方面須清楚界定跨哪些部會、由誰主導，另
一方面，如何基於我國中央地方權責分工之特性使制度能明確落實，實需國家主管機關有更具前
瞻性之思量。
貳、結論與建議
一、我國兒少死因回溯分析自 2019 年修法之後開始有實質性的進展，惟當前制度中，主管機關之定
調、跨專業部會之整合、中央政府與地方政府權責分工等，皆應參考國外相關制度之作為，重新
再加以檢視，及早確立我國所欲建置之制度。
二、從第 2 次國家報告之附件統計數據可知我國近年兒少死亡人數約為 1,000-1,400 名，若借鏡它國
經驗，以及以我國投入制度建置資源與規模來看，實應一一檢視每一名死亡的兒少，故本會建議
政府兒少死因回溯分析之對象，應擴及 18 歲以下所有死亡兒少。
三、我國嬰兒／新生兒死亡率相較於 OECD 國家仍略偏高，參考國外相關政策作為已逐步朝向擴及
孕產婦之優生保健政策之建立，我國雖於第 2 次國家報告中5述及已分就孕產照顧、兒少預防保
健與預防接種等作為，但仍未能看到我國政府有具全面性、連貫性的政策規劃。
四、我國行之有年的重大兒虐事件防制係因應兒少保護制度而來，雖有其脈絡之角色與任務，但在兒
少死因回溯分析制度逐步建立下，兩者應如何整合與修正，我國政府尚未顧及而須及早因應。
五、我國推動兒少死因回溯分析已屆 3 年，這些研究成果未來將如何形塑而成我國政策？其作為我國
政策常態落實之規劃方向為何？我國政府應有具體、明確之規劃。
3
http://www.cdr.org.tw/。
4
National Center for Fatality Review & Prevention。
5
第 184.203.204.207.208.308.309 點。
5
議題二：兒少心理健康
第三章 一般性原則
第七章 身心障礙、基本健康與福利
壹、現況說明與分析
一、首次國家報告結論性意見關注
（一） 兒少的高自殺率，以及所提供給兒少的心理健康服務實效性，建議政府：應持續分析兒少心理
健康情況相關數據，加強現行降低兒少高自殺率的努力；積極徵詢兒少意見，確保心理健康服
務可以被使用、可以被親近並且可以被接受，以發展、實施及監測兒少心理健康服務。
（二） 對於兒少不論能力如何均須徵得父母同意才能接受醫療的情況6，建議政府應以兒少具備充分
理解能力為原則，規定兒少取得自主權的特定年齡，讓兒少能自主接受心理健康服務。
二、國內現況分析
（一） 我國推動政策實施、建置求助管道與服務資源、分析自殺成因並培訓相關專業人員7，但政府
數據顯示兒少自殺通報仍逐年增加8，且自殺為台灣 1-17 歲兒少的第二大死因，且在 1-14 歲兒
少死因排名中，自殺於 2020 年首度進入前五排名（見附件表 2-2）。
（二） 政府針對自殺死亡趨勢之成因與自殺通報原因進行統計分析，但尚未看到政府依據統計數據
中憂鬱與精神疾病、學校適應問題原因比例上升（見附件圖 2-1）進行通盤之政策規劃，推動
相關自殺防治工作；且自殺的成因有其多元複雜性，當前對於兒少自我傷害事件之分析及防治，
以及自殺通報系統之分析，實皆過於簡略而不足以理解兒少與政策制定。
6
《民法》第 13 條規定：「滿七歲以上之未成年人，有限制行為能力。」與《病人自主權利法》第 8 條：
「具完全行為能
力之人，得為預立醫療決定，並得隨時以書面撤回或變更之。」依據法律規定，兒童不具有醫療上的「決定能力」
，做
任何醫療決定均須法定代理人的同意。
7
我國政府為兒少自殺議題推動政策實施與各項防治措施如下：
(1)自 2007 年推動「校園學生自我傷害三級預防計畫」；
(2)2019 年通過實施《自殺防治法》
；
(3)推動在地心理健康諮詢服務；
(4)心理健康服務資源網絡地圖網站（https://wellbeing.mohw.gov.tw/nor/mmap）；
(5)設置 24 小時心理健康諮詢服務 1925 安心專線；
(6)研析 0 歲至 17 歲兒少近年自殺死亡趨勢之成因；
(7)辦理學校專業人員自殺防治培訓；
(8)研發 2020 年度自殺防治相關議題教案等。
8
政府數據顯示 0-17 歲自殺通報案件數自 2016 年 1,152 件，至 2020 年增加到 5,464 件，佔各年齡層比例從 2016 年的
3.96%至 2020 年增加到 13.50%；近五年兒少自殺通報人次增 3.7 倍，且年齡佔比也逐年增加（見附件表 2-1）
。
6
（三） 依據政府 2018 年至 2019 年統計資料，學生自殺身亡個案近 7 成未曾接觸校內輔導資源；自殺
身亡個案僅 6%生前有接觸校外機構資源，自傷行為者更不到 2%9；安心專線兒少使用人次與
轉介率低10。
（四） 本會於 2021 年的調查11看見有 7 成的學齡兒少反映兒少憂鬱症之盛行率在增加（見附件表 2-
3），且 21.6%學齡兒少表示過去一周曾出現想不開的念頭（見附件表 2-4），凸顯兒少自殺、
自傷議題的嚴重性。
（五） 前述調查中有 79.9%的兒少知道至少一項現有心理健康求助管道與服務資源（見附件表 2-5）
，
但 49.8%兒少心情不好、憂鬱時不願求助任何專業管道（見附件表 2-6），凸顯學校與地區心
理衛生中心所提供服務的限制，亟待強化。
（六） 前述調查中有 68.6%的兒少同意「有憂鬱症可以自己決定要不要看醫生」（見附件表 2-7），
但政府對於兒少醫療自主權仍未有定論12，且尚未有足夠的法規保障，未回應首次國家報告結
論性意見第 60.61 點。
貳、結論與建議
一、兒少心理健康和自殺情況分析應更細緻的檢視以瞭解兒少自殺原因與脈絡，分析其遺傳、性格或
環境因素及其之間相互作用，以及衝突、流離失所、歧視、霸凌和社會排除等經驗與社會文化因
素（例如：身體形象壓力），以調整兒少自殺防治策略。
二、安心專線分析數據應符合兒少年齡定義，增加統計 15 至 18 歲兒少，且應分析原因。
三、檢視現有專業管道包含各縣市衛生局心理健康諮詢服務與心理健康服務資源網絡地圖的兒少使
用情形及其成效，並更深入的分析安心專線的兒少使用需求，評估是否忽略兒少的特殊需求性與
兒少之意見，以發展、實施及監測我國兒少心理健康服務，並納入兒少表意以符合第 12 號一般
性意見；充分考慮到兒少有別於其他年齡層的需求、期望、文化、看法和語言等，以確保心理健
康服務可被兒少使用、親近並可以被接受，實踐第 15 號一般性意見讓所有兒童享有健康照護服
務之權利。
9
引用自 2021 年《監察院青少年自殺防治策略及作為陳情案調查報告》
。
10
衛福部設置安心專線提供 24 小時心理健康諮詢服務，並提供兒少專線服務，且在 2019 年底進行兒少求助問題及轉介
資料分析。14 歲以下撥打 1925 安心專線共 225 人次，主要求助問題包括焦慮憂鬱 71 人次（31.56%）
、家庭問題 51 人
次（22.67%）
；學業問題 30 人次（13.33%）
。轉介情形如下：建議尋求心理諮商 6 人次（2.67%）
；轉介醫療 6 人次（2.67%）
；
轉介社政 2 人次（0.89%）
。
11
本會於 2021 年 10 月 19 日至 11 月 3 日期間進行《兒少心情問卷~2021 兒少對自我心情認識和抒發方式調查》
，邀請 7-
18 歲學齡兒少分享心情、原因與抒發情緒的方式，以及對於心理健康專業資源的看法，採用網路問卷調查法便利抽樣
進行，有效問卷計 607 份、信心水準 95％、誤差值為正負 4％。
12
於 2019 年召開兒童醫療及告知同意專家座談會議，會議結論認為兒童醫療因不同疾病、個案都有不同表意症狀，難以
透過法律制定、修法，劃分年齡界限以達兒童表意權，仍在續行討論 12 歲以上未滿 18 歲之病人醫療同意權之實務作
法。
7
四、建議政府針對兒少心理健康的醫療自主權進行修法，讓未滿 18 歲兒少考量成熟度能行使心理健
康醫療與輔導諮詢同意權，保障無法取得家長同意的兒少能接受心理健康服務。
五、依據第 15 號一般性意見13，政府應投入資金發展初級保健促進早期發現治療兒童的心理、情緒
和精神問題，並依據 CRC 第 12 條，徵詢兒少意見，在此原則下實施各項兒少心理健康服務。
六、檢視與評估《校園學生自我傷害三級預防計畫》是否落實或有其不足，在尊重學生自主、保密隱
私、以及不標籤化與污名化之下，進行定期心理健康檢查14，且為了回應自殺年輕化之趨勢，定
期心理健康檢查除了對於高中生之外，應邀請國中小兒少參與檢查，或是進行體驗使用專業輔導
機制等措施，以利早期發現、早期介入與定期追蹤；此外，除了提供普及性定期心理健康檢查，
應依第 15 號一般性意見所述15之心理健康狀況之各項情形，增加特殊性措施。
13
第 15 號一般性意見明確指出「締約國應努力確保所有兒童享有健康照護服務之權利」
，在第 38 點後段亦敘明各國應投
入資金建置公共衛生與心理支持的初級保健。
14
本會前述調查中有 87.0%的兒少同意「心理健康應該定期檢查」
（見附件表 2-8）
。
第 15 號一般性意見第 38 點前段所指之各類心理健康狀況。
15
8
附件
表 2-１、兒少自殺通報數
自殺通報 0-17 歲
年度
總人次 人次 百分比
2016 28,996 1,152 3.96
2017 30,619 1,381 4.49
2018 33,207 2,384 7.17
2019 35,324 3,390 9.58
2020 40,432 5,464 13.50
資料來源：整理自衛福部
表 2-2、兒少死因排行
年度 12-17 歲 1-14 歲
2017 1 事故傷害 1 事故傷害
2 惡性腫瘤 2 癌症
3 自殺 3 染色體異常
4 心臟疾病 4 加害（他殺）
5 加害（他殺） 5 心臟病
2018 1 事故傷害 1 事故傷害
2 惡性腫瘤 2 癌症
3 自殺 3 染色體異常
4 心臟疾病 4 心臟病
5 染色體異常 5 肺炎
2019 1 事故傷害 1 事故傷害
2 自殺 2 癌症
3 惡性腫瘤 3 染色體異常
4 染色體異常 4 流感
5 心臟疾病 5 加害（他殺）
2020 1 事故傷害 1 事故傷害
2 自殺 2 癌症
3 惡性腫瘤 3 染色體異常
4 心臟疾病 4 心臟病
5 染色體異常 5 自殺
資料來源：整理自衛福部
9
表 2-3、我認為兒少得憂鬱症的人越來越多了
選項 百分比
非常不同意 8.7
不同意 20.8
同意 54.9
非常同意 15.7
資料來源：本會《兒少心情問卷~2021 兒少對自我心情認識和抒發方式調查》
表 2-4、兒少一周情緒感受
選項 沒有 有時候（1~2 天） 時常（3~4 天） 總是（5~7 天）
想不開，甚至想死 78.4% 11.5% 4.3% 5.8%
資料來源：本會《兒少心情問卷~2021 兒少對自我心情認識和抒發方式調查》
表 2-5、你知道能協助心情不好、憂鬱等求助管道嗎？
答案選項 百分比
都不知道 20.1%
知道一項以上心理健康專業資源 79.9%
資料來源：本會《兒少心情問卷~2021 兒少對自我心情認識和抒發方式調查》
表 2-6、如果你心情不好、憂鬱時，願意使用哪些求助管道呢？
答案選項 百分比
都不會使用 49.8%
願意使用其中一項心理健康專業資源 50.2%
資料來源：本會《兒少心情問卷~2021 兒少對自我心情認識和抒發方式調查》
表 2-7、如果我有憂鬱症，我可以自己決定要不要看醫生
答案選項 百分比
非常不同意 12.5%
不同意 18.9%
同意 47.8%
非常同意 20.8%
資料來源：本會《兒少心情問卷~2021 兒少對自我心情認識和抒發方式調查》
10
表 2-8、心理健康應該定期檢查，就像身體健康檢查一樣
答案選項 百分比
非常不同意 3.8%
不同意 9.2%
同意 58.8%
非常同意 28.2%
資料來源：本會《兒少心情問卷~2021 兒少對自我心情認識和抒發方式調查》
圖 2-1、近年自殺原因分析
60.0%
50.3%
50.0% 47.1% 憂鬱傾向、罹患憂鬱症或
42.1% 其他精神疾病
佔該年齡層百分比
40.0% 家庭成員問題
31.4% 34.1% 34.1% 33.6%
33.0%
27.0% 28.1% 學校適應問題
30.0% 25.3%
24.3%
18.5% 17.4% 感情因素
20.0% 16.4%
14.8%
10.0%
2017 2018 2019 2020 年度
資料來源：整理自衛福部
11
議題三：兒少數位性暴力
第五章 保護兒少免受暴力侵害
第九章 特別保護措施
壹、現況說明與分析
兒童權利公約第 19 條述及「暴力」指「任何形式之身心暴力、傷害或虐待、疏忽或疏失、不當
對待或剝削，包括性虐待」
，我國相關法令有《兒少法》建構兒少保護體系，以及《兒少性剝削條例》
針對不同形式之性剝削防制與處遇。本議題將從「兒少免受暴力侵害」觀點闡述本會認為我國政府作
為過於切割、零散、被動且未整體思考之處，不另論述兒少保護體系之相關政府作為。
我國近年在數位性暴力議題上多所關注「私密性影音犯罪」16以及「不實性影音犯罪」17，政府也
提出相對的修法因應，但本會認為當數位環境、性、暴力等議題相互交織而成一社會新興議題時，我
國政府的政策與法令回應卻是緩不濟急，
「多少可以幫一點」的思維使得相關法條散見於不同的法令，
政府僅在立法或修法上個別回應，可謂見樹不見林的政策論述，實難以回應在數位環境下兒少所需的
保障。
本會建議我國政府應從第 13 號一般性意見書、第 25 號一般性意見書以及《關於買賣兒童、兒童
賣淫和兒童色情問題之兒童權利公約任擇議定書》中，檢視我國兒少數位性暴力防制之投入，並據以
建構完善之政策。
一、第 2 次國家報告對首次國家報告結論性意見第 10.92.93 點之回應，主要關注性剝削防制及保護處
遇18、人口販運防制19。我國於 2015 年修法將「性交易」防制修正為「性剝削」防制，落實兒童
權利公約第 34 條。
二、惟從兒少於數位環境中與「性」相關的權益保障角度來看，本會認為應從兒少數位性暴力之概念
加以全盤檢視與建構我國政策。我國兒少網路安全防護之主管機關，為依法跨部會成立之 iWIN20，
iWIN 將網路安全宣導分為 7 類21，亦檢討網路內容分級制度，將網路有害兒少身心健康內容區
16
2015 年修訂之《兒少性剝削條例》明訂我國性剝削防制之 4 種樣態，此處所指涉之「私密性影音」係指該法第 2 條第
1 項第 3 款「拍攝、製造兒童或少年為性交或猥褻行為之圖畫、照片、影片、影帶、光碟、電子訊號或其他物品。」。
17
我國不實性影音社會事件新聞報導，https://www.taiwannews.com.tw/en/news/4348360。
18
第 9.368.369 點以我國《兒少性剝削條例》之作為加以回應，且亦散見於第 5 章與第 9 章之點次，第 118-120.333 點為
我國性剝削防制工作；第 121-125 點論述我國為性剝削兒少提供之保護處遇工作。另如第 13 點《教師法》之消極資格
規範、第 25 點對外籍兒少性剝削個案之協助、第 29(c)點性剝削安置之申訴機制度，亦為相關回應。
19
見第 25.335 點。
20
iWIN 網路內容防護機構，是依照兒少法第 46 條授權，由國家通訊傳播委員會邀請各目的事業主管機關，如衛福部、
教育部、文化部、內政部警政署、經濟部工業局以及經濟部商業司等共同籌設。
21
iWIN 將網路安全宣導區分為「私密影像、網路霸凌、網路安全、網路詐騙、隱私設定、網路成癮、親子教育」等 7 類。
12
分為 6 類22，行政院性別平等會對「數位/網路性別暴力」則另有分類23，可見基於不同的關注對
象與議題，不同主管機關有不同的分類立據。
三、第 2 次國家報告呈現兒少性剝削案件之部分服務數據24，但卻未呈現兒少性剝削案件辦理情形（見
附件表 3-1），從政府統計數據可見，自 2017 年以來，有關兒少私密性影音之案件數據逐年上
升，至 2021 年上半年，其比例更達 80%，另從 iWIN 所呈現之 2020 年資料25亦可見，「色情」
類別即佔 35.9%。
四、我國已有關於兒少保護與兒少性剝削防制之法令，但有關不實性影音犯罪，目前我國司法實務上
主要散見於不同法令26，這些法條不僅片斷，且其得以運用僅係因為數位性暴力行為符合法律構
成要件，非專為不實性影音犯罪而設。另外，這些法條主要目的多為懲罰加害人，而少見以保護
被害人為規範者。有關私密性影音、不實性影音究竟是屬於何種法益之保障，我國司法實務尚無
定論。
五、我國兒少保護體系之不同主管機關基於不同業務分別主責，缺乏從兒少數位性暴力觀點建構之政
策，各部會對數位性暴力之定義或基於網路安全防護、或基於兒少身心健康防護、或基於性別平
等推動等，皆有所不同。我國「行政院兒童及少年福利與權益推動小組」中，雖亦有委員提出關
注並持續列管，但觀諸各部會的辦理情形27，仍未見對數位環境兒少權益保障之作為。
六、我國除《兒少法》、《兒少性剝削條例》外，《刑法》亦有妨害秘密罪章，但未來法令之訂定方
向如何，仍有各種討論，如：2021 年底我國主管機關提出刑法修正草案28，即有民間團體提出不
同觀點。
22
iWIN 提出《網路有害兒少身心健康內容防護層級例示框架》，將其分為「一般色情、兒少色情、暴力、恐怖、血腥、
有害兒少物品、其他有害內容」共六大類，https://i.win.org.tw/news-detail.php？SerialNo=12&Target=1。
23
行政院性別平等會將數位/網路性別暴力區分為「網路跟蹤、惡意或未經同意散布與性/性別有關個人私密資料、網路性
騷擾、基於性別貶抑或仇恨之言論或行為、性勒索、人肉搜索、基於性別偏見所為之強暴與死亡威脅、招募引誘、非法
侵入或竊取他人資料、偽造或冒用身分」等 10 類。
民間團體數位女力聯盟將數位性別暴力歸納為 5 類 21 種型態「基於性別的隱私權侵害、基於性別的仇恨行為與言論、
數 位 性 騷 擾 與 虛 擬 性 侵 、 數 位 人 口 販 運 性 剝 削 、 基 於 圖 像 影 音 的 濫 用 」，
https://www.facebook.com/gogowidigo/photos/pcb.258868875716339/258867602383133。
24
見第 2 次國家報告條約專要文件附件 5-18~5-21、9-14~9-17。
25
iWIN 透明報告 https://i.win.org.tw/report.php。
26
《刑法》第 310 條誹謗罪、第 309 條第 1 項公然侮辱罪、第 235 條第 1 項散布猥褻物罪、《兒少性剝削條例》第 3
8 條第 1 項、《個人資料保護法》第 41 條、
《著作權法》第 92 條。
27
主要僅針對既有法令之內涵與定義加以釐清，https://www.sfaa.gov.tw/SFAA/Pages/List.aspx？nodeid=1280。
28
https://www.moj.gov.tw/2204/2795/2796/123192/post。
13
貳、結論與建議
一、第 13 號一般性意見書、第 25 號一般性意見書29以及《關於買賣兒童、兒童賣淫和兒童色情問題
之兒童權利公約任擇議定書》此三份國際文件皆為本會主張之兒少數位性暴力政策建置之重要依
據，故建議我國政府應據此明確規劃。
二、政策方針不明將致使法令訂定零散，故本會認為對既有法令修法或另立專法，其內容除了在私密
性影音、不實性影音須有完整之範圍與定義外，皆須立基於以兒少數位性暴力為考量之明確政策
立場與方向。本會建議我國政府應參酌其他國家近年針對各種兒少數位性暴力型態之立法體系與
立法內容多方加以思量30。
三、被害人積極保護
（一） 從兒少觀點出發的被害人保護與復原之視角，是論述兒少數位性暴力防制工作之趨勢，以往對
性別暴力的討論中多半缺少受害者的表述和經驗，是以在相關倡議中，都強調應該要納入被害
者的主觀感受，因此相關的保護處遇措施如身心治療與復原等作為，都應該在法令中明確提出。
（二） 數位環境下的性影音具有難以掌握之特性，對被害人來說是否能被不被傳播並移除，至關重要，
建議我國政府應將性影音移除視為國家義務，而有諸如協助被害人將性私密影像下架、扣留證
據預防影像再度外流等全面且積極的作為。
四、性影音相關法理與法治教育
（一） 有關性影音散佈目前外國相關立法多針對「製作/販售」者加以懲罰，對於「觀看/購買/持有/傳
播」各國規範不盡相同，本會認為我國政府應梳理我國法理以確認國家立場，方能加以確認受
規範之範圍。
（二） 兒少數位性暴力之議題在數位環境下必然有越來越多應予實踐與保障之論述，本會認為此議
題實乃直指我國性別教育之政策規劃，國家應當更為積極與全面的應對數位環境下的性別議
題。
29
第 25 號一般性意見從一般性原則之落實提供了清楚的立場與視角，其一般執行措施更在多個層次與面向上明確提供可
依循作為。
30
針對性影音，韓國於 2020 年通過 N 號房事件《性暴力犯罪處罰特別法部份修訂法律案》
，懲罰不實性影音的製作或散
佈。但此次修法，並未對「購買、持有」造成網路傳播效應加以懲處，在多方倡議下，韓國接續通過《性暴力犯罪處罰
特別法》
、《刑法》
、隱匿犯罪收益等相關修正，將最低合法性交年齡從 13 歲提高為 16 歲，另規定持有、購買、儲存、
觀看非法色情影像等行為之相關刑罰，https://www.mirrormedia.mg/story/20210504pol002/。
14
附件
表 3-1、兒少性剝削案件類型
拍攝、製造兒童 使 兒 童 或 少 年 從
使兒童或少年 利用兒童或少年
或少年為性交 事坐檯陪酒或涉
總計 為 有 對 價 之 性 為性交、猥褻之行
或 猥 褻 行 為 之 及色情之伴遊、伴
交或猥褻行為 為，以供人觀覽
物品 唱、伴舞等行為
2017 1,117 328 29.4% 19 1.7% 581 52.0% 189 16.9%
2018 1,220 324 26.6% 72 5.9% 546 44.8% 278 22.8%
2019 1,213 188 15.5% 36 3.0% 717 59.1% 272 22.4%
2020 1,696 183 10.8% 44 2.6% 1,333 78.6% 136 8.0%
2021.01-06 902 88 9.8% 19 2.1% 739 81.9% 56 6.2%
資料來源：整理自衛福部
15
議題四：教師對學生不當體罰
第五章 保護兒少免受暴力侵害
第八章 教育休閒與文化活動
壹、現況說明與分析
一、首次國家報告結論性意見建議教育部採取一切必要措施，確保校園禁止體罰之規定有效執行，並
適當懲戒使用體罰的教師，並建議建立安全和保密的學生申訴機制的建立及執行成效。
二、現行《教育基本法》、《教師法》、《幼兒教育及照顧法》規定，學生不應受任何體罰。教師體
罰或違法處罰學生，應依法予以懲處。
三、根據《教育部各級學校校園安全及災害事件分析報告》，教師對高中職及其以下在學學生體罰事
件逐年升高，導致兒少受傷、疾病件數也逐年增加，甚至有兒少重傷情事發生；教師對較年幼的
幼稚園、國小學生體罰件數和人數逐年升高，且 2019 年較 2016 年呈現倍數成長（見表 4-1）。
然而，依據第 2 次國家報告，教師因體罰案件受處分的統計，國小（中）、高中行政處分、幼稚
園裁罰與校園安全及災害事件通報中「（教師對學生）體罰事件」數據明顯有落差，幼稚園數據
差距更高（見表 4-2）。
四、我國雖有以調查五年級~九年級學生為主之《校園生活問卷-學生被體罰調查》，然從體罰通報案
件來看，通報教師對學生體罰以幼稚園和國小生案件及受傷害童數居多（見表 4-1），年幼的學
生反應受老師體罰的申訴和監控機制，更凸顯重要性，政府做何建置未有說明。
五、政府建構《高級中等以下學校教師輔導管教落實兒童權利公約檢視規範研究計畫》，提供學校及
級教師自我檢視；依《教師法》規範，教師對學生體罰造成身心侵害嚴重，成立教師專業審查之
機制，予以教師懲處，缺乏落實執行及實際結果、成效的說明。
六、依據衛福部統計，教育部接受 CRC 訓練課程教師 2018 年 464 名、2019 年 93,098 名，受訓練教
師只佔全體教師（見表 4-3）的 37.20%。多數教師仍未接受 CRC 相關訓練，教師接受訓練有否
增強兒童人權概念和降低體罰學生之成效，仍待評估。
貳、結論與建議
一、欣見《教師法》、《學校訂定教師輔導與管教學生辦法注意事項》相關法規修定，但相關學校與
教師自我評核管教落實公約、教師體罰學生案件專業審查機制之執行成果和監督成效，政府應做
說明。
二、教師研習與進修執行狀況及對改善輔導與管教策略發展的成效評估為何？政府應做說明。
三、受體罰學生申訴機制之建置和落實狀況為何？政府應做說明。
四、幼稚園、國小體罰通報事件逐年升高，對此政府有何因應策略？政府應做說明。
五、國高中教師因體罰事件違法受行政處分人數高於通報案件數，有否隱略未通報情況，或掌握通報、
懲處資訊錯誤？政府應做說明。
六、建議對教師體罰學生進行研究，以找出針對教師對學生的輔導和處置的有效因應策略。
16
附件
表 4-1、教師對高中職及其以下在學學生體罰事件
被體罰學生教育程度
年 體罰 學生受傷、疾病
幼稚園 國小 國中 高中職
2016 177 件/ 20 件 92 件 50 件 15 件/ 54 件
325 人次 25 人次 184 人次 89 人次 27 人次
2017 174 件/ 14 件 112 件/ 34 件/ 14 件/ 61 件
324 人次 21 人次 205 人次 59 人次 38 人次 （重傷 1 位）
2018 236 件/ 40 件/ 137 件/ 58 件/ 8 件/ 77 件
544 人次 75 人次 332 人次 119 人次 18 人次 （重傷 1 位）
2019 306 件/ 53 件/ 167 件/ 66 件/ 20 件/ 85 件
625 人次 103 人次 321 人次 141 人次 60 人次 （重傷 3 位）
資料來源：整理自 2016-2019 年教育部《各級學校校園安全及災害事件分析報告》
表 4-2、教師因體罰事件違法受行政處分情形 單位：人次
幼稚園 國小 國中 高中
2016 ？ 133 70 30
2017 ？ 111 55 31
2018 0 104 56 34
2019 5 124 53 39
2020 2 159 68 38
資料來源：整理自第 2 次國家報告
表 4-3、2020 年各級學校教師人數 單位：人
總計 幼稚園 國小 國中 高中
251,536 56,771 96,990 46,486 51,289
資料來源：整理自行政院性別平等會
17
議題五：替代性照顧
第六章 家庭環境與替代性照顧
壹、現況說明與分析
一、首次國家報告結論性意見關注接受機構安置的兒少人數沒有顯著下降之趨勢、被安置在非公立機
構的人數持續增長，建議我國依據聯合國《替代性兒童照顧準則》，支持及強化家庭功能，並透
過放寬親屬照顧者的資格與補助門檻，提高親屬照顧比例，提倡以家庭照顧環境為主的替代性照
顧。此外，提醒關注家庭式寄養政策中，對於特殊需求兒少的照顧；以及未經有法院介入評估安
置需求，而由父母自行安置子女的必要性。
二、家外安置現況
（一） 家外安置依我國法規31，區分成緊急安置、繼續安置、委託安置三種。以下將緊急安置與繼續
安置，合併以「保護安置」一詞說明和統計。根據衛福部統計處兒少家外安置樣態來看（見表
5-1），相較於 2019 年，2020 年之保護安置或委託安置皆有增加的情形。
（二） 第 2 次國家報告第 165 點回應，政府於 2019 年對於委託安置作業流程32，透過團體決策評估
機制，有明顯減少家長委託安置的個案人數33，但在寄養安置中其一般安置34仍占約 10%，對
於目前仍在委託安置中的的兒少，並未看到政府有完善的處遇策略與措施；然從《兒少替代性
照顧政策》數據中，政府提及 2020 年安置兒少共 5,174 人，保護安置轉委託安置者占 11.89%、
委託安置者 53.73%，未經法院介入的安置兒少仍佔多數。對於減少家長自行委託安置，以及
如何輔導已自行委託安置的兒少家庭，得以妥適接回兒少照顧，相關策略和成效，未見說明。
（三） 依據衛福部社家署 2016-2020 年家外安置兒少統計（見表 5-2、5-3）， 雖然機構安置兒少逐
年下降，但仍佔五成五；寄養安置、親屬安置比例提升仍屬有限。近 5 年投入家庭寄養服務的
家庭戶數逐年增幅有限（見表 5-4），寄養家庭招募不易。我國於 2019 年修正《兒少法》35，
並於 2021 年增列親屬安置費用應參考寄養安置費規定之標準36，藉以提升親屬安置服務之意
願；修法後，親屬安置相關策略和成效，未見說明。
（四） 從寄養成果報告37數據（見表 5-5），接受家庭寄養服務的兒少，其安置原由以保護安置為主，
進入寄養安置服務有人數增長的趨勢；家外安置類型統計中，僅有寄養安置之數據呈現來源
（一般安置、保護安置、司法轉向安置）之分類，親屬安置與機構安置皆缺乏相關統計，因此
無法據以檢視我國政府對於首次國家報告結論性意見第 46 點，是否已有所改善。
31
《兒少法》第 56.62 條。
32
見第 2 次國家報告附件 6-25。
33
家長委託安置 2016 年有 408 人，2020 年減少為 76 人。
34
寄養安置中之一般安置即為委託安置，以下敘述統一稱為委託安置，惟整理政府數據時仍依其原文字稱為一般安置。
35
《兒少法》第 56 條增列親屬及第三人為兒少交付安置對象之規定。
36
2020 年函頒《直轄市、縣（市）政府辦理兒童及少年親屬安置服務工作指引》 、2021 年修訂《兒童及少年寄養家庭工
作指引》 。
37
衛福部社家署歷年兒童少年家庭寄養服務工作成果報告書。
18
（五） 中央政府兒少家外安置主責單位38不同，綜融及整合性之服務思考與規畫不易落實。國家缺乏
整體性兒少家外安置政策，未有具體檢視照顧品質之指標，無法清楚呈現出家外安置的照顧樣
貌與品質；而地方政府多數依照中央政府訂定之政策方向、相關工作基準與計畫執行兒少家外
安置服務39，中央政府分工未能整合，地方政府整合性之思考將不易推行。
三、替代性照顧之特殊兒少需求
（一） 不同特殊身分的安置兒少，會有其需求須關注處遇和照顧策略。政府統計僅以原住民身分、身
心障礙來分類家外安置兒少的特殊性（見表 5-6），缺乏對特殊族群如性少數族群、曝險少年、
性剝削兒少等的統計分類，對於不同類型兒少的需求策略，也應有進一步的說明。
（二） 從衛福部社家署歷年資料來看（見表 5-7、5-8），接受寄養服務的兒少健康狀況、年齡分布，
在發展遲緩、身心障礙、注意力缺失/過動疾患等相關疾病和不同年齡層的樣態有明確的分類
說明，能確實掌握特殊需求兒少與寄養兒少服務的提供。然而機構安置的兒少，其身心障礙數
據為最高，但缺乏進一步的分析、分類數據（如年齡、疾病狀況等），以及相關對於在機構安
置中，身心障礙兒少的服務策略行動，本會認為應有完整的健康分項，以利在兒少特殊需求協
助上，能更清楚了解提供在安置環境的特殊兒少服務。
貳、結論與建議
一、依《兒少法》第 62 條為父母自行安置子女的委託安置，在修正安置作業決策評估前，已為家長
自行委託家外安置的兒少，對於後續返家、輔導家庭經濟困境等改善之規劃和措施，政府應做說
明。
二、目前我國兒少家外安置仍以機構安置為多數，開發和維繫親屬安置、寄養安置之策略和成效評估，
政府應做說明。
三、提升親屬安置服務比例，除了比照寄養安置費用與增列親屬及第三人為兒少交付安置對象外，政
府應說明親屬安置的現況數據（性別、年齡、安置年數、安置原因等），並且針對服務推廣策略、
具體服務架構建置、選配審核機制訂定、相關執行困境因應等親屬安置比例提升困境研議策略。
四、建議整合中央政府家外安置主責單位，以利整體替代性照顧政策之推廣與執行。
五、有關特殊兒少議題，機構安置的兒少健康狀況、年齡分布的掌握情形，以及機構安置特殊兒少人
員訓練安排、辦理成效等數據與相關配套措施，以及如何確保家外安置兒少申訴管道，政府應做
說明。
38
親屬安置業務隸屬於衛福部保護司、其他安置資源(寄養安置、團體家庭、機構安置) 隸屬於衛福部社家署。
39
「家外安置需求推估及現行安置模式執行成效評估計畫」(趙善如、胡中宜、彭淑華，2021)。
19
附件
表 5-1、兒少家外安置情形
保護安置（人次）
年份 安置兒少人數 委託安置（人次）
緊急安置 繼續安置
2019 年 842 830 698 91
2020 年 929 948 890 147
資料來源：整理自衛福部統計處
表 5-2、家外安置兒少統計
家外安置
年份
親屬安置 寄養安置 機構安置 總計
2016 年 - 1,622 - -
2017 年 - 1,621 3,034 -
2018 年 - 1,605 3,016 -
2019 年 - 1,550 2,822 -
2020 年 244 1,583 2,651 4,856
2021 年 1-6 月 180 1,631 2,623 4,853
資料來源：整理自第 2 次國家報告；衛福部統計處
表 5-3、家外安置類型及人數 單位：人數（%）
家外安置類型 2020 年 2021 年 1-6 月
親屬安置 244（5.0%） 180（3.7%）
寄養安置 1,583（32.6%） 1,631（33.6%）
機構安置 2,651（54.6%） 2,623（54.1%）
團體家庭安置 51（1.1%） 59（1.2%）
其他類型安置 327（6.7%） 360（7.4%）
總計 4,856 4,853
資料來源：整理自第 2 次國家報告；衛福部統計處
20
表 5-4、歷年寄養家庭戶數
年份 寄養服務之家庭戶數 結束寄養服務之家庭戶數 新增寄養服務之家庭戶數
2016 年 1,334 100 84
2017 年 1,449 73 104
2018 年 1,479 131 102
2019 年 1,484 96 137
2020 年 1,520 175 139
資料來源：整理自衛福部社家署歷年《兒童少年家庭寄養服務工作成果報告書》
表 5-5、家庭寄養服務之個案來源
類型 一般安置 保護安置 法院轉向安置
加總 總和
年份 人數 % 人數 % 人數 %
兒童 64 10.9% 484 82.5% 0 0% 548
2019 年 587
少年 3 0.51% 36 6.13% 0 0% 39
兒童 59 8.73% 555 82.1% 0 0% 614
2020 年 676
少年 1 0.15% 61 9.02% 0 0% 62
資料來源：整理自衛福部社家署歷年《兒童少年家庭寄養服務工作成果報告書》
表 5-6、兒少家外安置概況
身分別小計 健康狀況小計
總計
類型 一般 原住民 一般 身心障礙
4,853 4,070 783 4,176 677
親屬安置 180 142 38 162 18
寄養家庭 1,631 1,370 261 1,416 215
團體家庭 59 53 6 47 12
機構安置 2,623 2,187 436 2,335 288
其他 360 318 42 216 144
資料來源：整理自衛福部統計處
21
表 5-7、寄養兒少健康狀況
年份 2019 年 2020 年
健康狀況 人次 百分比 人次 百分比
正常 1,349 61.43% 1316 58.96%
心臟病 0 0.00% 0 0.00%
早產兒 68 3.10% 69 3.09%
身心障礙 251 11.43% 275 12.32%
注意力缺失/過動疾患 145 6.60% 164 7.35%
發展遲緩 378 17.21% 402 18.01%
傳染性疾病 1 0.05% 1 0.04%
特殊疾病 16 0.73% 19 0.85%
懷孕 1 0.05% 0 0.00%
身體傷害 2 0.55% 16 0.72%
其他 159 7.24% 204 9.14%
資料來源：整理自衛福部社家署歷年《兒童少年家庭寄養服務工作成果報告書》
表 5-8、寄養兒少年齡分佈
年份 2016 年 2017 年 2018 年 2019 年 2020 年
年齡 人次（%） 人次（%） 人次（%） 人次（%） 人次（%）
未滿 2 歲 207（8.9） 216（9.4） 119（5.1） 157（7.2） 180（8.1）
2 歲-未滿 6 歲 729（31.2） 801（34.7） 832（36.0） 864（39.3） 841（37.7）
6 歲-未滿 12 歲 1,033（44.2） 945（41.0） 938（41.0） 847（38.6） 904（40.5）
12 歲-未滿 15 歲 246（10.5） 226（9.8） 270（11.7） 208（9.5） 182（8.2）
15 歲-未滿 18 歲 93（4.0） 97（4.2） 124（5.4） 95（4.3） 100（4.5）
18 歲以上 29（1.2） 24（1.0） 30（1.3） 25（1.1） 25（1.1）
總計 2,337（100） 2,309（100） 2,313（100） 2,196（100） 2,232（100）
資料來源：整理自衛福部社家署歷年《兒童少年家庭寄養服務工作成果報告書》
22
議題六：未成年青少女懷孕
第七章 身心障礙、基本健康與福利
壹、現況說明與分析
一、委員會關注仍有相當比例的青少年懷孕，及建議培養兒少對於性行為的正確觀念；為懷孕青少女
提供適當的資訊及支持服務；教導父母瞭解兒少的性健康及生育保健相關權利。
二、我國訂有《優生保健法》、《性別平等教育法》、《學生懷孕受教育權維護及輔導協助要點》，
推動性教育、生育保健，和推動性別平等教育和健康安全性態度性行為，避免青少女非預期懷孕；
並關注人工流產、受教權和輔導介入。且依據《兒少性剝削條例》、《兒少法》，關注懷孕青少
女的性剝削通報和輔導資源轉介。
三、我國建置有未成年懷孕服務流程， 佈建服務內容含括「未成年懷孕諮詢專線（0800-257085）」、
「未成年懷孕求助網站（http://www.257085.org.tw/）」、「教育部學生懷孕受教權維護及輔導協
助」、「青少年親善醫療服務」、兒少性侵害或性剝削事件依法通報，2019年、2020年各縣市辦
理「未成年懷孕服務及後續追蹤輔導服務方案」、脆弱家庭訪視關懷等。
四、未成年青少女性行為、避孕
衛福部國建署抽樣調查40顯示，2014、2016、2018年13-15歲青少女曾有性行為，逐年呈現升高趨
勢；2013、2015、2017年15-17歲青少女曾有性行為微幅下降，但仍維持青少女人數一成以上，最
近一次性行為有避孕比率，顯示有性行為的青少女仍有接近一成五比率未有避孕措施，仍有懷孕
之可能性。
五、未成年青少女婚配、懷孕現況
（一） 政府數據顯示，未成年青少女婚配人數和整體婚配比率皆呈現下降，但近五年每年仍有約 2,000
名上下之 15-19 歲的青少女未成年即進入婚姻。（附件表 6-1、6-2）
（二） 未成年懷孕人數，無法從相關政府數據查得。僅能從 20 歲以下產婦之胎兒出生通報活產、死
產數，得知 20 歲以下懷孕有就醫之生育人數（附件表 6-3），但無法從中區分出 18 歲以下之
青少女生育數據，且無法從政府數據查得未成年青少女懷孕人工流產人數，和無從得知從非正
式管道墮胎的數據。是故，青少女未婚懷孕的實際人數，無法詳細得知。
六、未成年青少女懷孕學生受教權維護
政府數據顯示，2018年高中學生懷孕人數明顯高於前一年（附件表6-4），懷孕的高中生中有25%-
30%會因懷孕而中斷學業。政府對懷孕在學和休退學學生之相關介入輔導措施和是否復學，未見
詳細說明。懷孕學生是否進行人工流產而維持繼續就學，也無統計數據。
七、未成年青少女人工流產（墮胎）
衛福部統計處公告數據，僅針對20歲~49歲已婚和未婚婦女有人工流產之統計數據，缺乏對18歲
40
13-15 歲青少女曾有性行為，2014 年 5.0%、2016 年 5.3%、2018 年 6.2%，逐年呈現升高趨勢；15-17 歲青少女曾有性
行為，2013 年 11.1%、2015 年 10.4%、2017 年 10.2%，雖有微幅下降，但仍維持青少女人數一成以上，15-17 歲曾有性
行為青少女最近一次性行為有避孕比率，2013 年 86.6%、2015 年 88.5%、2017 年 87.9%。
23
以下未成年青少女懷孕人工流產之統計公告，政府是否掌握數據和有因應策略，未見說明。
八、未成年青少女生產
（一） 近五年未成年女性生育人數，逐年下降人數，但每年仍維持有千人以上為青少女生產，其中且
仍維持有 15 歲以下之兒少早孕生產（附件表 6-5）。
（二） 各分層年齡婦女之生育率皆呈現下降，15-19 歲青少女之生育率仍維持 4‰，整體來看，未明
顯下降（附件表 6-6）。
（三） 根據衛福部國健署報告數據 2016-2020 年 15-19 歲青少女人口數逐年下降，生育的嬰兒數也逐
年呈現下降，但嬰兒死亡率在 2020 年卻升高至 3.53‰（附件表 6-7）。衛福部國健署（2017）
報告41指出，年輕低學歷青少女生產和嬰兒活產死亡率呈現相關性，須被關注。
九、未成年父母服務
（一） 衛福部國健署於 2017 年起結合地方政府衛生局推動「周產期高風險孕產婦（兒）追蹤關懷計
畫」，其中社會經濟危險因子收案人數中：未滿 20 歲婦女逐年升高，2017 年 103 人，2018 年
250 人，2019 年 424 人，2020 年 1,341 人。
（二） 2019-2020 衛福部社家署《「未成年懷孕服務及後續追蹤輔導服務」成效檢討計畫研究成果報
告》，統計 11 縣市（含括六都）個案來源，學校轉介人數相較通報懷孕人數（附件表 6-4、表
6-8），明顯偏低；諮詢專線和網站轉介和自行求助人數，相較其他來源偏低（附件表 6-8）。
貳、結論與建議
一、政府對未成年青少女懷孕、產前檢查、生產、人工流產之人數掌控和分析，及政策計畫能否回應
成效，政府應做說明。
二、內政部戶政司統計 18 歲以下未成年青少女懷孕 2016、2017、2018 年分別為 1,551、1,426、1,292
人，教育部統計 2016、2017、2018 年國中小和高中在學青少女懷孕人數為 338、314、412 人。
政府對於青少女因懷孕輟學、休學，及未升學青少女懷孕之輔導和資源轉介，以及確保青少女有
利於其懷孕後持續就學的措施和友善環境建構（不被歧視和霸凌）的成效，政府應做說明。
三、CRC 第 20 號一般性意見 27、31、33 點提及，特殊兒少易因不利處境而致有早孕、性剝削懷孕
議題，相關未成年青少女懷孕、生產、人工流產統計和分析，有否區分特殊兒少（受性侵害、原
住民、身心障兒少、同性戀者）之統計和服務成效，政府應做說明。
四、兒少對現行性教育、性平觀念和教材需求之聲音為何，政府是否掌握以作為政策和措施推動參考，
政府應做說明。
五、有否台灣相關未婚青少女早孕和家長親職的研究和聲音收集，作為擬定有實證依據之政策措施，
政府應做說明。
41
衛福部國健署（2017）之《台灣健康不平等報告》中指出，在2004−2006年，未達高中學歷的母親，其嬰兒死亡率比高
中以上學歷的母親高出50%；到了2008−2010年，差異擴大到80%。年輕低學歷青少女生產之和嬰兒活產死亡率呈現相
關性，須被關注。
24
六、建議針對青少女懷孕、人工流產（墮胎）進行實證研究，以對其健康、受教權、社會融合有更貼
近的政策推動。
七、CRC 第 4 號一般性意見第 31 點提及，政府有責任提供早孕和不安全墮胎可能造成的危害資訊和
所需的保健服務，也需關心年輕母親得不到支助時，易陷入負向情緒影響育兒。政府應說明所設
立的未成年懷孕諮詢、求助專線和服務之成果和推廣成效為何、「青少年親善醫療服務」之使用
成果統計和服務成效為何，政府應做說明。
25
附件
表 6-1、未成年女性婚配 單位：人
年齡 未滿 15 歲 15-19 歲
婚姻狀 未婚 有偶 離婚 喪偶 未婚 有偶 離婚 喪偶
況別
2016 1,505,815 0 0 0 684,366 2,743 344 3
2017 1,482,916 0 0 0 647,437 2,421 340 6
2018 1,463,506 0 0 0 627,788 2,206 303 7
2019 1,446,549 0 0 0 596,770 2,059 303 4
2020 1,424,336 0 0 0 549,533 1,809 262 3
資料來源：整理自內政部戶政司、行政院性別平等會
表 6-2、15-19 歲未成年女性婚配比率 單位：人，‰
年度 青少女人口數 15-19 歲婦女有偶.離婚.喪偶數 青少女婚配比率‰
2016 687,456 3,090 4.495
2017 650,204 2,767 4.256
2018 630,304 2,516 3.992
2019 599,136 2,366 3.949
2020 551,607 2,074 3.760
資料來源：整理自內政部戶政司、行政院性別平等會
表 6-3、20 歲以下產婦之胎兒出生通報活產、死產數 單位：人
年度 合計 活產人數 死產人數
2016 3,044 2,972 72
2017 2,794 2,722 72
2018 2,477 2,419 58
2019 2,389 2,334 55
2020 2,237 2,165 72
資料來源：整理自衛福部國健署（2021），中華民國出生通報統計表（2016-2020）
表6-4、高級中等以下學校懷孕學生繼續就學人數 單位：人，%
學年度 懷孕人數 繼續就學人數 比率
高中 國中 高中 國中 高中 國中
2016 233 105 165 88 70.78 83.81
2017 238 76 177 70 74.37 92.11
2018 325 87 246 85 75.70 97.70
資料來源：教育部、第2次國家報告
註：2016-2018年，國小生懷孕數為0人
26
表 6-5、嬰兒出生按生母單齡人數 單位：人
年度 15 歲以下 15 歲 16 歲 17 歲 18 歲 總計
2016 20 73 255 431 772 1,551
2017 20 59 207 427 713 1,426
2018 17 55 170 390 660 1,292
2019 18 43 148 327 648 1,184
2020 10 40 151 275 553 1,029
資料來源：整理自內政部戶政司
表 6-6、婦女生育率 單位：‰
年別 年齡別生育率
一般生育率 總生育率
15-19歲 20-24歲 25-29歲 30-34歲 35-39歲 40-44歲 45-49歲
2016 34 4 22 63 90 47 8 0 1,170
2017 33 4 21 59 85 47 9 0 1,125
2018 31 4 20 55 80 44 9 0 1,060
2019 30 4 20 53 79 44 9 1 1,050
2020 28 4 19 48 74 43 9 1 990
資料來源：整理自內政部戶政司
表 6-7、出生通報活產、死產按產婦年齡（小於 20 歲以下） 單位：人， ‰
青少女人口數 青少女生育率‰ 合計 活產 死產
年度 人數 千分比 人數 千分比 人數 千分比
2016 687,456 4.428 3044 1.45 2972 1.43 72 2.96
2017 650,204 4.297 2794 1.42 2722 1.40 72 3.26
2018 630,304 3.930 2477 1.35 2419 1.34 58 2.67
2019 599,136 3.987 2389 1.33 2334 1.33 55 2.67
2020 551,607 4.055 2237 1.36 2165 1.33 72 3.53
資料來源：整理自衛福部國健署（2021）；中華民國出生通報統計表（2016-2020）；內政部
（2021）
*註：15-19 歲青少女生育率=15-19 年齡組婦女之活產數÷15-19 歲婦女人口數 X1000 ‰ 。
表 6-8、「未成年懷孕服務及後續追蹤輔導服務」個案來源
年度 學校 衛 政 / 未成年懷孕 社 會 福 個 案 （ 家 戶 政 / 社會局 其他 合計
轉介 醫 療 院 諮詢專線或 利 機 構 屬 ） 自 行 民 政
所轉介 網站轉介 轉介 申請服務 單位
2019 45 413 20 179 52 182 158 135 1,189
2020 上半年 59 484 20 53 63 173 167 24 1,018
資料來源：整理自衛福部社家署「未成年懷孕服務及後續追蹤輔導服務」成效檢討計畫與研究成果
報告（2021）
27
議題七：學習資源
第八章 教育休閒與文化活動
壹、現況說明與分析
一、首次國家報告結論性意見第 74 點肯定政府為偏鄉兒少分配更多教育資源的決心。然而，仍然關
切目前分配資源尚不足以確保偏鄉兒少的教育品質。建議政府持續為偏鄉教育提供額外資源，並
採取措施以監測偏鄉兒少享有 CRC 第 28 條和第 29 條所訂教育權的程度。
二、第 2 次國家報告第 254 點回應首次國家報告結論性意見第 74 點，教育部依據《教育部補助偏遠
地區學校及非山非市學校教育經費作業要點》，建構申請經費之「教育部補助學校教育經費統合
網站42」。此外，我國於 2017 年 12 月 6 日公布《偏遠地區學校教育發展條例》，並於 2021 年 3
月 11 日增訂《偏遠地區學校分級及認定標準》，回應結論性意見之後續行動方案計畫第 74 點次
43
，將偏遠地區學校區分為「偏遠」、「特殊偏遠」與「極度偏遠」三類44，給予偏遠地區學校不
同比率之補助經費，但此偏遠地區之分類方式無法得知涵蓋多少有需求兒少之經費，且缺乏統計
說明。
三、2021 年台灣趨勢研究於疫情期間進行調查45顯示，數位學習設備之不足及網際網路之穩定性，皆
影響學生線上學習品質及成效。然，本會於 2020 年之調查46顯示，經濟弱勢兒少之數位學習設備
及網際網路資源更為不足；進一步加上城鄉47之區域性因素，則更顯偏鄉弱勢兒少在數位學習設
備之不足、電腦網路連線品質之缺乏。上述數位學習之現況皆無法確保兒少之教育權與教育品質。
42
https://sca.ntcu.edu.tw/SCA/。
43
回應結論性意見之後續行動方案計畫第 74 點，目標一為完善偏遠地區學校教育發展相關法規；目標二為寬列經費以提
供偏遠地區學校所需之基礎設施設備，並提供學生就學需求之協助。
44
偏遠地區之學校分類，乃依據《偏遠地區學校教育發展條例》第 4 條第 1 項所定交通、文化、生活機能、數位環境、
社會經濟條件等之範疇，訂定 16 項評估指標，續按《偏遠地區學校分級及認定標準》之計量模型，計算臺灣本島高級
中等以下各教育階段之極度偏遠、特殊偏遠及偏遠各級別學校數，臺灣本島學校之地方主管機關應依前開校數，分級
認定並擬具偏遠地區學校名單後，報中央主管機關審查核定。
45
2021 年全國受疫情影響，台灣趨勢研究（Taiwan Trend Research）於 5 月 21 日至 6 月 9 日進行《第三級警戒下防疫新
生活調查-工作學習及親子篇》
，9 成學生在進行線上學習曾遇困難，其中「訊號品質不佳」佔 44.9%最大、
「家中網路速
度慢」佔 38.1%次高、
「電腦周邊設備不足」佔 27.0%、
「沒有足夠電腦、平板」佔 18.5%及「家中沒有網路」佔 4.1%。
46
《2020 年無窮世代弱勢兒少學習資源需求調查》
：1.調查區域範圍涵蓋本會於全國各地 23 個分事務所，包含全國 22 縣
市，其中並未抽樣到馬祖分事務所服務之兒少；2.調查時間為 2020 年 3 月 25 日至 2020 年 4 月 30 日；3.調查方法採網
路問卷或紙本問卷方式填寫進行施測；4.調查對象為 2019 年學年度下學期正就讀三至七年級之經濟扶助個案及其家庭，
以 2020 年 3 月 12 日當日認養系統的母體數做為抽樣的基準，簡單隨機抽出 1,221 筆兒少個案樣本，再請兒少與家中
家長填寫問卷做為調查樣本。
在網路資源方面，有 61%的弱勢兒少家中沒有電腦網路連線，有 53.4%的弱勢兒少手機沒有搭配「上網吃到飽」方案；
在數位學習設備方面，居住在城市與偏鄉的兒少家中沒有「電腦或筆記型電腦」分別為 66.4%與 74.5%、沒有「平板電
腦」分別為 86.1%與 92.6%、上述兩者同時沒有的比例，分別為 58.5%與 70.6%。另外，調查亦發現居住在城市與偏鄉
的兒少家中「有數位學習設備資源，但沒有電腦網路連線」之佔比分別為 37.1%與 41.7%。
47
本會前述調查之城鄉定義係依據《幼兒教育及照顧法施行細則》第 7 條第 1 項第 2 款，符合其偏遠地區定義之行政區，
28
四、根據本會於 2020 年進行之《2019 年社區興力計畫研究報告48》顯示，不僅是城鄉數位學習設備
有落差，兒少持有數位學習設備後的使用方式及資訊落差，更將嚴重影響其學習品質及成效。可
見數位素養建構及陪伴兒少使用數位設備的缺乏，對兒少的數位學習產生影響。
貳、結論與建議
一、疫情之下，我國兒少皆面臨數位學習之議題，然弱勢兒少在現今社會普遍以數位學習的教學環境
下，面臨更多的困難與挑戰。建議政府擬定數位學習之相關政策時，應考量數位設備之涵蓋率，
以及網際網路使用之可近性，以符合兒少之數位學習需求。
二、教育部雖增列《偏遠地區學校分級及認定標準》，然而依據本會實務經驗，該標準未能真實反映
全貌，建議政府應進一步掌握該標準是否過於嚴苛而無法觸及其他偏遠地區之需求。
三、政府針對偏遠地區及非山非市學校投入教育資源，在資源及經費挹注的同時，除了統計每年度補
助學校的數量及經費之外，建議應有數位學習設備使用率及執行成效之數據。
四、疫情之下，數位學習已是普遍兒少皆須面臨之議題，建議政府可瞭解我國家庭提供兒少獲取數位
學習設備之能力，以確保兒少之教育權。
五、建議政府將數位素養列入教育政策當中，使我國兒少具備數位資訊辨識及資訊搜尋能力。同時，
透過教育政策推展、宣導等方式，協助兒少正確使用數位設備。例如，為防止兒少接收網路詐騙
訊息，應規範由家長陪伴使用數位設備或於數位設備中安裝監控系統。
指人口密度低於全國平均人口度 2/5 之鄉鎮市區，於本調查中稱之為「偏遠鄉鎮」
；而其他非偏遠地區行政區之鄉鎮市
區，為求突顯本調查意欲呈現偏鄉學習情況之匱乏與需求，故統稱為「城市」(非偏鄉)。
48
本會於 2020 年進行《無窮世代「2019 年社區興力計畫研究報告」
，研究結果顯示，地處雲林縣偏鄉之台西鄉，其最主
要數位學習落差在於城鄉數位資訊觸及之差異。受訪社工表示，目前平板及手機的普及性已相當高；但相較於都會地
區的孩子，偏鄉的孩子僅將平板或手機拿來玩遊戲，很少將其運用於資料蒐集。因此，社工於課輔班服務上需時常引導
孩子資訊設備之使用，並非僅有社群平台（Facebook、Line 等）及玩手遊的功能，其中還包含了搜尋資料、地圖等功
能之使用。
29
議題八：兒少性侵害
第九章 特別保護措施
壹、現況說明與分析
一、首次國家報告結論性意見關切在性虐待受害兒少作證指控犯罪嫌疑人的司法程序中，相關保護措
施並不完全符合國際人權標準。建議政府審查及修正保護受害兒少於司法程序作證的現行規定，
以符合國際人權標準49。
二、為避免性侵害案件相同事項再次重複訊問被害人，政府訂有《檢察機關偵辦性侵害案件減少被害
人重複陳述注意事項》；而兒少於司法程序之保護措施，包括受訊問或詰問時得由專業人員或家
屬等人陪同在場，並且設有司法詢問員與專家證人來協助兒少性侵害案件的兒少訊問50。
三、議題數據現況
（一） 政府數據顯示，性侵害案件中於國中小學及高中（職）就學階段被害人占多數，兒少遭性侵害
亦有逐年增加之趨勢；2019 年性侵害案件通報件數計 9,183 件，被害人計 8,160 人，其中兒少
被害人達 5,272 人，占 64.6%，可見防制機制執行的成效與預期有落差。
（二） 法務部地檢署辦理性侵害案件偵查收結件與裁判確定情形統計未見被害人年齡區分之統計，
無法得知兒少性侵害案件偵查件數與起訴處分、定罪科刑情形；而在審理兒少性侵害案件使用
司法詢問員比率僅 7％至 10.68%，法院使用專家證人僅 0.42％至 1.22%，司法詢問員及專家證
人引進兒少性侵害案件實務運用比例偏低，且司法詢問員角色定位不明、人力不足與不穩定，
均不利兒少性侵害案件中的兒少表意。
（三） 本會於 2020 年 10 月針對本會社會工作者於兒少性侵害案件的服務經驗與想法加以調查發現：
1. 我國雖訂有減少被害兒少重複陳述作業之流程，避免重複陳述造成兒少的再次傷害，但減述流
程、司法詢問員與專家證人所詢問的筆錄內容必須由檢察官指揮訊問才具有司法證據證明能力，
以至於實務上檢察官會有再次傳喚補訊需求，法院審理時也會有重複訊問、交互詰問51，被害兒
少還是需重複說明、陳述案情，因各縣市對兒少性侵案件減述過程做法不一致，被害兒少重複
陳述情形仍需檢討改善，與《關於買賣兒童、兒童賣淫和兒童色情問題任擇議定書》52相違背。
2. 兒少性侵害被害人在保護與輔導服務中，很容易因為同時進行的司法訴訟程序而模糊焦點，有
時候為受創兒少安排諮商，但法庭上利害關係人常希望透過諮商的狀況影響審理，兒少的療癒
歷程變成了工具，創傷復原的目標也被模糊了焦點。
49
政府審查及修正保護受害兒少於司法程序作證的現行規定，以符合《關於買賣兒童、兒童賣淫和兒童色情問題任擇議
定書》第 8 條在刑事司法程序的各個階段保護兒少的權益，包含應為兒少落實的程序與作為；以及聯合國經濟及社會
理事會關於兒童被害人兼證人之司法問題的第 2005/20 號決議當涉及司法中兒童被害人和證人的事項上應堅持公理的
準則。
50
《性侵害犯罪防治法》第 15 條之 1 與第 16 條之 1。
51
因司法程序審理流程強調官司攻防之公平原則，或認為減述流程、司法詢問員與專家證人所詢問的筆錄內容不具司法
證據證明能力。
52
第 8 條第 6 項。
30
3. 兒少主動求助、自行使用求助管道者比例低，通常在向親友與專業人員傾訴時被揭露，或是被
覺察異狀，而詢問並協助通報；且主動求助情形也有成長環境、城鄉之差距，有賴對兒少的法
治與問題解決能力之培養。此現象反映著現有的求助、通報管道設計目標對象主要提供給成年
人、專業人員使用，對於兒少本身可近性較低，再加上擔心家人及社會大眾對自己的看法，雖
有管道但求助者有所顧忌卻步。
貳、結論與建議
一、政府在兒少性侵害議題上，應持續就兒少生活環境加以研究並進行全面分析，包含服務機構與組
織，瞭解制度面臨的問題，為制度和實務改革提出見解。此外，政府應定期進行並發表具有全國
代表性的兒少性侵害數據研究，包含性侵害兒少被害案件中加害人偵查收件數、起訴、緩起訴、
不起訴與定罪統計，且應避免僅以報表、次數統計形成官樣文章而成效有限，方能確定兒少在生
活環境中遭受性侵害的程度與制度建置的成效。
二、司法程序改革
（一） 應讓兒少性侵案以直接、迅速的形式處理，如為兒童性侵害案件設立特別的起訴單位或各縣市
統一建置一站式處理，在檢調、司法體系中建立專責的檢察官與法官調查和審理兒少性侵案件，
結合警政、社政與衛政網絡合作，方能足夠瞭解被性侵兒少之身心狀況與訊問方法。
（二） 檢討與修正國內性侵害減述程序與司法詢問員制度，依《關於買賣兒童、兒童賣淫和兒童色情
問題之兒童權利公約任擇議定書》之原則為兒少建置身心壓力與創傷證人具體標準作業流程
的特殊司法程序53。此外，應持續養成與深化相關人員（醫護、社工、警調、檢察、司法）之
兒少訊問與兒少性侵害取證技巧，讓兒少性侵案件審理過程中的每位專業人員受訓、取得司法
詢問員資格，並提升與培養專業人員陪同偵訊和出庭之角色。
（三） 司法審理機制應以兒少被害人支持與輔導、創傷復原54與加害者矯治等來規劃設計歷程，包含
被害兒少與事件相關人員的敘事治療、陪伴家庭走過審理歷程的服務、加害者判罰後的相關矯
治配套與資源介入等，而非只是單純的司法正義。
三、性侵害求助管道的設計應考量兒少之需求55，尤其是有關兒少使用的服務，避免現行通報系統以
成年人思維的狀況，讓兒少有意義的參與規劃，並且考量所有特殊兒少族群。
53
可參考美國的專職司法訪談員制度，設有兒少證詞司法訪談員協助涉及司法案件的兒少，並且有訊問兒少證人的標準
程序；澳洲的保密面談調查機制，為了讓受害者可以在保密、友善及支持的環境敘述受害經歷，設有保密面談的調查機
制，該調查機制重視性侵害受害者的感受與需求，目的就是要傾聽受害者的經歷，受害者可以自願進入保密面談的調
查機制，並在面談的前置準備與面談結束後接受專業助人者的心理支持，協助受害者經歷司法程序的身心壓力復原以
及避免二次創傷；在法庭審理中相關文件可以不用公開、兒少本人也不用宣誓以及接受交叉訊問的情況下說出自己的
經歷，或是選擇透過以電話、書面陳述及公聽會的形式。
54
含兒少性侵事件受到創傷的相關人士。
55
考量到求助者的使用心情，例如保護加害者、無法負荷傾訴時的心情、擔心會轉學、被帶離家庭，既使現有統一的處
遇系統平台，但在求助過程都仍有重複被詢問而需要一再陳述的困擾。可規劃更貼近民眾、孩子的線上求助、諮詢平台
或通訊軟體，推廣手機、數位一鍵報警，甚至規劃專屬的 App。
31
議題九：童工
第九章 特別保護措施
壹、現況說明與分析
一、首次國家報告結論性意見注意到兒少經常長時間工作，且/或處於可能對其健康與發展有害的工
作環境，建議政府調查從事勞動的兒少人數，並依工作性質、年齡、性別、是否具原住民身分及
城鄉背景分類統計；採取適當保護兒少權利之措施。
二、一般性意見第 4、8、23 號以及 CRC 第 32 條皆提到保障青少年就業的工作環境（禁止/監管危險
性工作）、工作報酬、工作/雇用條件、身心狀態之發展情形。
三、我國訂有《勞動基準法》及《職業安全衛生法》，針對未滿 18 歲兒少為第三方人提供勞務之每
日工時上限（含夜間工作）規定、休息時間、例假日、工作環境（包含不得從事危險性或有害性
工作）、簽署勞動契約、法定代理人同意書及年齡證明文件56等保障之情況。
四、為建構我國兒少職場安全，各部會創建溝通平台57與調查研究58來回應實務現況，提供兒少就業
服務與輔導、兒少勞動權益保障、職場安全衛生及兒少申訴機制，然各部會雖有進行宣導、及建
置 24 小時之 1955 勞工申訴專線及網路民意信箱，但是執行成效未能回應民間單位調查與實務現
場之情形。民間單位於 2015 年59及 2020 年60針對青少年勞動權益進行調查，針對 15-18 歲青少
年進行薪資、投保狀況、行職業類別、勞動權益申訴管道等勞動權益調查，有未符合兒少權益之
情形發生。
貳、結論與建議
一、政府僅針對經常性僱用青少年之賣場、超商、餐飲業及營造工地等工作場所加強職業安全衛生稽
查與宣導，但政府對青少年實際從事危險或有害工作的說明、執行宣導勞動權益及勞動檢查是否
涵蓋不利之工作環境未作說明及執行成效。
二、《勞動基準法》僱用童工應置備法定代理人同意書及年齡證明等相關文件，全國各縣市落實狀況
56
我國勞動部有關僱用童工應簽署法定代理人同意書及年齡證明文件之統計數據，2019 年計 7 件、2020 年計 5 件。
57
我國為保障兒少職場安全，於 2016 至 2018 年成立「青少年職場安全衛生溝通平台」
，加強青少年職業安全衛生宣導、
教育訓練及勞動檢查以及訂定未滿 18 歲兒少夜間超商工作安全指引；2019 年推動《青少年職場安全衛生防護計畫》；
2020 年成立跨部會「兒少職場安全衛生權益小組」以預防職業災害發生，保障兒少職業安全健康為目標，並進行「加
強勞動檢查」、
「辦理教育訓練」
、「優化宣導及輔導」及「加強跨部會及機關合作」
。
58
教育部《高級中等學校 18 歲以下學生校外勞動實況調查與研究》
、衛福部《兒童及少年生活狀況調查》及勞動部《未
滿 15 歲工作者從事工作申請案件（含原住民身分）之基本調查》
。
59
《台灣少年權益與福利促進聯盟－2015 青少年勞動權益調查報告》顯示針對薪資有 52%未達法定薪資(該年時薪為 115
元、25%未達時薪 100 元)；投保狀況有 60%未有勞健保保障；行職業類別以餐飲業 53%最高、門市店員 12%次高、及
技術工 10.5%第三；勞動權益申訴管道有 44.7%不知道方法/怕麻煩/不會申訴。
60
《全國中學學生權益研究會－2020 高級中等教育學校學生勞動權益狀況》顯示針對薪資有 36%未達法定薪資（該年時
薪為 158 元、2.1%未達時薪 110 元）
；投保狀況有 59.3%未有勞健保保障；行職業類別以餐飲業 53.2%最高、服務業
26.9%次高、及第二級產業（工廠）10.3%第三；勞動權益申訴管道有 86.1%無申訴經驗及不敢/遲疑/不會申訴。
32
與成效為何，政府應做說明。
三、未見 1955 勞工申訴專線及網路民意信箱的各縣市申訴原因、案件數及處理回應與調解服務狀況
等執行成效為何，政府應做說明。
四、建議每年針對兒少勞動權益進行調查，除政府、學界、企業與民間單位專業人士外，應納入兒少
參與調查問卷之設計，問卷項目應包含不同縣市（城鄉）、族群、年齡、性別、教育現況（包含
未就學）、工作性質（投保狀況、行職業類別等）、工作薪資與時數、工作環境安全與勞動權益。
33
---
來源 PDF:34_20220406110155_3997007.pdf
Republic of China (Taiwan)
Implementation of the Convention on the
Rights of the Child
Prepared for the 2nd State Report Review
NGO Alternative Report
March 2022
Note: This report is publicly accessible.
CONTENTS
Corresponding CRC Article No. ……………………………………………………………………………...2
INTRODUCTION…………………………………………………………………………………………….3
ISSUE 1: Retrospective Analysis of the Deaths of Children…………………………………………………4
ISSUE 2: Children’s Mental Health…………………………………………………………………………..6
ISSUE 3: Digital Sexual Violence Against Children………………………………………………………...11
ISSUE 4: Inappropriate Corporal Punishment of Students by Teachers…………………………………….15
ISSUE 5: Alternative Care…………………………………………………………………………………...18
ISSUE 6: Adolescent Pregnancy……………………………………………………………………………..22
ISSUE 7: Educational Resources…………………………………………………………………………….27
ISSUE 8: Child Sexual Abuse………………………………………………………………………………..30
ISSUE 9: Child Labor………………………………………………………………………………………..33
1
Corresponding CRC Article No.
Issue CRC Report Chapter CRC Article
Issue 1: Retrospective Analysis of
Chapter 3 General Principles Article 6
the Deaths of Children
Chapter 3 General Principles
Issue 2: Children's Mental Health Chapter 7 Disabilities, Basic Health Article 6, 24
and Welfare
Chapter 5 Protecting Children from
Issue 3: Digital Sexual Violence
Violence Articles 19, 34, 35, 36
Against Children
Chapter 9 Special Protection Measures
Chapter 5 Protecting Children from
Issue 4: Inappropriate Corporal Violence
Articles 19, 28, 29, 37
Punishment of Students by Teachers Chapter 8 Education, Leisure and
Cultural Activities
Chapter 6 Family Environment and
Issue 5: Alternative Care Articles 20, 25
Alternative Care
Chapter 7 Disabilities, Basic Health
Issue 6: Adolescent Pregnancy Articles 6, 24
and Welfare
Chapter 8 Education, Leisure and
Issue 7: Educational Resources Articles 28, 29
Cultural activities
Issue 8: Child Sexual Abuse Chapter 9 Special Protection Measures Article 34
Issue 9: Child Labor Chapter 9 Special Protection Measures Article 32
Abbreviation
Full Proper Name Abbreviation
The Protection of Children and Youths Welfare and
Children and Youths Act
Rights Act
Child and Youth Sexual Exploitation Prevention
Child and Youth Sexual Exploitation Act
Act
Ministry of Health and Welfare MOHW
Department of Statistics,
Department of Statistics, MOHW
Ministry of Health and Welfare
Social and Family Affairs Administration,
SFAA, MOHW
Ministry of Health and Welfare
Health Promotion Administration,
HPA, MOHW
Ministry of Health and Welfare
2
Introduction
The Taiwan Fund for Children and Families (TFCF) has offered services for children suffering from
poverty and maltreatment since 1950. It is registered in Taiwan and is a full member of Accountable Now
(formerly known as The INGO Accountability Charter).
This report presents nine issues in response to the Government's Second State Report under the
Convention on the Rights of the Child in 2021 and its policies and actions since the first international review
of the state report:
1. Retrospective Analysis of the Deaths of Children
2. Children's Mental Health
3. Digital Sexual Violence Against Children
4. Inappropriate Corporal Punishment of Students by Teachers
5. Alternative Care
6. Adolescent Pregnancy
7. Educational Resources
8. Child Sexual Abuse
9. Child Labor
3
Issue 1: Retrospective Analysis of the Deaths of Children
Chapter 3 General Principles
I. Description and Status Quo Analysis
The healthy survival and growth of children is the foundation of children's rights. The focus on causes of
death of children in Taiwan stems from serious child abuse and murder-suicide incidents. The Government
has gradually established child abuse prevention task forces at both the central and local government levels,
with the goal of extending the child protection system through a multi-disciplinary network. However, these
review mechanisms are mainly reactive and fragmented only for serious child protection cases involving
injury and death of children, lacking consistent and specific screening standards and workflow across Taiwan.
Therefore, with the advocacy of NGOs, Taiwan amended its law in 2019 to include retrospective analysis of
causes of death for children under six years old.1 The reasons for the amendment2 show that the causes of
death can be analyzed to identify areas for improvement in policy.
Although the Government has been actively working on this issue since 2019, we believe that
inadequacies remain in the design and implementation of the overall mechanism for retrospective analysis of
the causes of child death.
1. In the Concluding Observations on the Initial State Report, paragraphs 30 and 63 refer to the issue of
child suicide in Taiwan, while paragraph 88 refers to the infant mortality rate of indigenous people in
Taiwan, which are reminders of the importance of preventing child death. In the Second State Report,
paragraphs 68 and 110(c) describe relevant legal actions, and paragraphs 65 and 69-72 present statistics
on the causes of child death in Taiwan and provide information on measures to prevent deaths by
accidents and suicides. The above shows the Government's policy direction on the retrospective analysis
of the causes of child death in the past two years, and its efforts to propose approaches and actions for
specific death issues. However, the full picture of policy development is unfortunately not yet evident.
2. Although Taiwan's cause of death statistics follow the World Health Organization's International
Classification of Diseases, they lack detailed examination and response. Moreover, most of the measures
to prevent child death in Taiwan are only for specific causes and are mainly preventive and awareness-
raising in nature. It is clear that the policy to analyze deaths of children in Taiwan might be limited to
piecemeal remedial measures, and there is no comprehensive policy planning with a complete context
and structure.
3. Attachments 3-1 to 3-9 of the Second State Report present the statistics of causes of child death in Taiwan.
From 2016 to 2020, the number of child deaths decreased from 1,472 to 1,086, with a slight increase in
the number of infant and newborn deaths "due to maternal factors and complications of pregnancy, labor
and delivery". Another point worth further investigation is that "accidental injuries" consistently rank the
second highest in the number of unnatural deaths among children, while the number of "intentional self-
inflicted injuries (suicides)" has been rising year by year, and almost all the deaths happened in the 12-
17 age group.
4. The Government's empirical review and analysis is demonstrated by the ongoing plans mentioned in
paragraph 68 of the Second State Report, and so are its further policy responses and rigorous modeling
of future projections.
5. Meanwhile, the Executive Yuan's Child and Youth Welfare and Rights Promotion Group continues to
submit reports and discussions on the causes of death in recent years. Most recently in April 2021, the
Ministry of Health and Welfare (MOHW) requested all departments to cooperate with local health
agencies to carry out related work.
1
Article 13, Paragraph 1 of the "Children and Youths Act": Central competent health authority shall conduct retrospective analyses
of the deaths of children under 6 and publish the results on a regular basis.
2
The central competent health authority is required to establish a mechanism to investigate the causes of death of children under
six, analyze the causes, identify correctable causes, and take administrative measures to prevent the recurrence of similar incidents
and effectively reduce child mortality.
4
6. As mentioned above, since the Government amended the law in 2019, the retrospective analysis of causes
of death of children under six years old has been expanded from academic research by health authorities
to cross-ministry, cross-county and -city levels. However, from the presented data and planning3, it can
be seen that the legal basis, the level at which activities are initiated, and the ministries involved are all
very preliminary and mostly non-mandatory.
7. Currently, the MOHW is responsible for the relevant system in Taiwan, but while welfare services of the
Ministry are in charge of prevention of serious child abuse, health services are in charge of analysis of
the causes of child death. This approach results in two issues. First, the overlapping powers and
responsibilities of the two services need to be clarified. Second, the system in Taiwan has not yet been
clearly defined, compared to diverse "child death review mechanisms" in other countries, where different
ministries or levels of Government either launch or participate in relevant initiatives. In the United States,
for example, the National Center for Fatality Review and Prevention (NCFRP)4 has provided guidance
to states and counties to promote retrospective analysis of child death. There are hundreds of state and
county child death analysis teams currently in the U.S. that review child deaths ranging in age from 0 to
18 or 21. Many states and counties conduct comprehensive review of each child death in their
jurisdictions. Other countries, such as the United Kingdom, Canada, Australia, and New Zealand, have
child death review systems that cover a wide range of ages and span multiple ministries.
8. Therefore, on the future direction of the system moving forward from the current practice, it is important
to clearly define which ministries are involved and who is in charge of the system. At the same time, it
is necessary for the national authorities to be more forward-looking and consider how the system can be
successfully implemented through division of powers and responsibilities between the central and local
governments in Taiwan.
II. Conclusions and Recommendations
1. The retrospective analysis of the causes of child death in Taiwan started to make substantial progress
since the amendment of the law in 2019. However, in the current system, the definition of the competent
authorities, the integration of multi-disciplinary ministries, and the division of powers and responsibilities
between the central and local governments should be re-examined with reference to international systems,
so as to determine what system Taiwan aspires to establish as soon as possible.
2. An attachment of the Second State Report shows the number of child deaths in Taiwan in recent years is
about 1,000 to 1,400. If we learn from the experience of other countries, each death of a child should be
examined, given the scale of resources invested in establishing the review system in Taiwan. Therefore,
we recommend that the Government should extend the analysis of the causes of child death to all children
under the age of 18.
3. The reproductive health policy should be gradually established with reference to relevant international
policies to extend the care for pregnant women, as the infant/neonatal mortality rate in Taiwan is still
slightly higher than that of OECD countries. Although the Second State Report5 indicates that maternal
care, preventive care for children, and preventive vaccination have been implemented, we still cannot see
a comprehensive and coherent policy plan from the Government.
4. The prevention of serious child abuse in Taiwan has been in place for years and is based on the child
protection system. While it has its role and tasks, the Government has not yet determined how to integrate
and revise the two systems following the introduction of the retrospective analysis of the causes of child
death.
5. It has been three years since Taiwan started the retrospective analysis. How will the research findings
shape our national policy in the future? What is the planning direction for its regular implementation as
a national policy? The Government should have a concrete and clear plan.
3
http://www.cdr.org.tw/
4
National Center for Fatality Review & Prevention
5
Paragraphs 184, 203, 204, 207, 208, 308 and 309
5
Issue 2: Children's Mental Health
Chapter 3 General Principles
Chapter 7 Disabilities, Basic Health and Welfare
I. Description and Status Quo Analysis
1. The concerns in the Concluding Observations on the Initial Report are:
(1) In light of the high suicide rate among children and the effectiveness of mental health services provided
to children, the Review Committee recommends that the Government: continue to analyze data on
children's mental health status and strengthen existing efforts to reduce the high suicide rate among
children; and actively seek the views of children to ensure that mental health services are available,
accessible and acceptable to assist with the development, implementation, and monitoring of mental
health services for children.
(2) With regard to the situation in which all children must obtain the consent of their parents in order to
receive medical treatment, irrespective of their capacity6, the Review Committee recommends that the
Government should set a fixed age at which the right to consent transfers to the child, based on the
principle that the child has sufficient understanding, so that the child can receive mental health services
on his or her own.
2. Status Quo Analysis
(1) Taiwan has implemented policies, set up help channels and services, analyzed the causes of suicide
and trained relevant professionals. 7 However, government data show that the number of reported
suicides among children is increasing year by year8, and suicide is the second leading cause of death
among children aged 1-17 in Taiwan. In the ranking of causes of death for children aged 1-14, suicide
was ranked in the top five for the first time in 2020 (see Table 2-2 in Attachment).
(2) The Government has conducted statistical analysis on the causes of suicide deaths and reporting, but
we have not yet seen any comprehensive policy planning to promote suicide prevention in response to
increasing depression, mental illness, and difficulties adapting to school (see Figure 2-1). The causes
of suicide are multifaceted and complex, and the current analysis of self-harm and prevention among
children, as well as of suicide reporting systems, are too simplified for understanding children and
formulating policy.
6
Article 13 of the "Civil Code": The minor, who is over seven years of age, has a limited capacity to make juridical acts. Article 8
of the "Patient Right to Autonomy Act": Persons with full disposing capacity may make advance decisions, and may revoke or
alter them in writing at any time. By law, children do not have medical "decision-making capacity" and any medical decisions
must be made with the consent of a legal representative.
7
The Government promotes the following policies and preventive measures for child suicide:
(1) Promote the "Three Levels of Self-Harm Prevention Program for Students on Campus" since 2007;
(2) Pass and implement the "Suicide Prevention Act" in 2019;
(3) Promote local mental health counseling services;
(4) Create the Website of Mental Health Services Resources Network Map (https://wellbeing.mohw.gov.tw/nor/mmap);
(5) Set up a 24-hour Suicide Prevention Hotline 1925;
(6) Analyze the causes of the recent trend of suicide deaths among children aged 0 to 17;
(7) Conduct suicide prevention training for school professionals;
(8) Develop lesson plans on issues related to suicide prevention for the year 2020;
8
Government data show that the number of reported suicide cases among 0-17 year olds has increased from 1,152 in 2016 to 5,464
in 2020, and the proportion of reported suicide in this age group among all cases has increased from 3.96% in 2016 to 13.50% in
2020. The number of reported suicides among children has increased by 3.7 times in the past five years, and the percentage of
this age group has also increased each year (see Table 2-1 in Attachment).
6
(3) According to 2018-2019 government statistics, nearly 70% of students who committed suicide have
not been in contact with school counseling resources; only 6% of suicide death cases had contact with
resources from outside institutions before they died, and an even lower 2% for those who committed
self-harm9; usage and referral rate of the Suicide Prevention Hotline among children was low.10
(4) In TFCF's 2021 survey11, 70% of school-aged children believed the prevalence of depression is on the
rise (see Table 2-3), and 21.6% reported they had suicidal thoughts in the past week (see Table 2-4),
highlighting the gravity of the issue of suicide and self-harm among children.
(5) In the survey, 79.9% of children were aware of at least one existing mental health help channel and
service (see Table 2-5), but 49.8% of children were reluctant to seek help from any professional
channel when they were upset or depressed (see Table 2-6), and this reflects the limitations of the
services provided by schools and local mental health centers, which need to be strengthened
immediately.
(6) In the same survey, 68.6% of children agreed that "children with depression can decide for themselves
whether or not to see a doctor" (see Table 2-7). However, the Government has not yet reached a
conclusion on children's own consent to medical treatment 12 , and there are not yet sufficient
regulations to protect this right, leaving paragraphs 60 and 61 of the Concluding Observations on the
Initial Report unaddressed.
II. Conclusions and Recommendations
1. Analysis of child mental health and suicide should be more detailed in order to understand the causes and
context of child suicide. That is to say, genetic, personality, or environmental factors and their
interactions, as well as experiential and socio-cultural factors such as conflict, displacement,
discrimination, bullying, and social exclusion (e.g., stress about body image) should be further analyzed
to inform child suicide prevention strategies.
2. The data analyzed by Suicide Prevention Hotline should be consistent with the definition of the age of
the child, adding statistics for children aged 15 to 18, and analysis of the causes should be conducted.
3. The Government should review the use and effectiveness of existing professional channels including
mental health counseling services and mental health service resource network of county and city health
bureaus for children, analyze in greater depth the needs of children using the Suicide Prevention Hotline,
and assess whether the special needs and opinions of children are ignored, in order to develop, implement,
and monitor mental health services for children in Taiwan. To ensure that mental health services are
available, accessible and acceptable, children's views should be taken into account, and children's needs,
9
Cited from the 2021 "Investigation Report on a Petition Case for Youth Suicide Prevention Strategies and Actions by the Control
Yuan".
10
The MOHW has set up a Suicide Prevention Hotline to provide 24-hour mental health counseling service and a children's hotline
service, and conducted an analysis of problems children called for and referrals by the end of 2019. A total of 225 calls were made
to the 1925 hotline from those under 14 years old, with 71 calls (31.56%) for anxiety and depression, 51 calls (22.67%) for family
problems, and 30 calls (13.33%) for academic problems. The referrals were as follows: 6 (2.67%) for psychological counseling;
6 (2.67%) for medical treatment; and 2 (0.89%) for welfare services.
11
The "Children's Mood Questionnaire - 2021 Survey on Children's Knowledge and Expression of Their Mood" by TFCF was
conducted from Oct 19-Nov 3, 2021. School-aged children between 7-18 years old were invited to share their moods, reasons
and ways of expressing their emotions, as well as their views on mental health professional resources. An online questionnaire
with convenience sampling was used, with 607 valid questionnaires, a confidence level of 95%, and 4% margin of error.
12
In 2019, a meeting of experts on children's medical care and informed consent was held, concluding that children's medical
symptoms differ from disease to disease and case to case, and that it is difficult to define through legislation or amendments the
age of children for them to exercise their right to be heard. Discussions on the practical approach to the right to consent to medical
treatment for patients between 12 and 18 years old are still ongoing.
7
expectations, culture, perspectives and language should be considered, in accordance with General
Comment No. 12. This will enable the implementation of General Comment No. 15 on the right of all
children to health care services.
4. It is recommended that the Government amend the law on children’s consent to medical treatment for
their mental health, so that children under 18 can exercise their right to consent to mental health treatment
and counseling. This can ensure that children who cannot obtain parental consent can receive mental
health services.
5. Under General Comment No. 1513, the Government should invest in the development of primary care to
allow for early detection and treatment of mental, emotional, and psychiatric problems in children, and
consult with children under CRC Article 12 to provide children's mental health services under this
principle.
6. We recommend the Government to examine and evaluate the implementation or lack thereof of the
"Three Levels of Self-Harm Prevention Program for Students on Campus". Regular mental health 14
examinations should be conducted in a manner that respects students' autonomy, privacy, and without
stereotyping or stigmatization. In order to respond to a growing trend of suicide in younger population,
regular mental health examinations should be conducted by inviting elementary and middle school
children to participate in besides high school students, or students should be invited to experience
professional counseling, in order to facilitate early detection/intervention, and regular follow-up.
Moreover, in addition to providing universal regular mental health examinations, special measures should
be added in accordance with the circumstances of mental health conditions described in General
Comment No. 15.15
13
General Comment No. 15 explicitly states that "States parties shall strive to ensure children's right of access to health care
services" and later in the second half of paragraph 38 states that States should invest in primary care for public health and
psychological support.
14
In the aforementioned TFCF survey, 87.0% of the children agreed that "mental health should be examined regularly" (see Table
2-8 in Attachment).
15
Various types of mental disorders in the first half of paragraph 38 of General Comment No. 15.
8
Attachment
Table 2-1. Number of suicide reporting for 0-17 age group, 2016 to 2020
Suicide reporting 0-17 Years old
Year
total number Number of reporting Percentage
2016 28,996 1,152 3.96
2017 30,619 1,381 4.49
2018 33,207 2,384 7.17
2019 35,324 3,390 9.58
2020 40,432 5,464 13.50
Source: Compiled from MOHW data
Table 2-2
Year 12-17 Years old 1-14 Years old
2017 1 Accident 1 Accident
2 Malignant tumor 2 Cancer
3 Suicide 3 Chromosomal abnormalities
4 Heart disease 4 Killed (by others)
5 Killed (by others) 5 Heart disease
2018 1 Accident 1 Accident
2 Malignant tumor 2 Cancer
3 Suicide 3 Chromosomal abnormalities
4 Heart disease 4 Heart disease
5 Chromosomal abnormalities 5 Pneumonia
2019 1 Accident 1 Accident
2 Suicide 2 Cancer
3 Malignant tumor 3 Chromosomal abnormalities
4 Chromosomal abnormalities 4 Influenza
5 Heart disease 5 Killed (by others)
2020 1 Accident 1 Accident
2 Suicide 2 Cancer
3 Malignant tumor 3 Chromosomal abnormalities
4 Heart disease 4 Heart disease
5 Chromosomal abnormalities 3 Suicide
Source: Compiled from MOHW data
Table 2-3. I think more and more children are depressed.
Response Percentage
Strongly disagree 8.7
Disagree 20.8
Agree 54.9
Strongly agree 15.7
Source: "Children's Mood Questionnaire - 2021 Survey on Children's Knowledge and Expression of Their
Mood" by TFCF
Table 2-4. Children's emotions during the week
Response None Sometimes (1-2 Often (3-4 days) Always (5-7 days)
days)
Depressed and even 78.4% 11.5% 4.3% 5.8%
want to die.
Source: "Children's Mood Questionnaire - 2021 Survey on Children's Knowledge and Expression of
Their Mood" by TFCF
9
Table 2-5. Do you know any channels that can help with bad mood, depression, etc.?
Response Percentage
I don't know any of them. 20.1%
I know more than one professional resource for mental health. 79.9%
Source: "Children's Mood Questionnaire - 2021 Survey on Children's Knowledge and Expression of Their
Mood" by TFCF
Table 2-6. If you are in a bad mood or depressed, which channels of help would you like to use?
Response Percentage
I wouldn't use any of them. 49.8%
I would use one of the professional resources for mental health. 50.2%
Source: "Children's Mood Questionnaire - 2021 Survey on Children's Knowledge and Expression of Their
Mood" by TFCF
Table 2-7. If I have depression, I can decide for myself whether I want to see a doctor or not.
Response Percentage
Strongly disagree 12.5%
Disagree 18.9%
Agree 47.8%
Strongly agree 20.8%
Source: "Children's Mood Questionnaire - 2021 Survey on Children's Knowledge and Expression of Their
Mood" by TFCF
Table 2-8. Mental health should be examined regularly, just like physical health.
Response Percentage
Strongly disagree 3.8%
Disagree 9.2%
Agree 58.8%
Strongly agree 28.2%
Source: "Children's Mood Questionnaire - 2021 Survey on Children's Knowledge and Expression of Their
Mood" by TFCF
Figure 2-1. Analysis of causes of suicide in recent years
60.0%
Depressive tendency,
50.3% depression or other
憂鬱傾向、罹患憂
Percentage of the age group
50.0% 47.1%
mental illness
鬱症或其他精神疾
42.1%
病Problems
家 庭成員問題 with family
40.0%
31.4% 34.1% 34.1% 33.6%
33.0% Problems adapting to
學校適應問題
27.0% 28.1%
30.0% 25.3%
school
24.3%
感情因素
Problems with
18.5% 17.4%
20.0% 16.4% relationship
14.8%
10.0%
2017 2018 2019 2020 Year
Source: Compiled from MOHW data
10
Issue 3: Digital Sexual Violence Against Children
Chapter 5 Protecting Children from Violence
Chapter 9 Special Protection Measures
I. Description and Status Quo Analysis
Article 19 of the CRC refers to "violence" as "all forms of physical or mental violence, injury or abuse,
neglect or negligent treatment, maltreatment or exploitation, including sexual abuse." In Taiwan, the "Children
and Youths Act" establishes a child protection system and the "Child and Youth Sexual Exploitation Act"
addresses the prevention and intervention of different forms of sexual exploitation. This issue will be presented
from the viewpoint of "protecting children from violence", where we believe that our Government's actions
are too fragmented, sporadic, passive, and not considered in an integrated manner. We will not discuss the
relevant government actions in the child protection system.
In recent years, most attention on the issue of digital sexual violence in Taiwan is focused on offenses
involving "intimate sexually explicit video"16 and "fake sexually explicit video"17, and the government has
proposed amendments to the laws in response. However, we believe that when the digital environment, sex
and violence are intertwined and become an emerging issue in society, our Government's policy and legal
response are too slow to meet the urgency. The "this helps more or less" mentality has led to the scattering of
relevant articles in different laws and regulations. The Government responds to this issue separately in various
pieces of legislation or amendments, which can be described as a policy statement that does not see the wood
for the trees, and can hardly provide the protection that children need in today's digital environment.
The TFCF recommends that the Government should review its commitment to the prevention of digital
sexual violence against children based on General Comment No. 13, General Comment No. 25, and the
Optional Protocol to the CRC on the Sale of Children, Child Prostitution and Child Pornography, and construct
a sound policy accordingly.
1. The Second State Report responds to paragraphs 10, 92 and 93 of the Concluding Observations on the
Initial Report by focusing on the prevention of sexual exploitation and protective measures18, and the
prevention of human trafficking19. In 2015, Taiwan amended the law to replace "sexual transaction"
prevention with "sexual exploitation" prevention, which implements Article 34 of the CRC.
2. However, to protect children's rights related to "sexuality" in the digital environment, we believe that the
concept of digital sexual violence among children should be examined in a holistic manner and a national
policy should be constructed accordingly. The competent authority for children's online safety in Taiwan
is iWIN, an inter-ministerial body established by law20. iWIN classifies online safety promotion into
16
"The Child and Youth Sexual Exploitation Act", as amended in 2015, specifies four types of sexual exploitation to be prevented.
The term "intimate sexually explicit video" refers to "filming a child or youth engaging in sexual intercourse or obscene acts, or
producing pictures, photographs, films, videotapes, compact disks, electronic signals or other objects that show a child or youth
engaging in sexual intercourse or obscene acts" in Article 2, Paragraph 1, Subparagraph 3 of the Act.
17
News on deepfake porn images in Taiwan -https://www.taiwannews.com.tw/en/news/4348360
18
The "Child and Youth Sexual E ct" is cited as a response in paragraphs 9, 368 and 369. There are also responses in Chapter 5
and 9. Paragraphs 118-120 and 333 describe state efforts to prevent sexual exploitation; paragraphs 121-125 cover protective
treatment for children who are sexually exploited. Responses also include paragraph 13 on stipulation in the "Teachers’ Act" to
disqualify teachers, paragraph 25 on the assistance to foreign children in sexual exploitation cases, and paragraph 29(c) on the
complaint mechanism for children’s placement due to sexual exploitation.
19
See paragraph 25 and 335.
20
iWIN, or Institute of Watch Internet Network, is an organization to protect children from certain online content, authorized by
Article 46 of the "Children and Youths Act", and jointly created by the National Communications Commission in cooperation
with related competent authorities, such as the Ministry of Health and Welfare, Ministry of Education, Ministry of Culture,
National Police Agency (MOI), Industrial Development Bureau and Department of Commerce (MOEA).
11
seven categories21 and reviews the classification system of online content, dividing the content harmful
to children's physical and mental health into six categories22. Meanwhile, the Gender Equality Committee
of the Executive Yuan has a separate classification for "digital/online gender violence," 23 which shows
that different authorities have different classifications based on different targeted groups of people and
issues.
3. The Second State Report presents the number of child sexual exploitation cases 24, but not on how such
cases are handled (see Table 3-1 in Attachment). From government statistics, the number of cases
involving intimate sexually explicit videos of children has been increasing year by year since 2017. By
the first half of 2021, its percentage reached 80%. In addition, from iWIN's 2020 data 25 , the
"pornography" category accounts for 35.9%.
4. In Taiwan, there are laws on child protection and prevention of child sexual exploitation, but the judicial
practice relies on a variety of legal instruments26 for the offense involving fake sexually explicit video.
These laws are not only fragmented, but are also applied only because an act of digital sexual violence
has the legal elements required by laws, and they are not specifically designed for offenses involving the
above-mentioned videos. In addition, the main purpose of these laws is to punish the perpetrator, rather
than to protect the victim. The judicial practice in Taiwan remains inconclusive as to what kind of legal
interests are protected in case of intimate or fake sexually explicit videos.
5. Different authorities in the child protection system in Taiwan have different responsibilities for different
activities and lack policies that are constructed for digital sexual violence against children. The definition
of digital sexual violence varies from ministry to ministry, based either on online safety protection,
physical and mental health protection for children, or gender equality promotion. Although some
members of the Executive Yuan's Child and Youth Welfare and Rights Promotion Group have raised
concerns and continue monitoring the issue, we have not seen actions to protect children's rights in the
digital environment among different ministries and agencies27.
6. In addition to the "Children and Youths Act" and the "Child and Youth Sexual Exploitation Act", the
"Criminal Code" also contains a chapter on Offenses Against Privacy. However, there are still discussions
21
iWIN divides online safety promotion into seven categories: private images, cyber bullying, online safety, online fraud, privacy
settings, Internet addiction, and parenting education.
22
iWIN proposes the "Exemplar Framework for Protection Levels of Online Content Harmful to Children's Physical and Mental
Health", which is divided into six categories: general pornography, child pornography, violence, horror, bloody, materials harmful
to children, and other harmful content. https://i.win.org.tw/news-detail.php？ SerialNo=12&Target=1
23
The Executive Yuan's Gender Equality Committee classifies digital/online gender violence into 10 categories: online stalking,
malicious or non-consensual distribution of personal information related to sex/gender, online sexual harassment, gender-based
derogatory or hateful speech or behavior, sexual blackmail, cyber manhunt, rape and death threats based on gender bias,
recruitment and enticement, illegal access to or theft of others' data, and falsification or theft of identity.
The civil society organization Women In Digital Initiative (WIDI) classifies digital gender violence into five categories and 21
forms: gender-based privacy violation, gender-based hateful acts and speech, digital sexual harassment and virtual sexual assault,
digital human trafficking & sexual exploitation, and video and image abuse. https://www.facebook.com/gogowidigo/photos/pcb.
258868875716339/258867602383133
24
See Attachments 5-18 to 5-21 and 9-14 to 9-17 of the Second State Report.
25
iWIN Transparency Report https://i.win.org.tw/report.php
26
Article 310 of the "Criminal Code" for slander, Article 309, Paragraph 1 for public insult; Article 235, Paragraph 1 for distribution
of obscene materials; Article 38, Paragraph 1 of the "Child and Youth Sexual Exploitation Act"; Article 41 of the "Personal
Information Protection Act"; Article 92 of the "Copyright Act".
27
It mainly focuses on clarifying the meaning and definition of existing laws. https://www.sfaa.gov.tw/SFAA/Pages/List.aspx？
nodeid=1280
12
on the future direction of the laws. For example, at the end of 2021, civil society groups expressed
different views when the competent authorities in Taiwan proposed the draft amendment to the "Criminal
Code"28.
II. Conclusions and Recommendations
1. General Comment No. 13, General Comment No. 2529, and the Optional Protocol to the CRC on the Sale
of Children, Child Prostitution, and Child Pornography are three international documents that TFCF
advocates as important grounds when devising a policy on digital sexual violence against children, and
we recommend that the Government should make clear plans based on them.
2. The unclear policy direction results in the fragmentation of laws and regulations. Therefore, we believe
that amendments to existing laws or creation of separate laws should be based on a clear policy position
and direction that takes into account digital sexual violence against children, in addition to having a
complete scope and definition of intimate and fake sexually explicit video. We suggest that the
Government consider the legislative systems and the content of legislation of other countries on various
forms of digital sexual violence against children in recent years30.
3. Active protection of victims
(1) Victim protection and recovery from a child's perspective is a trend in the discussion of prevention of
sexual violence against children. In the past, most discussions on gender-based violence lacked
victims' voices and experiences, which is why relevant initiatives have emphasized the need to include
the subjective feelings of victims. Therefore, protective measures such as physical and psychological
therapy and recovery should be explicitly stated in the law.
(2) Sexually explicit videos in the digital environment are difficult to manage, and it is important for
victims to be able to stop the distribution and remove them. It is recommended that the Government
should consider the removal of such videos as a national obligation and take comprehensive and
proactive actions such as assisting victims to take down the videos, retaining evidence, and preventing
circulation.
4. Legal principle and education on sexually explicit videos
(1) The relevant legislation in other countries mostly punishes those who "produce/sell" sexually explicit
videos, while the regulation for "viewing/purchasing/possessing/transmitting" varies from country to
country. We believe that the Government should review our national legal system to confirm its
position before determining the scope of regulation.
(2) Digital sexual violence against children is a topic that will be increasingly discussed for better practice
and protection in the digital environment. We believe that this issue is directly related to the policy
planning of gender education in our country, and that the Government should respond more actively
and comprehensively to gender issues in the digital environment.
28
https://www.moj.gov.tw/2204/2795/2796/123192/post
29
General Comment No. 25 provides a clear position and perspective on the implementation of the general principles, and its
general implementation measures provide clear guidelines at various levels and aspects.
30
For sexually explicit videos, South Korea passed an amendment to the "Act On Special Cases Concerning the Punishment Of
Sexual Crimes" in 2020 following the Nth Room case to punish the production or distribution of fake sexually explicit videos.
However, the amendment did not punish "purchase and possession" that resulted in online dissemination of the materials.
Compelled by advocacy from various stakeholders, more amendments to the Act, the "Criminal Code", and the concealment of
criminal proceeds have been passed, and the minimum age for consent to sex has been raised from 13 to 16 years old. In addition,
the penalties for possession, purchase, storage, and viewing of illegal pornographic images have been stipulated.
https://www.mirrormedia.mg/story/20210504pol002/
13
Attachment
Table 3-1
Filming a child
Causing a child or
or youth
youth to act as a
Causing a child engaging in
host/hostess in a
or youth to sexual
bar or club or
engage in sexual Using a child or intercourse or
engage in acts
intercourse or youth to engage in obscene acts, or
associated with
Total obscene acts in sexual intercourse producing other
tour escort and
exchange for or obscene acts for objects that
singing or dancing
monetary or others to watch show a child or
companion
other youth engaging
services that
considerations in sexual
involve sexual
intercourse or
activities
obscene acts
2017 1,117 328 29.4% 19 1.7% 581 52.0% 189 16.9%
2018 1,220 324 26.6% 72 5.9% 546 44.8% 278 22.8%
2019 1,213 188 15.5% 36 3.0% 717 59.1% 272 22.4%
2020 1,696 183 10.8% 44 2.6% 1,333 78.6% 136 8.0%
2021 Jan-Jun 902 88 9.8% 19 2.1% 739 81.9% 56 6.2%
Source: Compiled from MOHW data
14
Issue 4: Inappropriate Corporal Punishment of Students by Teachers
Chapter 5 Protecting Children from Violence
Chapter 8 Education, Leisure and Cultural activities
I. Description and Status Quo Analysis
1. The Concluding Observations on the Initial Report recommended that the Ministry of Education take all
necessary measures to ensure that the ban of corporal punishment on campus is effectively enforced,
teachers who use corporal punishment are appropriately sanctioned, and a safe and confidential student
complaint mechanism is established and implemented effectively.
2. The "Educational Fundamental Act", "Teachers' Act", "Early Childhood Education and Care Act"
stipulate that students should not be subject to any corporal punishment. Teachers who discipline students
with corporal punishment or illegal punishment should be sanctioned according to the laws.
3. According to the "Campus Security Analysis Report at All Levels of Schools" by the Ministry of
Education, the number of incidents of corporal punishment by teachers against students in high school
and below has been increasing year by year, resulting in an increase in the number of injuries and illnesses
among children, and even serious injuries. Corporal punishment by teachers against kindergarten and
elementary school students has been increasing year by year, and the number has doubled in 2019
compared to 2016 (see Table 4-1). However, a clear discrepancy is seen in the Second State Report
between the numbers of teachers who were given administrative sanctions for corporal punishment in
elementary/high schools and penalties for such punishment in kindergartens, and the numbers of
"incidents of corporal punishment by teachers against students" in the Campus Security Report, with a
higher discrepancy in kindergartens (see Table 4-2).
4. Although Taiwan has a "School Life Questionnaire - Survey on Corporal Punishment", which targets
students in grades 5-9, the majority of reported cases of corporal punishment by teachers are in
kindergarten and elementary schools (see Table 4-1). The importance of a complaint and monitoring
mechanism for young students' reactions to corporal punishment is even more important, and it is not
clear what the Government has done to establish one.
5. The Government has established the "Research Project on the Implementation of the CRC in Teachers'
Counseling and Disciplinary Actions in High Schools and Below" to provide schools and teachers of all
grades with the opportunity to examine their practices. According to "Teachers' Act", teachers inflict
serious physical and psychological harm on students through corporal punishment, so a mechanism for
professional review of teachers should be established and teachers should be sanctioned. However, there
is a lack of information on the implementation, actual results, and effectiveness of this mechanism.
6. According to the MOHW, the Ministry of Education received 464 teachers for CRC training in 2018 and
93,098 teachers in 2019. Only 37.20% of all teachers were trained (see Table 4-3). Most teachers have
not received CRC-related training, and the effectiveness of the training in enhancing teachers'
understanding of children's human rights and reducing corporal punishment has yet to be evaluated.
II. Conclusions and Recommendations
1. We are pleased to see the amendments to the "Teachers' Act" and the regulations related to the
"Guidelines for Schools in the Formulation of Teacher Counseling and Discipline of Students". The
Government should further explain the results of the implementation and monitoring of the self-
assessment of disciplinary actions by schools and teachers in order to fulfill the CRC, and the professional
review mechanism for corporal punishment of students.
2. We ask the Government to respond to the questions in the following paragraphs as well, starting with
“What’s the evaluation result of the implementation of teacher training and development and its
effectiveness in improving counseling and disciplinary strategies?”
3. What is the status of the establishment and implementation of the complaint mechanism for students
subject to corporal punishment?
4. What is the Government's strategy to respond to the increasing number of reported cases of corporal
punishment in kindergartens and elementary schools?
15
5. As the number of high school and junior high school teachers who were administratively sanctioned for
corporal punishment is higher than the number of reported cases, were the cases under-reported or was
there inaccurate information about sanctions?
6. It is recommended that a study of teachers' use of corporal punishment on students be conducted to
identify effective strategies for teacher training in counseling and disciplining students.
16
Attachment
Table 4-1. Incidents of teachers' use of corporal punishment on students enrolled in high school and below
Level of education of students subject to corporal
punishment
Corporal Student injuries,
Year Senior and
punishment Elementary Junior high illnesses
Kindergarten vocational
school school
high school
2016 177 cases/ 20 cases 92 cases 50 cases 15 cases/ 54 cases
325 persons 25 persons 184 persons 89 persons 27 persons
2017 174 cases/ 14 cases 112 cases/ 34 cases/ 14 cases/ 61 cases
324 persons 21 persons 205 persons 59 persons 38 persons (1 with serious
injury)
2018 236 cases/ 40 cases/ 137 cases/ 58 cases/ 8 cases/ 77 cases
544 persons 75 persons 332 persons 119 persons 18 persons (1 with serious
injury)
2019 306 cases/ 53 件/ 167 cases/ 66 cases/ 20 cases/ 85 cases
625 persons 321 persons 141 persons 60 persons (3 with serious
103 persons
injury)
Source: Compiled from the 2016-2019 MOE's Campus Security Analysis Report at All Levels of
Schools
Table 4-2. Teachers subject to administrative sanctions for violation of law in corporal punishment incidents
Unit: persons
Elementary Junior high Senior high
Kindergarten
school school school
2016 ？ 133 70 30
2017 ？ 111 55 31
2018 0 104 56 34
2019 5 124 53 39
2020 2 159 68 38
Source: Compiled from the Second State Report
Table 4-3. Number of teachers at each school level in 2020 Unit: Number of teachers
Total Elementary Junior high Senior high
Kindergarten
school school school
251,536 56,771 96,990 46,486 51,289
Source: Compiled from data of the Gender Equality Committee of the Executive Yuan
17
Issue 5: Alternative Care
Chapter 6 Family Environment and Alternative Care
I. Description and Status Quo Analysis
1. The Concluding Observations on Initial Report notes that the number of children in residential care does
not drop significantly while the number of children in non-State residential care providers continues to
grow. The Review Committee recommended that Taiwan support and strengthen family functions in
accordance with the United Nations Guidelines for the Alternative Care of Children and promote family-
based alternative care by relaxing the eligibility and subsidy thresholds for kinship caregivers and
increasing the proportion of kinship care. In addition, the Review Committee drew attention to the need
for care for children with special needs in family-based foster care policies, and a particular concern of
the Committee is that parents can arrange the placement of their children without any involvement of the
court in assessing whether the placement is necessary.
2. Status quo of out-of-home placement
(1) Out-of-home placement is divided into three categories: emergency placement, continuous placement,
and commissioned placement, according to Taiwan's regulations 31 . In the following, emergency
placement and continuous placement are combined under the term "protective placement" and
statistics are provided accordingly. Based on the data of out-of-home placement for children from the
Department of Statistics, MOHW (see Table 5-1), there is an increase in both protective placement
and commissioned placement in 2020 compared to 2019.
(2) In paragraph 165 of the Second State Report, the Government states that in the commissioned
placement process32, the number of placement cases initiated by parents has significantly reduced in
2019 through the group decision making and evaluation mechanism 33, but general placement34 still
accounts for about 10% of foster care placement. The Government does not have comprehensive
intervention strategies and measures for children who are still in commissioned placement. In the data
collected under the Alternative Care Policy for Children, the Government reports that a total of 5,174
children were in placement by 2020, 11.89% were transferred from protective placement to
commissioned placement, and 53.73% were in commissioned placement. The majority of children
were placed without court intervention. The strategies and their effectiveness of reducing placement
initiated by parents and counseling families with children under this form of placement to
appropriately return the children to family care were not described.
(3) In the 2016-2020 out-of-home placement statistics from SFAA, MOHW (see Tables 5-2 and 5-3),
children in residential care decline year by year, but still account for 55% of total placement; the
increase in the proportion of foster care placement and kinship placement is still limited. In the past
five years, the number of families that commit to family foster care services has increased only slightly
each year (see Table 5-4), and it is not easy to recruit foster families. In 2019, the Children and Youths
Act was amended35, and in 2021, a provision was added that when determining kinship placement fee,
foster care placement fee should serve as a reference standard 36 , in order to encourage kinship
placement. However, the strategies and effectiveness of kinship placement after the amendment have
not been explained.
(4) Based on the data from the Foster Care Outcome Report37 (see Table 5-5), most children in foster care
are under protective placement, and the number of children entering foster placement is increasing.
Among the statistics of different types of out-of-home placement, only the data of foster placement
31
Article 56 and 62 of the "Children and Youths Act"
32
See Attachments 6-25 of the Second State Report.
33
The number of commissioned placement by parents dropped from 408 in 2016 to 76 in 2020.
34
The "general placement" in foster care is also known as "commissioned placement". The following descriptions use the term
"commissioned placement", but "general placement" is used when compiling government data.
35
An provision in Article 56 of the "Children and Youths Act" was added to include relatives and third parties as eligible candidates
for placement of children.
36
In 2020, the "Guidelines for Municipality/City/County Government to Place Children and Youths with their Relatives" were
promulgated by an Official Letter and the "Guidelines for Foster Families of Children and Youths" were revised in 2021.
37
Report on the results of foster care services for children by SFAA, MOHW
18
shows the sources (general/protective/judicial diversion placement). The lack of statistics on both
kinship and residential placement makes it impossible to examine whether the government has made
improvement in response to paragraph 46 in Concluding Observations on the Initial Report.
(5) The central government has multiple agencies responsible for the out-of-home placement of children38,
so it is harder to plan for integrated and comprehensive services. The lack of an overall national policy
on out-of-home placement for children and the absence of specific indicators for the quality of care
means that there is no clear picture of the execution and quality of out-of-home placement. While the
central government's efforts are not integrated, it is difficult for local governments to achieve
integrated planning, since they mostly provide such services in accordance with policy directions,
benchmarks, and plans set by the central government39.
3. Alternative Care for Children with Special Needs
(1) Children under placement with different special circumstances have needs that require specific
intervention and care strategies. Government statistics only categorize the characteristics of children
in out-of-home placement by indigenous status and physical and mental disabilities (see Tables 5-6),
and lack categories for special groups such as sexual minorities, at-risk youth, and sexually exploited
children. There should also be further clarification on the strategies to meet the needs of different
groups of children.
(2) According to the data from SFAA (see Tables 5-7 and 5-8), the health status and age distribution of
children receiving foster care services are clearly categorized in terms of developmental delays,
physical and mental disabilities, attention deficit/hyperactivity disorder, and other related diseases and
different age groups, so that the provision of services for children with special needs and foster children
can be accurately assessed. However, children in residential placement have the highest number of
physical and mental disabilities, and yet there is a lack of further analysis, disaggregated data (e.g., by
age, medical conditions, etc.), and strategic actions for children with physical and mental disabilities.
We believe that there should be detailed breakdown data by health to facilitate a clearer understanding
and better services for children with special needs in placement.
II. Conclusions and Recommendations
1. Article 62 of the "Children and Youths Act" provides for the parents to apply for placing children. For
children who have been referred by their parents for out-of-home placement prior to the modification to
the evaluation process of placement decisions, we ask the Government to explain the subsequent plans
and measures for children to return home and for families to improve their financial situation with
counseling assistance.
2. The Government should also explain the strategies and effectiveness of developing and maintaining
kinship and foster care placements, as the majority of out-of-home placement for children in Taiwan
remains to be residential.
3. In order to boost the proportion of kinship placement, the Government should provide information on the
current status of kinship placement (gender, age, duration of placement, reasons for placement, etc.)
besides basing its fee on foster placement and including kin and third parties as potential placement. We
ask the Government to discuss the strategies for increasing kinship placement through service promotion,
specific service structure, selection and review mechanism, and resolution of difficulties in
implementation.
4. It is recommended to integrate the central government's out-of-home placement authorities in order to
facilitate the promotion and implementation of the overall alternative care policy.
5. Regarding children with special needs, the Government needs to provide information on the health status
and age distribution of children in residential care, as well as training arrangements for staff in residential
care for special children, the effectiveness of the process and other relevant measures, and how to ensure
a complaint mechanism for children in out-of-home placement.
38
Kinship placement services are managed by the Department of Protective Services, MOHW. Other placement resources (foster
care/group home/residential placement) are managed by the SFAA, MOHW.
39
"An Estimate of Out-of-Home Placement Needs and Evaluation of the Effectiveness of the Current Placement Model" (Chao,
S.J., Hu, C.Y., & Peng, S.Y., 2021)
19
Attachment
Table 5-1. Children's out-of-home placement status
Number of Protective placement (persons)
Commissioned
Year children in Emergency Continuous placement
placement (persons)
placement placement
2019 842 830 698 91
2020 929 948 890 147
Source: Compiled from data from Department of Statistics, MOHW
Table 5-2. Statistics on out-of-home placement of children
Out-of-home placement
Year Residential Total
Kinship placement Foster placement
placement
2016 - 1,622 - -
2017 - 1,621 3,034 -
2018 - 1,605 3,016 -
2019 - 1,550 2,822 -
2020 244 1,583 2,651 4,856
Jan-Jun, 2021 180 1,631 2,623 4,853
Source: Compiled from the Second State Report; Department of Statistics, MOHW
Table 5-3. Category and number of out-of-home placement Unit: Number of persons (%)
Category of out-of-home
2020 Jan-Jun, 2021
placement
Kinship placement 244(5.0%) 180(3.7%)
Foster placement 1,583(32.6%) 1,631(33.6%)
Residential placement 2,651(54.6%) 2,623(54.1%)
Group home placement 51(1.1%) 59(1.2%)
Other placement 327 (6.7%) 360 (7.4%)
Total 4,856 4,853
Source: Compiled from the Second State Report; Department of Statistics, MOHW
Table 5-4. Number of foster family by year
Year # of foster family # of outgoing foster family # of incoming foster family
2016 1,334 100 84
2017 1,449 73 104
2018 1,479 131 102
2019 1,484 96 137
2020 1,520 175 139
Source: Report on the results of foster care services for children by SFAA, MOHW
Table 5-5. Sources of family foster care cases
General Protective Court diversion
Category
placement placement placement Subtotal Total
Year
# % # % # %
Children 64 10.9% 484 82.5% 0 0% 548
2019 587
Youths 3 0.51% 36 6.13% 0 0% 39
Children 59 8.73% 555 82.1% 0 0% 614
2020 676
Youths 1 0.15% 61 9.02% 0 0% 62
Source: Report on the results of foster care services for children by SFAA, MOHW
20
Table 5-6. Overview of out-of-home placement of children
Subtotal by identity Subtotal by health
Total
Category General Indigenous General Disabilities
4,853 4,070 783 4,176 677
Kinship
180 142 38 162 18
placement
Foster families 1,631 1,370 261 1,416 215
Group home 59 53 6 47 12
Residential
2,623 2,187 436 2,335 288
placement
Other 360 318 42 216 144
Source: Compiled from data from Department of Statistics, MOHW
Table 5-7. Health status of children in foster care
Year 2019 2020
Health status Persons Percentage Persons Percentage
Normal 1,349 61.43% 1316 58.96%
Heart disease 0 0.00% 0 0.00%
Premature infant 68 3.10% 69 3.09%
Disabilities 251 11.43% 275 12.32%
Attention
deficit/hyperactivity 145 6.60% 164 7.35%
disorder
Developmental delay 378 17.21% 402 18.01%
Infectious diseases 1 0.05% 1 0.04%
Special medical condition 16 0.73% 19 0.85%
Pregnancy 1 0.05% 0 0.00%
Physical injury 2 0.55% 16 0.72%
Other 159 7.24% 204 9.14%
Source: Report on the results of foster care services for children by SFAA, MOHW
Table 5-8. Age distribution of children in foster care
Year 2016 2017 2018 2019 2020
Age Persons (%) Persons (%) Persons (%) Persons (%) Persons (%)
Under 2 207 (8.9) 216 (9.4) 119 (5.1) 157 (7.2) 180 (8.1)
2-under 6 729 (31.2) 801 (34.7) 832 (36.0) 864 (39.3) 841 (37.7)
6-under 12 1,033 (44.2) 945 (41.0) 938 (41.0) 847 (38.6) 904 (40.5)
12-under 15 246 (10.5) 226 (9.8) 270 (11.7) 208 (9.5) 182 (8.2)
15-under 18 93 (4.0) 97 (4.2) 124 (5.4) 95 (4.3) 100 (4.5)
above 18 29 (1.2) 24 (1.0) 30 (1.3) 25 (1.1) 25 (1.1)
Total 2,337 (100) 2,309 (100) 2,313 (100) 2,196 (100) 2,232 (100)
Source: Report on the results of foster care services for children by SFAA, MOHW
21
Issue 6: Adolescent Pregnancy
Chapter 7 Disabilities, Basic Health and Welfare
I. Description and Status Quo Analysis
1. The Review Committee is concerned about the high percentage of teenage pregnancies and recommends
fostering positive attitudes about sexual behavior among children; providing appropriate information and
support services to a girl who becomes pregnant; and educating parents to understand a child’s right to
sexual and reproductive health.
2. Taiwan has the "Genetic Health Act", "Gender Equity Education Act", and "Guidelines for the Protection
of Students' Right to Education and Counseling Assistance in Pregnancy". These laws and guidelines
promote sex education, reproductive health, gender equity education and healthy safe sex practices to
prevent unintended pregnancies among teenage girls; they also focus on abortion, the right to education
and counseling interventions. In accordance with the "Child and Youth Sexual Exploitation Act" and
"Children and Youths Act", attention is also directed to the reporting of sexual exploitation and referrals
to counseling resources for pregnant teenage girls .
3. In Taiwan, a teenage pregnancy service process has been established, including the "Teenage Pregnancy
Consultation Hotline (0800-257085)", "Teenage Pregnancy Help Website" (http://www. 257085.org.tw/),
"MOE's policy for the Protection of Students' Right to Education and Counseling Assistance in
Pregnancy," "Friendly Medical Services for Teenagers," and reporting of child sexual abuse or sexual
exploitation required by law. In 2019 and 2020, counties and cities started to provide "Services for
Pregnant Minors and Follow-up Counseling Program" and visit and care for vulnerable families.
4. Teenage girls' sexual behavior and contraception
According to a sampling survey conducted by the Health Promotion Administration (HPA), MOHW40,
in 2014, 2016 and 2018, the number of young girls aged 13-15 who had sexual intercourse showed a
rising trend year by year; in 2013, 2015 and 2017, the number of young girls aged 15-17 who had sexual
intercourse decreased slightly, but still remained at more than 10% of all teenage girls. As for the rate of
contraception in recent sexual intercourse, it shows that nearly 15% of young girls who have had sexual
intercourse do not use contraception and are likely to become pregnant.
5. Current status of underage marriage and pregnancy among adolescent girls
(1) Government data show that both the number of underage girls getting married and the overall marriage
rate are declining, but there are still about 2,000 young girls aged 15-19 entering marriage as minors
each year for the past five years. (Tables 6-1 and 6-2 in Attachment)
(2) The number of teenage pregnancies is not available from the relevant government data. The number
of pregnant women under the age of 20 who received medical care (Table 6-3 in Attachment) can only
be determined from the number of live births and stillbirths reported for women under the age of 20.
However, it is not possible to distinguish the number of births to teenage girls under the age of 18 from
the data, nor is it possible to find out the number of abortions to teenage girls from government data,
and there is no data on abortions carried out through informal channels. Therefore, the actual number
of teenage girls who are unmarried and pregnant is unclear.
6. The right to education for pregnant teenage students
Government data show that the number of pregnant high school students in 2018 is significantly higher
than the previous year (Table 6-4) and 25-30% of pregnant high school students take a break from their
studies due to pregnancy. There are no details on the Government's interventions and counseling for
pregnant students and those who quit school either temporarily or for good, and whether they return to
school. There are no statistics on whether pregnant students have induced abortion and remain enrolled
in school either.
40
Teenage girls aged 13-15 who have had sex: 5.0% in 2014, 5.3% in 2016, and 6.2% in 2018, showing an increasing trend year
by year. Teenage girls aged 15-17 who have had sex: 11.1% in 2013, 10.4% in 2015, and 10.2% in 2017. The percentage has
slightly decreased, but remains at more than 10% of all teenage girls. Teenage girls aged 15-17 who have had sex and used
contraception in their most recent sexual intercourse: 86.6% in 2013, 88.5% in 2015, and 87.9% in 2017.
22
7. Induced abortion for teenage girls
The Department of Statistics, MOHW, publishes data on abortions for married and unmarried women
aged 20-49 but not for teenage girls under 18. It is not clear whether the Government has sufficient data
and a strategy to respond to the situation.
8. Teenage girls giving birth to children
(1) In the past five years, the number of teenage girls giving birth has been decreasing year by year, but
there are still more than 1,000 teenage pregnancies each year. Among them, there are still teenagers
under the age of 15 who become pregnant and give birth (Table 6-5).
(2) The fertility rate of women in all age groups shows a decline, but the rate among teenage girls aged
15-19 remains at 4‰ without significant decline (Table 6-6).
(3) According to the data reported by HPA, the number of teenage girls aged 15-19 decreases year by year
from 2016 to 2020, and the number of babies delivered by them also decreases year by year, but infant
mortality rate increases to 3.53‰ in 2020 (Table 6-7). The HPA reported (2017)41 that a correlation
between the births of young, under-educated adolescent girls and infant mortality is a cause for concern.
9. Services for teenage parents
(1) The HPA has been promoting the "Care and Follow-up Program for Perinatal High-Risk Pregnant
Women and Children" in conjunction with local government health bureaus since 2017. The number
of girls under 20 years old admitted to the program due to socioeconomic risk factors has been
increasing year by year: 103 in 2017, 250 in 2018, 424 in 2019, and 1,341 in 2020.
(2) In the 2019-2020 review report by the SFAA on the "Teenage Pregnancy and Follow-up Counseling
Services", sources of cases in 11 counties and cities (including the six special municipalities) were
calculated. The number of school referrals is significantly lower than that of reported pregnancies
(Tables 6-4 and 6-8); the number of referrals from counseling hotlines and websites and the number
of self-referrals are lower than other sources (Table 6-8).
II. Conclusions and Recommendations
1. The Government may further explain its efforts to monitor and analyze the number of teenage
pregnancies, prenatal checkups, births, and abortions, as well as the effectiveness of its policy programs.
2. The Department of Household Registration, Ministry of the Interior, reported 1,551, 1,426, and 1,292
teenage pregnancies under the age of 18 in 2016, 2017, and 2018 respectively. The Ministry of Education
reported 338, 314, and 412 teenage pregnancies in 2016, 2017, and 2018 among teenage girls enrolled in
elementary, middle, and high schools in Taiwan. There is a lack of government information on counseling
and resource referrals for teenage girls who drop out of school either for good or temporarily due to
pregnancy, and for those who do not continue their education, as well as information on the effectiveness
of measures and the creation of a friendly environment (free from discrimination and bullying) to support
the continuation of education for teenage girls after pregnancy.
3. As mentioned in paragraphs 27, 31, and 33 of CRC General Comments No. 20, adolescents requiring
particular attention are vulnerable to early pregnancy and sexual exploitation resulting in pregnancy due
to unfavorable circumstances. The Government can clarify whether the statistics on pregnancy, childbirth,
and abortion of teenage girls identify adolescents requiring particular attention (sexually abused,
indigenous, physically and mentally disabled children, and LGBT population), as well as how effective
current services are.
4. The Government can explain what the children's demand for sex education, gender equality concepts and
teaching materials is, and whether the Government has a good understanding of them as a reference for
promoting policies and measures.
41
The Report on Health Inequities in Taiwan by the HPA, MOHW (2017) states that in 2004-2006, the infant mortality rate of
mothers with less than a high school education was 50% higher than that of mothers with a high school education or above; by
2008-2010, the difference widened to 80%. The correlation between births to teenage girls with low educational attainment and
infant mortality rate (among live births) is a subject of concern.
23
5. The Government may further clarify whether there is any research and collection of views on early
pregnancy of unmarried teenage girls and parenting in Taiwan as a basis for formulating evidence-based
policy measures.
6. It is recommended to conduct empirical studies on teenage pregnancy and abortion in order to promote
more responsive policies on their health, right to education, and social integration.
7. Paragraph 31 of CRC General Comment No. 4 notes the Government's responsibility to provide
information about potential harm of early pregnancy and unsafe abortion and offer health care services
needed. The Government also needs to be aware of the negative emotional impact on parenting when
young mothers do not receive support. The Government should explain the outcomes and effectiveness
of promoting the Teenage Pregnancy Consultation, hotline and services it has established. It could also
provide statistics on the usage and effectiveness of the "Friendly Medical Services for Teenagers". Please
provide more information.
24
Attachment
Table 6-1. Marital status of underage females Unit: Number of persons
Age Under 15 15-19
Marital Unmarried Married Divorced Widowed Unmarried Married Divorced Widowed
status
2016 1,505,815 0 0 0 684,366 2,743 344 3
2017 1,482,916 0 0 0 647,437 2,421 340 6
2018 1,463,506 0 0 0 627,788 2,206 303 7
2019 1,446,549 0 0 0 596,770 2,059 303 4
2020 1,424,336 0 0 0 549,533 1,809 262 3
Source: Complied from data from Department of Household Registration, MOI; Gender Equality Committee
of the Executive Yuan
Table 6-2. Marriage ratio of underage females aged 15-19 Unit: Number of persons, ‰
Year Population of Number of women aged 15-19 who Marriage ratio of teenage
teenage girls are married, divorced, or widowed girls ‰
2016 687,456 3,090 4.495
2017 650,204 2,767 4.256
2018 630,304 2,516 3.992
2019 599,136 2,366 3.949
2020 551,607 2,074 3.760
Source: Complied from data from Department of Household Registration, MOI; Gender Equality Committee
of the Executive Yuan
Table 6-3. Number of live births and still births to mothers under 20 years old Unit: Number of persons
Year Total Number of live births Number of still births
2016 3,044 2,972 72
2017 2,794 2,722 72
2018 2,477 2,419 58
2019 2,389 2,334 55
2020 2,237 2,165 72
Source: Compiled from data from HPA, MOHW (2021); Statistics of Birth Reporting System (2016-2020)
Table 6-4. Number of pregnant students remaining in senior high schools and below
Unit: Number of persons, %
Academic Year Number of pregnant Number of students Ratio
students remaining in school
Senior high Junior high Senior high Junior high Senior high Junior high
school school school school school school
2016 233 105 165 88 70.78 83.81
2017 238 76 177 70 74.37 92.11
2018 325 87 246 85 75.70 97.70
Source: MOE; the Second State Report
Note: 0 pregnancies among elementary school students during 2016-2018
25
Table 6-5. Number of infants born by mother's age Unit: Number of persons
Year Under 15 15 16 17 18 Total
2016 20 73 255 431 772 1,551
2017 20 59 207 427 713 1,426
2018 17 55 170 390 660 1,292
2019 18 43 148 327 648 1,184
2020 10 40 151 275 553 1,029
Source: Department of Household Registration, MOI
Table 6-6. Women's fertility rate Unit: ‰
Year General Age groups Total
fertility rate 15-19 20-24 25-29 30-34 35-39 40-44 45-49 fertility rate
2016 34 4 22 63 90 47 8 0 1,170
2017 33 4 21 59 85 47 9 0 1,125
2018 31 4 20 55 80 44 9 0 1,060
2019 30 4 20 53 79 44 9 1 1,050
2020 28 4 19 48 74 43 9 1 990
Source: Complied from data from Department of Household Registration, MOI
Table 6-7. Reported live births and stillbirths by the age of mother (under 20 years old)
Unit: Number of persons, ‰
Population of Fertility rate of Total Live Stillbirths
teenage girls teenage girls ‰ births
Year Number ‰ Number ‰ Number ‰
2016 687,456 4.428 3,044 1.45 2,972 1.43 72 2.96
2017 650,204 4.297 2,794 1.42 2,722 1.40 72 3.26
2018 630,304 3.930 2,477 1.35 2,419 1.34 58 2.67
2019 599,136 3.987 2,389 1.33 2,334 1.33 55 2.67
2020 551,607 4.055 2,237 1.36 2,165 1.33 72 3.53
Source: Compiled from data from HPA, MOHW (2021); Statistics of Birth Reporting System (2016-2020);
MOI (2021)
*Note: Fertility rate of teenage girls aged 15-19 = number of live births to women in the 15-19 age group ÷
number of women aged 15-19 X 1000 ‰.
Table 6-8. Sources of "Teen Pregnancy Services and Follow-Up Counseling Services" cases
Year School Healthcare/medical Teenage Social Client Household/civil Department Other Total
referral institution referral Pregnancy welfare (family administration of Social
Consultation agency member) Welfare
Hotline referral application
referral
2019 45 413 20 179 52 182 158 135 1,189
1st 59 484 20 53 63 173 167 24 1,018
half of
2020
Source: Report on the review of the effectiveness of the "Teenage Pregnancy Services and Follow-up
Counseling Services" and the research findings by SFAA, MOHW (2021)
26
Issue 7: Educational Resources
Chapter 8 Education, Leisure and Cultural activities
I. Description and Status Quo Analysis
1. In paragraph 74 of the Concluding Observations on the Initial Report, the Review Committee
acknowledges that the Government is committed to allocating additional resources to the education of
children in remote and rural areas. However, the Committee remains concerned that the allocation of
resources may not be sufficient to ensure quality education for children in these areas. The Review
Committee recommends that the Government continue to provide additional resources for rural and
remote education and adopt measures to monitor the extent to which children enjoy their right to
education, consistent with articles 28 and 29 of the CRC.
2. In response to paragraph 74 of the Concluding Observations on the Initial Report, the Second State Report
points out that the Ministry of Education has established the "MOE Consolidated Website for School
Subsidy" 42 to process funding applications in accordance with the "MOE Funding Guidelines to
Subsidize Schools in Remote, Rural, Non-Mountainous and Non-Urban Areas". In addition, on
December 6, 2017, Taiwan promulgated the "Act for Education Development of Schools in Remote
Areas" and on March 11, 2021, added the "Standards Governing the Determination of Levels and
Classification of Schools in Remote Areas" in response to paragraph 74 of the Concluding Observations
as a follow-up action Plan.43 Schools are classified as "remote," "exceptionally remote," or "extremely
remote"44, and are given different ratios of funding. However, this classification of remote areas does not
tell us how much funding is available for children in need, and there is a lack of statistical information.
3. A survey conducted by the Taiwan Trend Research in 2021 during the pandemic45 revealed that the lack
of e-learning devices and stable Internet connection affect the quality and effectiveness of students' online
learning. However, TFCF's 2020 survey46 shows that the e-learning devices and Internet resources for
42
https://sca.ntcu.edu.tw/SCA/
43
To respond to paragraph 74 of the Concluding Observations, the first objective of the action plan is to improve the laws and
regulations related to the development of education in remote areas; the second objective is to allocate funds to provide the
infrastructure and equipment needed by schools in remote areas and assistance to students in meeting their educational needs.
44
The classification of schools in remote areas is based on transportation, culture, living function, digital environment, and socio-
economic conditions as stipulated in Article 4, Paragraph 1 of the "Act for Education Development of Schools in Remote Areas",
which includes 16 assessment indicators. The number of extremely remote, exceptionally remote, and remote schools at each
level of education below senior high school on the island of Taiwan was calculated according to the quantitative model of the
"Standards Governing the Determination of Levels and Classification of Schools in Remote Areas". The local school authorities
on the island of Taiwan shall identify and prepare a list of schools in remote areas based on the previous number of schools and
submit it to the central government for review and approval.
45
Taiwan Trend Research conducted a survey in 2021 on "New Life under Level 3 Alert - Work, Learning and Parenting" from
May 21 to June 9 in the wake of the pandemic. The results indicate that 90% of the students have encountered difficulties in
online learning. 44.9% of the respondents experience "poor signal quality" , accounting for the highest percentage, 38.1% have
"slow Internet access at home", 27.0% have "insufficient computer peripherals", 18.5% have "insufficient computers and tablets",
and 4.1% have "no Internet access at home".
46
"2020 Anti-Poverty Generation Survey - Educational Resource Needs of Disadvantaged Children": 1. The survey covered 23
TFCF branch offices throughout Taiwan, including 22 counties and cities, of which no children were sampled from Matsu, an
outlying island. 2. The survey was conducted from March 25, 2020 to April 30, 2020; 3. The survey was conducted through
online questionnaires or paper-based questionnaires; 4. The target population of the survey consisted of students receiving
financial assistance and were in grades 3-7 in the second semester of the 2019 academic year and their families. The population
27
economically disadvantaged children are even more inadequate; furthermore, the lack of e-learning
devices and stable Internet connection for disadvantaged children in remote areas is further demonstrated
by regional differences between urban and remote areas. 47 The above mentioned e-learning landscape
does not ensure children's right to education and quality of education.
4. According to our "2019 Community Development Project Study"48 conducted in 2020, there is not only
a gap between urban and remote areas in terms of e-learning devices, but also in the way children use
such devices and information, which significantly affect the quality and effectiveness of their learning.
It is clear that the lack of digital literacy and people accompanying children to use digital devices affects
the process of e-learning.
II. Conclusions and Recommendations
1. In the midst of the pandemic, all children in Taiwan face e-learning issues, but disadvantaged children
face more difficulties and challenges in today's e-learning-based teaching environment. It is
recommended that the government should consider the coverage of digital devices and the accessibility
of the Internet when formulating policies related to e-learning in order to meet the needs of children.
2. The MOE has introduced the "Standards Governing the Determination of Levels and Classification of
Schools in Remote Areas", but based on our practical experience, the standards do not truly reflect the
full picture. It is recommended that the Government should further examine whether the Standards are
too stringent to address other needs of remote areas.
3. In addition to calculating the number of subsidized schools and funding, it is recommended that data on
the utilization rate of e-learning devices and the effectiveness of their implementation be collected, when
the Government invests educational resources in schools in remote areas and non-mountainous and non-
urban areas.
4. In the face of the pandemic, e-learning has become a common issue for all children. It is recommended
that the Government identify the capacity of families to provide children with access to e-learning devices
in order to ensure their right to education.
in the sponsorship system as of March 12, 2020 was used as the base for sampling, and 1,221 children were selected using simple
random sampling. Children and their parents were then asked to complete the questionnaire.
In terms of Internet resources, 61% of disadvantaged children do not have Internet access via computer at home, and 53.4% do
not have an "all-you-can-eat data plan" for their mobile phones. In terms of digital learning devices, 66.4% and 74.5% of children
living in urban and rural areas do not have a "computer or laptop" at home, 86.1% and 92.6% do not have a "tablet", and 58.5%
and 70.6% do not have either of the above. The survey also found that 37.1% and 41.7% of children living in urban and rural
areas respectively had "digital devices for learning but no Internet access".
47
The definition of urban and rural areas in our survey is based on Article 7, Paragraph 1, Subparagraph 2 of the "Enforcement
Rules of the Early Childhood Education and Care Act", which defines the administrative areas that meet the definition of remote
areas as those with a population density of less than 2/5 of the national average, and are referred to as "remote village/town" in
this survey. Other village/town/city district in non-remote administrative areas are collectively referred to as "urban" (non-remote)
areas in order to highlight the shortage of and demand for learning resources in remote areas.
48
TFCF conducted a study of "2019 Community Service Program" for the Anti-Poverty Generation in 2020, which shows that the
most significant digital learning gap in Taixi Township, located in a remote area of Yunlin County, is the difference in digital
information access between urban and rural areas. The social workers interviewed pointed out that the penetration of tablets and
mobile phones is quite high; however, compared with children in urban areas, those in rural areas only use tablets or mobile
phones for gaming and rarely for data collection. Therefore, it takes time for social workers to guide children in tutoring sessions
to use ICT devices not only for social media (Facebook, Line, etc.) and games, but for other purposes, too (e.g. look for
information and use maps for directions).
28
5. It is suggested that the Government should include digital literacy in its education policy so that children
can acquire the ability to discern whether certain digital information is true/false and to search for
information they need. At the same time, the Government should help children use digital devices
properly through education policy and advocacy. For example, to prevent children from receiving online
scams, the Government should require parents to accompany children in using digital devices, or install
monitoring systems on digital devices.
29
Issue 8: Child Sexual Abuse
Chapter 9 Special Protection Measures
I. Description and Status Quo Analysis
1. The Concluding Observations on the Initial Report expressed concern that the protection of a child victim
of sexual abuse as a witness in judicial proceedings against the alleged perpetrator is not always in full
compliance with international human rights standards. It is recommended that the Government reviews
and amends the existing provisions on the protection of child victims as witnesses in judicial proceedings
in order to comply with international human rights standards.49
2. In order to avoid repeated interviews with victims on the same matters in sexual assault cases, the
Government has stipulated the "Directions for Reducing Repeated Statement of Victims of Sexual
Assault" for prosecutorial investigation; protection of children in judicial proceedings includes the
presence of a professional or family member during interviews or examination, and forensic interviewers
and expert witnesses to assist with the interviews of children in child sexual abuse cases.50
3. Current statistics on the issue
(1) According to government data, the majority of victims of sexual assault are in elementary, junior high,
and high (or vocational) schools, and the number of child sexual abuse is increasing year by year. In
2019, 9,183 cases of sexual assault were reported and victims amounted to 8,160, among which 5,272
were children, accounting for 64.6%. It is evident that the effectiveness of the implementation of the
prevention mechanism has fallen short of expectations.
(2) The statistics on sexual assault cases investigated and concluded by District Prosecutors’ Offices of
the Ministry of Justice and the determination of the decision do not show disaggregated data on the
age of the victims, so it is impossible to know the number of prosecutions, convictions and sentences
in sexual assault cases. The rate of using forensic interviewers in such cases ranged from 7% to 10.68%,
and the court uses expert witnesses only in 0.42% to 1.22% cases. The use of forensic interviewers
and expert witnesses in child sexual abuse is low, the role of forensic interviewers is unclear, and the
staff is insufficient with fast turnover, all of which are unfavorable conditions for children to express
their views in sexual abuse cases.
(3) In October 2020, TFCF conducted a survey on the experiences and thoughts of our social workers on
child sexual abuse cases and found that:
1. Although Taiwan has established a process to reduce the repetition of statements by child victims to
prevent further harm to children, the reduction process, and transcript of questioning by forensic
interviewers and expert witnesses must be directed by the prosecutor in order to ensure judicial
admissibility. In practice, therefore, the prosecutor may need to summon the child again for additional
questioning, the court may repeat the questioning and cross-examination during the trial,51 and the child
victim still needs to repeat the statement. Since inconsistency exists in the process of reducing statements
in sexual assault cases in various counties and cities, the reduction mechanism needs to be reviewed and
improved, as the practice does not comply with the Optional Protocol on Child Trafficking, Child
Prostitution and Child Pornography.52
49
The Government reviews and amends the existing provisions to protect child victims giving evidence in judicial proceedings to
comply with Article 8 of the "Optional Protocol on Child Trafficking, Child Prostitution and Child Pornography" that requires
protection of the rights of children at all stages of the criminal justice process, including procedures and actioins that should be
implemented for children; and with the United Nations Economic and Social Council Resolution 2005/20 "Guidelines on Justice
in Matters involving Child Victims and Witnesses of Crime", which upholds the principle of justice.
50
Article 15-1 and Article 16-1 of the "Sexual Assault Crime Prevention Act"
51
Because fairness is the principle emphasized in judicial proceedings for both parties, or because the reduction of repeated
statement and transcripts produced from questioning by forensic interviewer and expert witness is not considered admissible
evidence.
52
Article 8, paragraph 6
30
2. The focus of protection and counseling services for child victims can easily be blurred by the concurrent
judicial proceedings. Sometimes counseling is arranged for the traumatized child, but stakeholders in the
courtroom often want to influence the trial through counseling, turning the child's healing process into a
tool and shifting the focus from trauma recovery.
3. The proportion of children who actively seek help and use the help channel on their own is low, and the
abuse is usually revealed when they talk to friends, relatives or professionals, or when others notice
something is wrong, inquire about it, and help report it. Whether or not children seek help on their own
also depends on the environment in which they grow up and the differences between urban and rural
areas. Therefore, it is essential to cultivate children's understanding of the rule of law and problem-
solving skills. This phenomenon reflects that the existing channels for help and reporting are designed to
be used mainly by adults and professionals, and are less accessible to children themselves. In addition,
children are worried about the perception of their family and the public, so they are afraid to seek help
despite the availability of such channels.
II. Conclusions and Recommendations
1. The Government should continue to study and conduct comprehensive analyses of the environment in
which children live, including service agencies and organizations, to understand the problems of the
system and to provide insights for systemic and practical reform. In addition, the Government should
regularly conduct and publish research on nationally representative data on child sexual abuse, including
numbers of investigation, prosecution, deferred prosecution, a ruling not to prosecute, and conviction of
perpetrator in child sexual abuse. In addition, the Government should avoid only using reports and
statistics in a bureaucratic manner with limited effectiveness, so as to determine the magnitude of sexual
abuse of children in their living environment and the effectiveness of the system.
2. Judicial process reform
(1) Child sexual abuse should be handled in a direct and speedy manner, such as setting up special
prosecution units or creating a unified one-stop operation for each county and city. It is essential to
designate specialized prosecutors and judges to investigate and hear child sexual abuse cases, and to
facilitate collaboration among the police, social and health networks. In this way, the Government will
be able to understand the physical and psychological conditions of sexually abused children and how
to interview them.
(2) The Government should review and amend the process that reduces repeated statement of victims of
sexual assault and the forensic interviewer system. A specific and standardized judicial procedure
needs to be established to address physical and psychological stress and traumatized witnesses
following the principles of the Optional Protocol on the Sale of Children, Child Prostitution and Child
Pornography.53 In addition, it is important to continue to develop and deepen the skills of relevant
personnel (medical practitioners, social workers, police investigators, prosecutors, and judicial officers)
in child interviews and evidence collection. Each professional in child sexual abuse cases should be
trained and qualified as a forensic interviewer, and the role of the professional in accompanying the
child during investigation and in court should be enhanced and developed.
53
The full-time forensic interviewer system in the United States is a good practice to learn from, as it provides interviewer to assist
child witness involved in judicial cases and has standard procedures to interview children. Australia's confidential interview
investigation mechanism is designed to allow victims to describe their experience in a confidential, friendly and supportive
environment. The mechanism emphasizes the feelings and needs of victims of child sexual abuse, with the purpose of listening
to the victim's experience. The victim can voluntarily participate in the confidential interview and receive psychological support
from professionals prior to and after the interview, to help them recover from the physical and psychological stress of the judicial
proceedings and to prevent secondary trauma. In a confidential interview, relevant documents do not have to be disclosed and
victims can tell their experiences without having to be under oath or cross-examination, or they can choose to do so by phone,
written statements, and public hearings.
31
(3) The judicial proceedings should be planned and designed with a focus on child victim support and
counseling, trauma recovery,54 and perpetrator rehabilitation. This includes narrative therapy for the
child victim and those involved in the incident, services to accompany the family through the
proceedings, and rehabilitation and intervention for the perpetrator after sentencing, rather than mere
judicial justice.
3. The design of the sexual abuse help channel should take into account the needs of children,55 especially
with regard to services used by children. The reporting system should avoid the adult-oriented mentality,
allow children to participate meaningfully in the planning, and consider all groups of children with special
needs.
54
Includes people who were traumatized by the child sexual abuse incident.
55
Children who want to seek help could face difficulties as they may want to protect the perpetrator, fail to cope with their emotions
when giving a confession, and worry about changing schools or being taken away from their family. Already having so much to
deal with, they are asked questions repeatedly and need to make statements over and over during the process despite the unified
intervention platform. An online help and counseling platform or communication software more accessible to the public and
children can be developed to facilitate one-touch reporting to the police through mobile phones and digital devices, or a
customized app can be created for this purpose.
32
Issue 9: Child Labor
Chapter 9 Special Protection Measures
I. Description and Status Quo Analysis
1. The Review Committee noted with concern in its Concluding Observations on the Initial Report that
children are working in conditions that often involve long hours and/or may be harmful to their health
and development. It recommended that the Government collect data on the number of working children
and disaggregate data by the nature of work, age, gender and whether the child comes from an indigenous,
rural or urban background; take appropriate measures to protect the rights of such children.
2. General Comments Nos. 4, 8, 23 and CRC Article 32 all mention the work environment
(prohibition/regulation of hazardous work), work compensation, work/employment conditions, and
physical and psychological development need to be guaranteed to protect children.
3. The "Labor Standards Act" and "Occupational Safety and Health Act" have been enacted to protect
children under 18 who provide labor services to third parties, in terms of maximum daily working hours
(including night shift), rest time, regular holidays, working environment (including no dangerous or
hazardous work), signing of labor contracts, legal representative's consent and documents proving their
age.56
4. In order to build a safe workplace for children in Taiwan, various ministries and agencies have created
communication platforms 57 and surveys 58 to respond to the current practice, providing employment
services and counseling/protection of children's labor rights/workplace safety and health/complaint
mechanisms for children. However, as these government bodies carry out campaigns and set up a 24-
hour hotline for labor complaints (1955) and an online public opinion mailbox, the implementation has
not been able to address findings of surveys conducted by private entities and on-site practice. In 201559
and 2020, 60 civil society organizations conducted surveys on labor rights of youths, focusing on
56
According to the Ministry of Labor's statistics, there were 7 cases in 2019 and 5 cases in 2020, where the legal representative's
consent and proof of age of the child should be provided for the employment of child laborers.
57
In order to protect the safety of children in the workplace, a "Youth Workplace Safety and Health Communication Platform" was
established from 2016 to 2018 to promote youth occupational safety and health, education and training, and labor inspections, as
well as safety guidelines for children under 18 working at night in convenience stores. In 2019, the " Youth Workplace Safety and
Health Protection Program" was launched. In 2020, the inter-ministerial "Children's Workplace Safety and Health Rights Group"
was formed to prevent occupational disasters and protect children's occupational safety and health, as well as to "strengthen labor
inspections," "conduct education and training," "optimize advocacy and counseling," and "strengthen inter-ministerial and
institutional cooperation".
58
"Survey and Research on the Off-Campus Work Situation of Students Under 18 in Senior High Schools" by the MOE. "Survey
on the Living Conditions of Children and Youth" by the MOWH. "Basic Survey on Work Application Cases of Workers Under
15 (including children with indigenous identity)" by the Ministry of Labor.
59
According to the "2015 Youth Labor Rights Survey Report" by Taiwan Alliance for Advancement of Youth Rights and Welfare,
52% of the respondents' wages were below the legal wage (which was NT$115/hour in that year, and 25% were below
NT$100/hour). 60% of the respondents were not covered by labor insurance. Top three categories of jobs: 53% worked in food
and beverage industry, 12% as sales clerks, and 10.5% as technical workers. In terms of labor rights complaint, 44.7% did not
know how/were afraid of trouble/would not file a complaint.
60
According to "National Students' Rights Seminar in Taiwan - 2020 Labor Rights of Students in High Schools", 36% of the
students were not paid with the legal wage (which was NT$158/hour in that year, and 2.1% were paid below NT$110/hour).
59.3% were not covered by labor insurance. Top three categories of jobs: 53.2% worked in food and beverage industry, 26.9% in
service industry, and 10.3% in secondary industry (factories). 86.1% had no experience in filing complaints and were
33
teenagers aged 15 to 18. The surveys on labor rights such as salary, employment insurance, types of
occupations, and labor rights complaint channels, etc., showed that there were cases of non-compliance
with children's rights.
II. Conclusions and Recommendations
1. The Government has only strengthened occupational safety and health inspection and promotion in
workplaces such as shopping malls, supermarkets, restaurants, and construction sites where young people
are regularly employed. However, it has not described the actual hazardous or dangerous work youths
do, how effective the promotion of labor rights and labor inspections are and whether they cover
unfavorable working conditions.
2. The "Labor Standards Act" requires that a legal representative's consent and proof of age be provided for
the employment of child laborers. The Government should explain the status and effectiveness of
implementation of this requirement in each county and city in Taiwan.
3. The Government should elaborate on the reasons for complaints, the number of cases, and the status of
response and mediation services by county and city addressing complaints raised through the 1955
hotline and the online public opinion mailbox, and how effective they are.
4. It is recommended that an annual survey on children's labor rights should be conducted, and children
should be included in the design of the questionnaire, in addition to professionals from the Government,
academia, enterprises, and private organizations. The questionnaire should cover different counties and
cities (urban and rural), ethnic groups, age, gender, current education status (including not attending
school), nature of work (insurance status, type of occupation, etc.), salary and hours, workplace safety
and labor rights.
afraid/hesitant to do so or would not file complaints.
34
資料來源:SQLite external_shadow_report 表 · markdown body 來自 data/external_shadow_reports/ESR-2022-CCF.md