民間影子報告 · CRC 第二次審查 (2022)
兒童權利公約民間監督聯盟 2022 CRC 第 2 次國家報告民間影子報告
來源 PDF:34_20220408092743_3668213.pdf
Alternative Report 2022
on the Implementation
of the Convention on the
Rights of the Child
CRC WATCH
2022.03.30
(Open to the public)
Alternative Report 2022
on the Implementation of the
Convention on the Rights of the Child
CRC WATCH
2022.03.30
(Open to the public)
List of Corresponding article(s)of CRC for this report
Relevant CRC article(s) Paragraph of the Report
3,4,5 1-24
1 25, 26
2 27-37
3 38-47
6 48-66, 69-77
4 67, 68
13 78-88
14 89, 90
7,8,22 91-97
15 98-102
16 103-107
18,19,37 108-128, 133-135
34 129, 130
19,20 131, 132
2,19 136-142
8 143, 144
18,28 145-146
4,28 147, 148
2,20,24 149, 150
20,27 151-155,160-167,170,171
25 156-159
20,28 168, 169
20,21,27 172-175
4,20,28 176-180
23,28 181-187,190-193, 196, 197
19,23 188, 189
23,27,28,31 194, 195
20,23,24 198, 199
13,23,40 200, 201
2,6,24 202, 203
13,24 204-209
2,24,28 210-213
6,28 214, 215
6,17,28 216, 217
28 218-220, 223-226
4 221, 222
2,28,30 227-230
2,4,28 231-235
4,29 236, 237, 240-243, 244-246
4,27,28 238, 239, 251-254
31 247-249
28,29,36 250
28,30 255-260
2,29,30 261, 262
4,32 263-271
2,4,6,24 272-275
34,40 276, 277
4,39,40 278-309
2022 Alternative Report on the implementing Convention on
the Right of Child
Convener： CRC Watch
Email： service@youthrights.org.tw
Supporting Group
（in alphabetical order）
Children’s Right Alliance Taiwan
Chinese Children Home and Shelter Association
Christian Salvation Service
CRC Watch
Good Friend Mission
Harmony Home Association Taiwan
Humanistic Education Foundation
Independent living Taiwan
Jing Chuan Child Safety Foundation
Judicial Reform Foundation
Liang-shean Tang
Social Welfare Foundation
Media Watch Taiwan
Naivety ADHD Federation Association
Parents Association for Persons with
Intellectual Disability Taipei City
Parent Participating Education Taiwan
Parents Association for Persons with
Intellectual Disability Taiwan
Parents Association for the Visually Impairs Taiwan
Presbyterian Church in Taiwan, Indigenous Mission Committee
Prison Watch
Taipei Christian Church Association
Cheng Feng Teenager's School
Taiwan Association for
Human Rights
Taiwan Alliance to End the
Death Penalty
Taiwan Community Mutual-Care Action Association
Taiwan Gender Equity Education Association
Taiwan Hard of hearing Association
Taiwan Indigenous LBGTQ Alliance
Taiwan Labor Front
Taiwan Obasang Political Equality Party
Taiwan Tongzhi(LGBTs) Hotline Association
Taiwan Youth Association for Democracy
Teacher Chang Foundation
Teenager Preforming Arts League
The Garden of Hope Foundation
The National Federation of Teachers Unions
Yilan De-An Family Association
Youth Rights Alliance Taiwan
Editors
Convener
Lin, Yueh Chin (02)2369-5195
Editor-in-Chief
Ho, Chia-Ling (02)2926-6177
Associated Editors (in alphabetical order)
Children’s Right Alliance Taiwan
Jing Chuan Child Safety Foundation
Taipei Christian Church Association Cheng Feng Teenager's School
The Garden of Hope Foundation
Youth Rights Alliance Taiwan
Editors（in alphabetical order）
Chan, Ching Yu
Chen, Chih-Yuan
Chen, Hui-Min
Chen, Wang-De
Hang, Yi Chen
Ho, Chia-Ling
Ho, Wei Tzu
Hung, Ya LI
Lin, Hui Hua
Liu, Chih Yang
Wang, Hong Liang
Wu, Jia Yan
Wu, Cheng-Che (1985-2021) - We appreciate your efforts to promote
children’s rights, which provided a solid and robust foundation for our
report.
Introduction
The CRC WATCH comprises several front-line child service agencies,
human rights groups, teachers, and youth workers in Taiwan. In 2017, the
Alliance assembled 45 civil society organizations to complete the
alternative report of the first round of CRC national review in Taiwan.
This report has two objectives. The first is to assist the International CRC
Committee members in obtaining a "clear and complete" NGO alternative
report that responds to the National Report. Another important goal is to
present the observations and suggestions of practitioners on the
implementation of CRC in Taiwan, trying to examine from the
perspective of children as the subject of rights, including "inadequate
laws and regulations," "ineffective policy implementation," and "civil
groups in children's rights." Difficulties NGO workers encountered ".
During the review of Taiwan's 2022 CRC National Report, what worries
us is that there are merely descriptions of laws, policies, and plans and
not enough country's effectiveness and influence in taking into account
the Convention.
Taiwan is an island country with growing multi-cultural integration, and
we expect to be able to express in the languages of all groups of people.
This report hopes to encourage the Taiwanese people and its government
to create a friendly environment for children to thrive with dignity as
human beings, not limited by their young age.
Alternative report of CRC WATCH
Table of Contents
Chapter 1: General Measures of Implementation -------1
Impact Assessment of the Rights of Children and Youth ...............................................1
Reservation and Statement .............................................................................................1
Domestic Judicial Implementation of the CRC..............................................................1
National Action Plan ......................................................................................................2
Coordination Mechanism for Children and Youth Policy ..............................................2
Complaint Procedure ......................................................................................................2
Resource Allocation .......................................................................................................3
Statistical Data Collection ..............................................................................................4
Complaint Procedure for Physical and Psychological Violence on Campus .................5
CRC Training .................................................................................................................6
Chapter 2: De nition of Children and Youth ----------8
The Age Thresholds for Civil Rights .............................................................................8
Chapter 3: General Principles ---------------------9
Laws that Prohibit Discrimination .................................................................................9
Gender Equity on Campus .............................................................................................9
The Content of Gender Diversity in Textbooks ...........................................................10
Schools Discriminating against Students with Special Educational Needs .................11
Mechanisms for the Best Interests of Children and Youth ...........................................12
The Best Interests of Children and Youth in the Judicial Process ................................12
Criminals Given Jail or Death Sentences and Their Minor Children ..........................13
Juvenile Justice Act ......................................................................................................14
Children and Youth Drowning Accident Injury ...........................................................15
Fall-from-height Accident Injury .................................................................................16
Children and Youth Accident Injury Prevention System..............................................17
Death Review System ..................................................................................................18
Children’s Road Traffic Safety .....................................................................................22
fi
Road Traffic Safety Education .....................................................................................22
Traffic Conditions of Schoolchildren’s Route to School .............................................23
Road Traffic Regulations and Law Enforcement .........................................................25
Data Collection.............................................................................................................26
The Government Fails to Effectively Prevent Child Suicide .......................................28
Statutory Regulations on Children and Youth Psychological Counseling ...................28
High Rate of Suicide and Self-inflicted Injury among Children and Youth ................29
Children’s and Youth’s Freedom of Expression in the Alternative Care System .........30
Complaint Mechanism in Placement Organizations ....................................................30
Child-friendly Environment for Expression .................................................................31
Delegates from Local Children and Youth ...................................................................32
Chapter 4: Civil Rights and Liberties ---------------34
Religious Groups on Campus.......................................................................................34
Stateless Children .........................................................................................................35
The Qualification of Hong Kongers as Political Refugees ..........................................36
Minors’ Freedom of Assembly and Association ..........................................................37
Privacy on Campus.......................................................................................................38
Chapter 5: Preventing Violence against Children and
Youth ---------------------------------------40
Children and Youth as Eyewitnesses of Domestic Violence ........................................40
Corporal Punishment as a Parental Right .....................................................................41
Governmental Survey Questionnaire Concerning School Corporal Punishment upon
Children and Youth.......................................................................................................42
Physical and Psychological Violence against Children and Youth on Campus ...........43
Inappropriate Discipline in Preschool Education .........................................................44
Violence against Children and Youth in Sports Training on Campus ..........................45
Investigation Mechanism for Sexual Violence against Children and Youth ................46
Mistreatment of Children and Youth in Placement Organizations ...............................47
Teacher-to-student Psychological Violence .................................................................48
School Bullying Prevention Policies and LGBT Students ...........................................49
School Bullying against Visually Impaired Children and Youth .................................51
Chapter 6: Family Environment and Alternative Care --52
The Right to Identity of Immigrant Workers’ Children................................................52
Parenting Education Leave...........................................................................................53
Quasi-public Preschools ...............................................................................................54
Health Rights and Placement of Children Regardless of Their Nationality ................54
Legislation on Kinship Care Placement .......................................................................55
Authoritarian Approaches of Foster Institutions ..........................................................56
Inspection and Assessment of Placement Organizations .............................................57
The Government Subsidy and Professional Manpower for Private Placement
Organizations ...............................................................................................................58
Borderline Children and Youth with Special Needs .....................................................59
Placement Turnover Rate .............................................................................................60
The Right to Education of Children and Youth with Special Needs ............................61
Self-reliance Services after Placement .........................................................................62
Welfare Support for the Families That Foster Children and Youth with Special Needs ..
63
Governmental Monitoring of Domestic and Transnational Adoption ..........................64
Chapter 7: Basic Health and Welfare---------------66
Alternative Care During the COVID-19 Pandemic .....................................................66
Subsidies and Assistance ..............................................................................................66
Subsidy application verification mechanism................................................................66
Policies and supporting measures ................................................................................67
Special Needs student identification system ................................................................68
The person conducting psychological diagnosis on special needs students.................68
Special Education Support for Visually Impaired Children .........................................68
Inclusive education for special needs students .............................................................69
Cross-regional schooling for children with special needs ............................................70
Mistreatment of special needs students ........................................................................70
Special textbook translation expenses ..........................................................................71
The right to preschool education for children with disabilities ....................................72
The right to cultural participation of children with special needs ................................72
Preschool inclusive education for visually impaired children .....................................73
Children in the long-term care institutions ...................................................................74
The right to seek, receive and impart information and ideas and expression of children
with special needs in judicial and administrative procedures ......................................74
Gender gap in participation in physical activities ........................................................75
Children's Rights to seek phonologist Consults ..........................................................76
Preventive Psychological Support Resources for LGBT Children ..............................77
Sex Education Curriculum and LGBT Children's Right to Sexual Health ..................78
Children's right to education (sex education curriculum) ............................................79
Children’s subjectivity and sexual autonomy...............................................................80
Underage Pregnant Girls' Right to Education and Children of Young Parents’ Right to
Survival ........................................................................................................................81
Global Warming ...........................................................................................................82
Chapter 8: Education, Leisure and Cultural Activities --83
Overly high Senior-high School Student-teacher Ratio ...............................................83
Right to Education for Students with Physical and Psychological Disabilities during
the Pandemic ................................................................................................................83
Teenage Pregnancy and Abortion .................................................................................84
Obligation of Public and Private School Attendance ...................................................85
High Preschool Student-teacher Ratio .........................................................................85
Educational Resource Distribution in Remote Areas ...................................................86
Dropout Children and Youth ........................................................................................87
Service System for High School Dropout Students .....................................................88
Rules of School Uniform and Dress Code ...................................................................89
Complaints Procedure for Reformatory Schools .........................................................90
Military Training Instructors and Alternative Manpower ............................................91
School Time for Students .............................................................................................92
Low Satisfaction in Youth with Arts Education ...........................................................93
Youth Arts Education ...................................................................................................93
Safety Management System of Children's Playgrounds ..............................................94
Recreational Resources for Children and Youth with or without Disabilities in Non-
Urban Areas ..................................................................................................................95
Overseas Students Programs ........................................................................................95
Information dissemination for the Vocational Education .............................................96
The Kite Project ...........................................................................................................96
Chapter 9: Special Protection --------------------98
Co-creating Tribal Preschools ......................................................................................98
Indigenous Children Subsidies .....................................................................................99
Fund for Pedagogic Materials in Co-creating Tribal Preschools .................................99
Teachers in Co-creating Tribal Preschools ...................................................................99
Gap and Cultural Discrimination in Minority Education ...........................................101
Labor Data Collection and Rights for Children Under the Age of 15........................101
Underage Labor Rights and Occupational Safety ......................................................102
Juvenile Drug Abuse ..................................................................................................104
Children and Youth Sexual Exploitation and Sexual Abuse ......................................105
Research on Juvenile Inmates ....................................................................................106
Children and Youth who Violate the Law ..................................................................106
On-Campus Counseling Resources ............................................................................106
Children and Youth's Privacy Rights in Judicial Cases ..............................................108
Professional Human Resources and Support Empowering System of Diversion ......109
Restructuring of the Reformatory School ..................................................................109
Draft Act for the Treatment Implementation in Juvenile Correctional Agencies .......110
Identification Processes in the Juvenile Detention Houses ........................................110
Systems of Transition and Resumption of School ......................................................111
Employment Preparation and Transition Services for Judicial Juvenile ....................112
Juvenile Delinquency/ Children and Youth that Deprived of Liberty (including any
form of custody, imprisonment, or detention) ............................................................113
Training for Juvenile Justice Professionals ................................................................115
Chapter 1: General Measures of Implementation
In response to Point 8 in the Concluding Observations/Point 6 in the National
Report
Impact Assessment of the Rights of Children and Youth
1. The impact assessment of the rights of children and youth was piloted from 2021.
However, there is a notable lack of connections between the assessment (CRC/GC/
No.5/para. 45 and 47) and the legislature; and, on top of that, the relevant methods
still do not provide any planning for incorporating children’s and youth’s meaningful
engagement and opinions.1
2. Related data of the assessment are unavailable to children, youth, the multitude,
and civil institutions.
In response to Point 10 in the Concluding Observations/Point 4 in the National
Report
Reservation and Statement
3. The “Optional Protocol to the Convention on the Rights of the Child on the sale of
children, child prostitution and child pornography” not only involves cross-functional
collaboration, but also becomes an internationally important issue concerning the
protection of the rights of children and youth due to new forms of children and youth
sexual exploitation and other internet problems. We suggest that the government
should officially sign this optional protocol, so as to be linked with the CRC and refer
to the legal amendments and basic guidelines provided by the United Nations in a
timely manner. Just as the optional protocol stated, “the elimination of the sale of
children, child prostitution and child pornography will be facilitated by adopting a
holistic approach.”
In response to Point 7 in the National Report
Domestic Judicial Implementation of the CRC
4. According to CRC/GC/No.5/para. 20, the incorporation of the CRC into domestic
law should mean that “the provisions of the Convention can be directly invoked
before the courts and applied by national authorities.” However, this essential spirit is
1 For the issues concerning the engagement of children and youth in governmental agencies, please see the points
on the right to expression of children and youth in Chapter 3 of this report.
1
not examined in the National Report.
In response to Point 11 in the Concluding Observations/Point 17 in the National
Report
National Action Plan
5. According to CRC/GC/No.5/para. 29, an effective national strategy for meaningful
engagement of children and youth needs to be developed through a process of
consultation, including with children and youth and those living and working with
them. However, a clear system to examine the effectiveness of the national action plan
remains wanting.
6. According to CRC/GC/No.5/para. 33, the national strategy is neither disseminated
to children and the public after translated into child-friendly versions as well as into
appropriate languages and forms, nor is it under any arrangement for monitoring and
continuous review and for periodic reports to the Legislative Yuan.
In response to Point 13 in the Concluding Observations/Point 20 in the National
Report
Coordination Mechanism for Children and Youth Policy
7. Currently in the Legislative Yuan, the legislation concerning the issues of children
and youth relies solely on the research conducted by the Legislative Research Bureau
or on the open hearings for related bills held by individual members that invite
children and youth to express their views. The plans proposed by the National Report
are non-standard mechanisms and lack practical effect, which falls short of the
expectations about the child impact assessment mentioned in CRC/GC/No.5/para. 45.
In response to Points 16, 17, 81, and 82 in the Concluding Observations/Points
27-31 and 129 in the National Report
Complaint Procedure
8. In response to Point 29 in the National Report, many domestic laws and regulations
recognize the legitimacy of student complaints, but, in practice, the percentage of
student complaints being handled is quite small, and there is a glaring discrepancy
between the reality and the official survey data.
9. Take the corporal punishment case occurring in the Yuan Ming Junior High School
in Yunlin County for example. According to the competent authority’s questionnaire
2
survey,2 nearly half of the students have been subject to improper discipline such as
“beating the palm, spanking, and slapping.” However, the complaint procedure
required the students to file by name.3 The students were worried about the leak of
their personal data to the school and teachers involved in the case and the risk of
incurring revenge, and consequently they were under considerable psychological
pressure.
10. We suggest:
(1) The Ministry of Education, as the authority in charge of education, should
reexamine the friendliness of the current student complaint procedure (incl. an
anonymous complaint mechanism and a whistleblower protection mechanism),
so as to ensure adequate protection of students’ personal safety and privacy
during the complaint procedure.
(2) Teachers who committed concrete offenses should be punished under the
Teachers’ Act, so as to improve campus security.
In response to Point 18 in the Concluding Observations/Points 21 and 22 in the
National Report
Resource Allocation
11. 75% of the state budget for children and youth is spent on education, whilst that
on development, welfare, health, protection, etc. accounts for merely 25% of the
total.4 Related studies5 indicate that, owing to the changes in the structure,
composition and form of the society and households in Taiwan, the family support
system has become more impotent in tackling pertinent issues. The government
should provide more effective services of family support or supplementary care,
through which the family support network can be improved, and family problems can
2 Around 1/3 of the students have been subject to specific types of corporal punishment, and around 1/3 of the
students have been punished for poor performance (one beat for each point below the standard score). Although
the analysis of this questionnaire concluded that most of the students have never been subject to direct corporal
punishment, they’ve heard that their teachers may inflict corporal punishment. This unpublished questionnaire is
included in the material provided by the Yunlin County Government for the County Council. (10 March 2022)
3 “Minister of Education Pan Wen-Chung also admitted that, in view of the available data, the school’s disciplinary
measures are indeed inappropriate. The Ministry of Education will set up a task force to cope with this issue, and
will also ask the Yunlin County Government to adhere to the principle of law-based administration. Su Tseng-
chang, the Premier of Taiwan, also stated that it is indeed unreasonable to require students to register their names if
they want to file complaints, and demand the Ministry of Education to handle this issue properly.” Source: the
Facebook page of Claire Wang, member of the Legislative Yuan. https://www.facebook.com/wanyu.claire/photos/
a.102159017918319/310400640427488/?type=3
4 Appendix 1-2 of the National Report.
5 Chen Ru-Hui, “A Study on the Budget Allocation and Expenditure on Children and Youth in Taiwan in Recent
Years,” (August 2020, No. 109115). https://www.ly.gov.tw/Pages/List.aspx?nodeid=43912
3
be prevented or solved.
In response to Point 20 in the Concluding Observations/Point 23 in the National
Report
Statistical Data Collection
12. It is regrettable that there is a substantial gap between Point 23 in the National
Report and CRC/GC/No.5/para.48. Currently, different administrative agencies
collect data on their own without inter-agency coordination, and then they simply
provide the links to the original files at the “Statistics” mentioned in the National
Report on the website. There is an overall lack of meaningful data6 and analytical
reorganization.7 Besides, the data sources are too unilateral to reveal a true picture.
13. The existing mechanism goes against the suggestion of the General Comment: not
merely to establish effective systems for data collection, but to ensure that the data
collected are evaluated and used to assess progress in implementation, to identify
problems and to inform children about all policy development.
14. The statistical indicators in each file at the “Statistics” mentioned in the National
Report are discrete. The categories such as age, region, and ethnic group were not
standardized during data collection, which renders it difficult to compare the data in
different files and to observe their correlations.
15. The “Statistics” is accessible on the CRC Information website. However, the kid’s
version of that website does not contain “Statistics,” which ignores the need and right
of children and youth to know the status quo of their populations and to use these
data.
16. Many policies have been formulated without a comprehensive, factual data basis.
Please refer to Points 26, 41, 51, 60, 115, 118, 121, 123, 139, and 206 in this report.
6 In Appendix 1-6 of the National Report, for example, the number of participants alone manifests neither the
effectiveness of the CRC training for the personnel in government-affiliated public and private sectors in charge of
children and youth affairs, nor the percentage of these personnel who have received the training. Also, in the
Appendix 9-25 regarding the employment service for juveniles returning home from juvenile correction
institutions, if the data on the service coverage is unavailable, there is no way to know how much the service has
been promoted and how well the policy has been utilized.
7 The “Statistics” in the National Report is divided into 5 major categories. It contains a total of 218 statistical
indicators. The data can be retrieved only by searching all the files one by one. The query will become more
challenging when the numbers of both the indicators and files increase in the future. Please see https://
crc.sfaa.gov.tw/Statistics/Intro
4
17. We suggest:
(1) The database design should revolve around CRC’s clauses, and the statistical
indicators (incl. the categories in each indicator) should be standardized, ergo
forming an interactive indicator query system that allows the data to be cross-
compared for efficiency and convenience.
(2) The kid’s version of the CRC Information website should contain a graphic
representation of “Statistics” and explicate its meaning, thereby making it easier
for children and youth to use these data.
Complaint Procedure for Physical and Psychological Violence on Campus
18. School affairs meeting, professional review committee for teachers, and teachers’
performance appraisal committee, rather than complaint procedure, are the primary
measures for handling incidents of physical and psychological violence against
children and youth. Under this system, children and youth as victims are not legal
parties8 and cannot acquire complete investigative reports.9 The children and youth
implicated are invited to make statements only when the committee considers it
“necessary.” The children and youth can neither protest against the committee’s
decision, nor resort to adequate remedies.10
19. We suggest: Legislation on this issue is urgently needed to grant the status of
“legal party” to the children and youth, along with their parents, involved in the cases
of school violence.
(1) They should be entitled to browse the full investigative report before the
competent authority makes a decision.
(2) They should be entitled to question the investigative report.
(3) They may protest against the committee’s decision, and seek remedies from
8 Incidents of violence committed by school teachers or staff against children and youth tend to be handled under
the Teachers’ Act and the Regulations on the Dismissal, Suspension, or Discontinuation of Employment of
Teachers at the Elementary, Middle, and High School Levels. The process is regarded as the school’s appraisal of
the involved teachers or staff, whereas the status of the children and youth as victims is not under adequate
protection.
9 In most incidents of violence committed by school teachers or staff against children and youth, the school or the
government tends to provide the “outcome of the handling process” instead of the complete investigative report.
The information disclosed in the “outcome of the handling process” is insufficient to enable the victims to
understand the investigation method, the investigation process, and the reasons for accepting the facts. Besides, in
most cases, the competent authorities or the school will not even tell the victims what specific punitive measures
will be taken against the perpetrators, but simply fob them off by saying that their cases “will be tackled in
accordance with the law.”
10 The case is opposite under the Gender Equity Education Act, where the children and youth as victims enjoy the
status of legal parties. Meanwhile, the cases of physical and psychological violence against children and youth are
divided into varying modalities, and the ways to implement related procedures and the levels of rights protection
differ widely from one another as well, which makes it more difficult for children and youth to seek remedy.
5
higher authorities or courts.
In response to Points 21 and 22 in the Concluding Observations/Points 32-34 in
the National Report
CRC Training
20. The government has not yet reported the quality and effectiveness of CRC
training. The current data demonstrate the quantity of service only. Whether the
introduction of related training has yielded concrete results remains unknown.
Besides, questionnaires concerning the level of satisfaction should not be used as the
primary measurement tool for CRC training.11
21. The trainees should not be limited to the police officers, judges, prosecutors, and
other personnel for juvenile justice who act in the field of children and youth
protection. Instead, practitioners tackling incidents implicating children and youth
should be sensitive enough and have basic understanding, otherwise incidents like
that a local police officer put a 5-year-old boy to sobriety test would continue to
occur.12
22. The competent authorities have released promotional material in different
languages (e.g., Taiwanese, Hakka dialect, English, and those used in Southeast Asia).
So far, however, the government does not provide promotional material in Taiwan’s
indigenous languages.13
23. Following Point 22, the target audience of the promotional material produced by
the Environmental Protection Administration, the Ministry of Health and Welfare, the
Ministry of Education, the Ministry of the Interior, and the Ministry of Justice include
schools, government functionaries, parents, religious organizations, professional
organizations, social groups, and business and freelance groups. The education and
promotional material should be designed specifically for the “stakeholders” (the
primary care-givers) in the environment where children and youth come of age, so as
to effectively benefit children and youth and meanwhile safeguard their rights.
11 Just as the training for correctional personnel mentioned in Appendix 1-8 of the National Report.
12 A Tesla was hit by a 5-year-old boy on his bicycle, and the police officer put the boy to sobriety test. https://
www.cna.com.tw/news/firstnews/202004040073.aspx
13 Please see Appendix 1-6 of the National Report.
6
24. We suggest:
(1) To further analyze the difficulties and gaps in the CRC promotion, the
government should develop an assessment mechanism to grasp the influence of
the CRC intervention training for the aforementioned stakeholders.
(2) The government should produce the promotional material in all languages
spoken in Taiwan.
(3) The government should reinforce the education and promotion for those who
interact closely with children and youth, thereby heightening their awareness of
the rights of children and youth, especially the youngest children or those whose
rights are susceptible to oppression or discrimination.
7
Chapter 2: Definition of Children and Youth
In response to Points 25 and 26 in the Concluding Observations/Points 42-47 in
the National Report
The Age Thresholds for Civil Rights
25. In Taiwan, the legal age of majority stipulated in the Referendum Act and the
Civil Code has been lowered to 18 respectively in 2017 and 2021. However, the age
thresholds (i.e., 20 years old) set for universal suffrage and for the candidate
eligibility of different types of elected government functionaries in Taiwan remain
unchanged due to the unreasonably strict requirements for constitutional amendment,
which leads to a discrepancy from the regulations in other modern democracies.
26. Taiwanese youth aged 18 are entitled to vote on national referenda to decide
important political and social questions, and their civil acts are governed by laws of
the country, yet they do not enjoy universal suffrage and the candidate eligibility of
elected government functionaries. The initiation of the constitutional amendment has
been delayed for many years owing to the failure of the consult among political
parties, which deprives young citizens at the age of 18 of their right to participate in
public affairs. Even though the political parties have reached a consensus on this
constitutional amendment,14 it has to be approved by a nationwide referendum,
wherein the number of valid votes in favor shall exceed one-half of the total number
of electors (i.e., 9.65 million) for the amendment to be ratified.
14 The constitutional amendement of lowering of the age threshold for civil rights passed the third reading in the
Legislative Yuan on 25 March 2022. https://news.ltn.com.tw/news/politics/breakingnews/3871533
8
Chapter 3: General Principles
In response to Points 27 and 28 in the Concluding Observations/Points 48-59 in
the National Report
Laws that Prohibit Discrimination
27. The rules and laws that prohibit discrimination are not effectively enforced, and
corresponding solutions to this problem remain wanting. The overall data on the
discrimination against children and youth of minority or special-needs groups fail to
reflect their predicaments. Point 53 in the National Report only lists the measures
adopted by the government. There is no way to know the implementation rate and
effectiveness assessment of these measures.
Gender Equity on Campus
28. Under the laws in Taiwan, teachers shall enhance their awareness of gender equity
and fulfill it in their educational activities.15 However, the awareness of gender equity
of teachers who teach associated subjects16 in primary and secondary schools ranges
from the sublime to the ridiculous. Some of them lack the understanding of gender
diversity,17 make homophobic comments, and even indulge discrimination. This is not
helpful in tackling sexual bullying on campus.18
29. The investigation by the Taiwan Tongzhi Hotline Association19 reveals that
15 Articles 15 and 19 of the Gender Equity Education Act.
16 Such as Health and Physical Education, Integrative Activities, Citizenship and Social Development, Healthcare,
Life Education, and Career Planning.
17 A study shows that 38.81% of the students and 32.35% of the teachers agreed that “teachers lack the awareness
of gender equity,” which is one of the predicaments that sexual and emotional education faces. See Guo Li-An,
Chen Yu-Ping, Wang Ta-Wei, Liu An-Zhen, and Chang Shin-You, “A Study on the Content of Adolescent
Sexuality Education and Affective Education: Comparisons and Contrasts of Teachers,” Student Affairs and
Guidance Counseling 56:2, (2017) pp. 28-49.
18 According to the survey conducted by the Garden of Hope Foundation and its service experiences, a part of
victims with multiple gender identities have suffered sexual bullying when they were enrolled in schools. Teachers
who lack the awareness of gender equity are unable to handle sexual bullying immediately. Besides, the “Survey
of LGBTG+ Students’ Campus Experience in 2020” pointed out that 68.5% of the students have heard
homophobic comments from school faculty and staff or military instructors, 74% of the students have heard
negative comments on gender expression from school faculty and staff, and about 40% of school faculty and staff
just sit by and watch homophobic discrimination occurs.
19 The “Survey of LGBTG+ Students’ Campus Experience in 2020” conducted by the Taiwan Tongzhi Hotline
Association collected 1,226 effective questionnaires from LGBT students enrolled in junior, senior and vocational
high schools during September 2019 and July 2020.
9
homophobic comments are prevalent on campus, not only from students but also from
school faculty and staff.20 More than 25% of the respondents mentioned their
experiences of being discriminated against on campus.21
30. We suggest:
(1) The Ministry of Education should review the policy of gender equity education
for teachers, improve their literacy on gender equity, and integrate gender equity
education into schools’ curricula.
(2) The gender equity awareness of teachers, military instructors, school staff,
principals, and top-level administrators should be heightened. Related
educational training should explicitly include homosexual and transgender
issues.
(3) The competent authorities should make a thorough review of current school
rules. Those violating the Gender Equity Education Act should be amended
within specific time limit.
In response to Point 27 in the Concluding Observations
The Content of Gender Diversity in Textbooks
31. The competent authorities in charge of education include gender equity education
in the core curriculum under the Grades 1-9 Curriculum Guidelines. However, in
2017, several parent groups put pressure on the Ministry of Education and textbook
publishers in the name of reviewing textbooks, asking them to delete the content of
“gender diversity” and “gender spectrum”22 in the integrative-curriculum textbooks,
which prompted some publishers to remove the controversial content from the
textbooks.
32. The current 12-Year Basic Education Curriculum Guidelines—Health and
Physical Education in Taiwan stipulates that the content of gender education in
elementary and junior high schools should contain “basic concepts about different
20 41.9% of the respondents indicate that they often hear that the term “gay” is used in a negative way on campus.
87.2% of the respondents express that they feel bothered or unpleasant when they hear the term “gay” is used in a
negative way. 40.6% of the respondents state that school faculty and staff do not intervene in even if they hear
homophobic comments on site. 68.5% of the respondents point out that they have heard homophobic comments
made by their teachers or school staff.
21 For example, students are not allowed to wear clothes according to their own gender identities.
22 The Gatekeepers for Children’s Education! Parent groups have persisted in identifying the controversial content
in the teaching material of primary and secondary schools over the past 4 years. https://fongnews.net/breaknews/
35556/?fbclid=IwAR39y--FP88Ns9wgSOLsTnE6a91tbe1r2Zl0Yj9FPoggPzhRUF89_in7HEk
10
types of sexual orientation and respect for these differences.23 However, only the
Kang Hsuan Educational Publishing Group, one of the three biggest textbook
publishers in Taiwan,24 addresses the issue of sexual orientation in pages 12 and 13 of
its textbook on health and physical education (the first semester of Grade 7), the other
two textbook publishers do not include sexual orientation-related content at all in their
textbooks for Grades 7-9.
33. We suggest:
(1) Textbook publishers should follow the Gender Equity Education Act, the
Curriculum Guidelines of 12-Year Basic Education in different fields, and the
associated rules of integration in Appendix 2 of the Curriculum Guidelines, and
develop teaching material on gender diversity and sexual orientation.
(2) The National Academy for Educational Research should fulfill professional
review of textbooks and avoid the influence of reviewers’ ideologies. The review
should be based on the Curriculum Guidelines of 12-Year Basic Education.
(3) The competent authorities in charge of education should raise the reviewers’
awareness of gender equity and offer them professional development and
training courses.
In response to Points 27 and 28 in the Concluding Observations/Points 29, 193,
194 and 197 in the National Report
Schools Discriminating against Students with Special Educational Needs
34. Some schools not only reject to provide reasonable accommodation for students
with special educational needs, but even harness peer pressure to isolate them. These
schools either belittle the academic performance of students with special educational
needs, or use insufficient resources as an excuse, which forces their parents to transfer
them to other schools. The situation has repeatedly manifested itself in the cases
handled by civic groups.
35. Special-needs education laws in Taiwan do not include the principle of reasonable
accommodation, which creates substantial obstacles to the remedies for students with
special educational needs. In addition, relevant laws neither interdict nor define
23 According to the current 12-Year Basic Education Curriculum Guidelines—Health and Physical Education, the
content of sex education in the third phase of learning (Grades 5-6): Db-III-2 basic concepts about different gender
identities, the influence of gender stereotypes, and countermeasures. The content of sex education in the fourth
phase of learning (Grades 7-9): Db-IV-3 respect towards multiple gender expressions, roles and sexual
orientations.”
24 The three biggest textbook publishes in Taiwan are the Kang Hsuan Educational Publishing Group, the Nani
Book Enterprise co., ltd., and the Hanlin Publisher. They collectively hold over 90% share of the textbook market.
11
discrimination explicitly, which results in the debatable inclusion of discrimination
within the scope of complaint procedure for students with special educational needs.
In face of insufficient, flawed and prohibited use of barrier-free facilities, students
with special educational needs cannot file complaints or demand accountability.
36. The Ministry of Education neither appropriately informs students with special
educational needs and their parents about the Regulations Governing Appeals Made
by Students with Special Educational Needs, nor systematically promotes it, which
renders them unable to access remedies.
37. We suggest:
(1) The government should explicitly include the appeal against insufficient barrier-
free facilities, the procedure of demanding reasonable accommodation, and the
clause of non-discrimination in the rules and laws on special-needs education as
soon as possible, in order to ensure procedural justice and accountability.
(2) Teachers and children should be provided with adequate education on related
rights established in the CRPD.
In response to Point 29 in the Concluding Observations/Points 62 and 63 in the
National Report
Mechanisms for the Best Interests of Children and Youth
38. The National Report did not respond to the mechanisms proposed by the
legislation sector to serve the best interests of children and youth. In practice, current
public hearings in the Legislative Yuan and the studies done by the Legislative
Research Bureau do not institutionalize GC 14/papa 31 and the demand of Point 32(c,
d) in the Concluding Observations.25
In response to Point 29 in the Concluding Observations/Article 3(1) of the CRC
The Best Interests of Children and Youth in the Judicial Process
39. The best interests of children and youth involved in the judicial process should be
given primary consideration. However, the principle is only seen in a couple of rules
and laws.26 Apart from the flaws in frontline practitioners’ practice, suggestions on
25 Chapter Six of the National Report is an administrative procedure rather than legislation.
26 The current related regulations in Taiwan include Article 1 of the Juvenile Justice Act, Articles 5 and 46 of the
Guidelines Governing the Coordination between Juvenile Courts and Related Administrative Agencies in Handling
Juvenile Delinquency, Article 6 of the Guidelines on the Prevention and Counseling of Juvenile Delinquency. All
of them mention that the best interests of children shall be applied to connect potential resources in the judicial
process.
12
professional operation in this regard remain wanting.27 In the name of the best interest
of minors, the Judicial Yuan Interpretation No. 80528 even stresses that both minor
litigants should directly enter the conciliation procedure without a delicate and
professional process.
40. Miaoli District Court judge Zhou Jing-Ni asked the juvenile who violated laws to
slap himself in court.29 This event shows that the judge’s personal issue took
precedence over the principle of safeguarding the best interests of children and youth.
41. We suggest:
(1) Those who deal with the cases involving children and youth should regularly
receive education on the CRC and thereby understand that all minor litigants are
victims.
(2) In addition to providing a manual for practical operation, the government should
draw a flowchart on the judicial process involving children and youth (including
applicable laws), indicating the stages in which the best interests of children and
youth should be given due attention.
In response to Point 29 in the Concluding Observations
Criminals Given Jail or Death Sentences and Their Minor Children
42. The government neither adopts any assessment or support mechanism, nor
provides necessary psychological and other assistance for children and youth whose
parents are either prosecuted or given death sentences in the judicial process. There is
no clear data about these children and youth, let alone those on the number, situation,
and distribution of them, which makes them “invisible victims” of the death penalty
in Taiwan.
43. Shen Wen-Bin was given a death sentence in 2020 and Lee Hong-Ji was executed
by shooting in 2018. Both of them have minor children. However, in the judgements
on the two cases, the courts stated that “there is no need to consider the best interests
of these children when imposing death penalty on the defendants.” The Ministry of
Justice even claimed that “the exaction of this death penalty is consistent with the
International Covenant on Civil and Political Rights and the CRC” when the
execution of Lee Hong-Ji took place.
27 Such as subject of expression, method of implementation, and timing of participation.
28 The Judicial Yuan Interpretation No. 805. h ps://law.moj.gov.tw/News/NewsDetail.aspx?msgid=164077
29 News link: h ps://www.cna.com.tw/news/asoc/202103220263.aspx
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44. We suggest:30
(1) The government should conduct a comprehensive assessment of administration,
legislature, justice and policy on the rights of children and youth whose parents
are prosecuted by prosecutors or given death sentences by courts.
(2) The courts should recognize the existence of children and youth and assess their
best interests when imposing death penalty on their parents.
(3) The prosecutors should avoid charging the defendants with death penalty, and
meanwhile consider the best interests of the defendants’ minor children.
(4) The government should provide psychological and other necessary supportive
resources for the children whose parents are given death sentences.
Juvenile Justice Act
45. After its amendment in 2019, the Juvenile Justice Act misinterprets juveniles from
subjects to objects.31 Its practical implementation mainly adopts the views of
personnel in the judicial and police systems. Opinions made by social workers who
interact with juveniles before they break the law, conduct follow-ups to their status, or
deal with their placement are often ignored in the assessment procedure and the
treatment decision. The cooperative system and modus operandi vary from county/
city to county/city in Taiwan as well.
46. Under the nationwide level 3 pandemic alert in 2021, all correctional facilities
were closed to visitors and adopted tele-counseling. However, this approach
contradicts Point 4(3) of the Principles for Counseling Psychologists Providing Tele-
counseling Services issued by the Ministry of Health and Welfare, that is, “tele-
counseling shall not apply to those who are under the age of 18,” which prevents
children and youth in correction schools from seeking counseling.
30 See Committee on the Rights of the Child, Concluding Observations on the Second Periodic Report of Kuwait,
U.N. Doc. CRC/C/KWT/CO/2(29 October 2013), para. 31-32; Committee on the Rights of the Child, Concluding
Observations on the Second Periodic Report of the United Arab Emirates, U.N. Doc. CRC/C/ARE/CO/2(30
October 2015), para. 52; Committee on the Rights of the Child, Concluding Observations: Singapore, U.N. Doc.
CRC/C/SGP/CO/4-5(28 June 2019), para. 34; Committee on the Rights of the Child, Concluding Observations:
Qatar, U.N. Doc. CRC/C/QAT/CO/3-4 (22 June 2017), para. 28; Committee on the Rights of the Child,
Concluding Observations: Bahrain, U.N. Doc. CRC/C/BHR/CO/4-6 (27 February 2019), para. 35.
31 When a juvenile delinquent enters the judicial process from investigation, assessment and treatment decision to
implementation and being released from imprisonment, different agencies/institutions (e.g., police agency, youth
counseling committee, social welfare center, court, juvenile correctional institution, placement institution, school,
and vocational institution) and roles (e.g., the police, social workers, counseling psychologists, counseling
personnel, administrators in juvenile correctional institutions, juvenile probation officers, juvenile investigation
officers, judges, guardians, legal representatives, and the third party holding the defendant in custody) engage in
the process at different stages. However, all the rules and laws do not assign a high priority to the juvenile
delinquent.
14
47. We suggest:
(1) The competent authorities should adjust related laws and regulations including
the Principles for Counseling Psychologists Providing Tele-counseling Services,
allowing children and youth inside or outside the correctional institutions to
enjoy the right to proper tele-counseling.
(2) The Judicial Yuan, the Ministry of Justice, and the Ministry of Health and
Welfare should collaborate in formulating operation guidelines, indicate the
participants in different stages of litigation and their rights, as well as stipulate
the participants and the timing for entry according to the modes of treatment,
thereby enabling frontline practitioners to develop a smooth and professional
litigation procedure through practice in a clear and meaningful way.
In response to Point 65 in the National Report
Children and Youth Drowning Accident Injury
48. The number of water-related deaths over the past five years (2016-2020) is 1,667
in total. Among which, the mortality rate of children aged 10-14 is 24.03%, and that
of children aged 5-9 is even as high as 24.79%. Their morality rate is much higher
than that of adults.32 However, the Children and Youth Safety Action Plan33
promulgated in 2007 has not been subject to rolling adjustment according to its
executive performance over the past 16 years. During this period, the drowning
accidents still occurred and improvement measures are nowhere on the horizon.34 35
Apparently, the current preventive measures do not exert positive effects, and the
indicators of its executive performance are not useful for drowning accidents
prevention.36
49. We suggest:
(1) The government should amend the Children and Youth Safety Action Plan as
32 Appendix 3-5 of the National Report.
33 h ps://www.sfaa.gov.tw/SFAA/Pages/Detail.aspx?nodeid=268&pid=4967
34h ps://news.ltn.com.tw/news/society/breakingnews/3107889; h p://www.ibaby.org.tw/content/
21548; h ps://today.line.me/tw/v2/ar cle/rNWJ0X
35 h ps://infogram.com/109and110-1h7j4dvol1en94n
36 The current indicators for assessing the performance of water safety in the Children and Youth Safety Action
Plan include “the competent authorities, runners and visitors of water recreation facilities should attend two
workshops annually on the safety of water recreation activities and related regulations,” and “the supervision on
the annual examination of swimming pool facilities and lifeguard allocation, and the examination rate should
exceed 90%.” According to the executive performance of this plan in 2020 compiled by the Ministry of Health and
Welfare, the Council of Agriculture fulfilled the requirement by holding 50 on-campus promotions with 2,000
participants. The Sports Administration of the Ministry of Education reached 100% of check by inspecting 445
swimming pools in Taiwan.
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soon as possible: it should be subject to rolling adjustment per year and revise
the indicators of its executive performance, so as to respond to the current
situation. The “water-safety indicators” should take into account the lack of
water-safety literacy of the drowned children and youth and their companions,37
thereby making preventive strategies that actually reduce the occurrence of
drowning accidents.
(2) Following (1), the government should implement water safety policy in a serious
manner, including early warning, education, and policy promotion on the safety
of water recreation activities. Besides, in order to prevent other subjects from
crowding out the time arranged for water safety education which belongs to the
integrative curriculum which is recommended by nature, the government should
formulate an overarching inter-ministerial promotion strategy, requiring a
minimum or specific number of course hours, insofar as to ensure the
implementation of safety education in the curriculum design.
Fall-from-height Accident Injury
50. The statistics compiled by the Jing Chuan Child Safety Foundation over the past
15 years (2006-2020) shows that 83.77% of all fall-from-height accidents of children
aged 0-14 happened at home, more specifically, at window and balcony. The main
reasons behind these accidents are that the children and youth are left alone at home
and they tend to be adventure-, curiosity- and exploration-oriented.38 The amendment
to Article 8 of the Condominium Administration Act was ratified in 2013,39 which
provides that households with children under 12 “may” install fall-prevention devices
at openings in the outer walls or on balconies without impeding the emergency escape
and protruding from the outer walls. However, this article is not compulsory. In
practice, there used to be lawsuits filed for the management committee in question
37 The statistics produced by the Sports Administration of the Ministry of Education between 2015 and 2019
demonstrate that streams (41.46%) and sea (36.59%) are the most dangerous places (together account for nearly
80%) where students in Taiwan drowned. 65% of the students who drowned when they were “playing in the
water,” 53.66% of them were in the company of “friends or classmates,” 23.17% of them were “alone,” and
19.51% were “in the company of families.” Therefore, in addition to avoiding being alone when doing water
activities, it is equally important to improve the knowledge of water safety for oneself, classmates and families. By
doing so, people are able to provide appropriate assistance when accident happens.
38 The Jing Chuan Child Safety Foundation, Press release for the press conference of stopping children from
falling from height, 2019; The Taiwan Pediatric Association (2015), Statement on preventing children from falling
from height, 2015.
39 “Inhabitants in the condominium with children under 12 years of age or above 65 years of age may install fall-
prevention devices at openings in the outer walls or on balconies without impeding the emergency escape and
protruding from the outer walls. When the causes for the installation of such devices cease to exist and the devices
do not comply with the condominium regulations or decisions made by the unit owner assembly as specified in the
preceding paragraph, the unit owner is required to improve or restore the parts in concern to their original
condition.”
16
refuses to cooperate, and the accidents of children fall from the balconies of their own
homes occur continuously.40 In addition, the Construction and Planning Agency of the
Ministry of the Interior amended the Building Technical Regulations in 2007,41 42
prohibiting horizontal braces for children to step on or climb, in order to prevent
children from falling from height. However, the public works bureaus of local
governments diverge on the definition of horizontal brace. Over the past decade, there
have been accidents of children falling from height as they climb the protrusions on
the exterior wall or empty holes.43
51. We suggest:
(1) The government should amend the wording “no horizontal brace for climbing is
allowed” in Article 38 of the Building Technical Regulations on the Architectural
Design and Construction Code, so as to solve the problem of inconsistent
regulations in different counties/cities caused by the ambiguity of “horizontal
brace.”
(2) The government should strengthen the promotion and enforcement of Article 8
of the Condominium Administration Act, requiring all condominium regulations
to include the clause of fall-from-height prevention.
In response to Points 65, 68 and 69 in the National Report
Children and Youth Accident Injury Prevention System
52. “Accident injuries” have long been the major cause of death and injury for
children and youth aged 0-17 in Taiwan.44 The Children and Youth Safety Action Plan
announced by the Executive Yuan is confronted with the difficulty in cross-agency
40 https://news.ltn.com.tw/news/society/breakingnews/3811566; h ps://news.tvbs.com.tw/local/1655130
41 Article 38 of the Building Technical Regulations on the Architectural Design and Construction Code: The height
of railings installed at terrace, balcony, outdoor corridor, outdoor stair, flat roof, and indoor impluvium shall not be
lower than 1.10 meters. Those installed over the tenth floor shall not be lower than 1.20 meters. For the buildings
whose purposes belong to Group A-1, A-2, B-2, D-2, D-3, F-3, G-2, and H-2, the railings shall not be equipped
with horizontal braces for children to climb or empty space that allow objects having a diameter of 10 centimeters
to pass through. h ps://law.moj.gov.tw/LawClass/LawSearchContent.aspx?pcode=D0070115&norge=38
42 Article 38(2) of the Building Technical Regulations on the Architectural Design and Construction Code:
Description of the use of the building: A-1: assembly and performance, A-2: transportation site, B-2: supermarket,
mall, department store, D-2: cultural and educational facilities; D-3: elementary school building, F-3: children
welfare, G-2: office, H-2: residence.
43 h ps://news.ltn.com.tw/news/society/breakingnews/3767234
44 According to the Ministry of Health and Welfare’s 2020 Annual Cause of Death Statistics, 184 deaths were
caused by “accident injury,” which was the leading cause of death among children aged 0-17. Besides, the
Ministry of Health and Welfare’s 2019 National Health Insurance Annual Statistical Report presented that the total
number of outpatient and inpatient cases (incl. cases of emergency medical treatment) of children and youth under
19 due to “Injury, poisoning and certain other consequences of external causes” was 1,043,747.
17
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cooperation, the shortage of manpower and budget, insufficient injury monitoring,
incomplete implementation, and the mere formality of supervision and performance
assessment, which prevents the situation of children and youth accident injuries from
being ameliorated. The current “action plan”45 executed by law lacks the data on
injury surveillance and corresponding indicators of performance assessment, which
results in the lack of substantial measures for improvement.46
53. We suggest:
(1) The government should formulate clear objectives and preventive strategies for
different types of injuries in the “Children and Youth Safety Action Plan” as soon
as possible.
(2) The Executive Yuan should elevate the level of the competent authorities in
charge of the action plan or establish an independent and dedicated institution to
solve the problems of the local governments’ ignorance and the poor inter-
ministerial communication on the issue.
(3) A dedicated budget and manpower should be allocated to set up a national
accident injury surveillance platform, so as to fulfill the policy promotion and
injury surveillance as well as develop preventive strategies and performance
indicators.
In response to Point 68 in the National Report
Death Review System47
54. Children and youth death review is now at the stage of trial implementation. The
division of labor among different ministries and agencies is coordinated by the central
and local health authorities, and the competences of central and local authorities are
45 Articles 10 and 28 of the Protection of Children and Youths Welfare and Rights Act provide that the competent
authorities shall serve as conveners to invite relevant practitioners to coordinate, study, review, consult, and
promote the welfare policy for children and youth, including regularly convening coordinative meetings for the
prevention of accidents and injuries suffered by children and youth, and formulating action plans for children and
youth safety.
46 Around half (32) of the total of 69 specific safety-oriented measures covered by the action plan belong to
educational promotion. So far, only two local governments in Taiwan handle accident injury prevention through
inter-agency meetings and cross-unit cooperation, which makes it difficult for us to grasp the effectiveness of this
action plan.
47 There are two reasons for promoting child death review. The first is that a significant number of child deaths are
preventable. Related studies show that about one-fifth to one-third of child deaths are preventable. The second is
that the existing statistics on cause of death provide limited information and ergo fail to serve as a specific source
of reference for developing prevention (control) programs (Jiang Bo-Lun, 2020).
18
ergo established as well.48 However, many local governments neither conduct
children and youth death review according to the amendment to Article 13 of the
Protection of Children and Youths Welfare and Rights Act,49 nor devise
institutionalized implementation measures. The practice varies from county/city to
county/city (Table 1). In addition, the subjects of death review in most countries
include children and youth under 18. In Taiwan, it only covers children under 6,
which makes death review unable to consider multiple factors and reflect the major
causes of death of children and youth in Taiwan and the preventability of their
death.50
48 In order to allow the bureaus in different local governments to participate in child death review, the Executive
Yuan’s Child and Youth Welfare and Rights Promotion Task Force resolved on 20 April 2021 to “request the
Ministry of the Interior, the Ministry of Education, the Ministry of Justice, the Ministry of Health and Welfare, and
all local government agencies (units) to cooperate fully in providing the data necessary for child death review and
to participate in the discussion at the meeting.” The Ministry of Health and Welfare also sent an official letter to
the relevant ministries and commissions on 10 August 2021, asking them to inform their respective agencies and
relevant local government bureaus about how to cooperate and assist the health bureaus in promoting child death
review and providing the required case records. (The Child Death Review Project Office, NCKU, 2021)
49 Article 13 of the Protection of Children and Youths Welfare and Rights Act amended in 2019 provides that
“central competent health authority shall conduct retrospective analyses of the deaths of children under 6 and
publish the results of analyses on a regular basis.”
50 By reference to the occidental countries that have long been active in promoting child death review, we noticed
that the selection of cases for review usually takes into account factors such as age, cause of death, place of
residence, and whether to investigate or litigate. Therefore, we suggest our government to sort out the priority of
death review according to the degree of preventability, such as traffic accident deaths, followed by other external
causes of accidents, external causes of intentional injuries (e.g., suicide, child abuse, and homicide), unknown
causes of death, infections, perinatal-related causes, and congenital deformities (Lu Zong-Xue, 2016).
19
Table 1: Comparison of Trial Implementation of Death Review in Different Counties/
Cities
C o u n t i e s / Implementation Basis
Cities
New Taipei The “Child Death Review Task Force” is set up within the “Policy Advisory
City Committee for Children and Youth Welfare,” in which the deputy mayor
serves as the convener and the department of health is responsible for
coordination and implementation.
T a o y u a n Death review is carried out by a task force, and the department of health
City serves as the point of contact.
T a i c h u n g The “Child Death Review Task Force” is set up within the “Taichung City
City Committee for the Protection and Promotion of Children and Youth Welfare
and Rights,” and is responsible for related affairs according to Taichung
City’s CDR implementation plan.
Tainan City Child death review is implemented under the “Principles on the
Establishment of the Child Death Review Task Force in Tainan City”
approved by the city government.
Chiayi City Child death review is implemented on an ad hoc basis by the department of
health in the form of briefing.
T a i t u n g Child death review is carried out by the “Inter-department Task Force for
County Increasing the Average Life Expectancy in Taitung” within the “Health City
and Sustainable Development Committee.”
Kaohsiung Child death review is implemented under the “Guidelines for the
City Establishment of the Child Death Review Advisory Committee in
Kaohsiung.”
P i n g t u n g Child death review is implemented under the “Guidelines for the
County Establishment of the Advisory Committee on Death Review of Children
under 6 in Pingtung.”
Source: Manual for Local Governments to Implement Child Death Review
55. We suggest:
(1) The central competent authority should formulate guidelines for implementation,
hold advisory meetings on child death review regularly, and authorize local
governments to carry out the task, so as to sustain child death review, take local
differences into consideration, and facilitate inter-department coordination.
(2) The government should broaden the age range of death review,51 in order to meet
the international trend and current situation in practice (see Tables 2 and 3). In
consideration of the time it takes to register, select, survey and analyze the
51 Some local governments refuse to conduct death review of children over 6 for reasons of extra workload.
However, as shown in Table 3, the number of cases from the age of 6 to 17 increases by 30%.
20
statistical data on the cause of death, there should be a clear schedule for the
regular disclosure of death review.
Table 2: Characteristic Comparison of Death Review Practice in Different Countries
Country U.K. USA Australia India
Legal basis V V V V
Forward-looking instant V V X V
response
Review organization V V V V
Age Range 0-18歲 0-18歲 0-17歲 0-5歲
Review of Critical Cases V V X V
Operational Guidance V V X V
Family engagement V X X X
Review Report System V V V V
Source: “Strengthen Child Death Review with Medical Records and Information
Collection,” the Ministry of Health and Welfare
Table 3: Annual Number of Deaths of Children and Youth
2018 2019 2020
Under 6 years old 969 872 752
0-11 years old 1,080 971 842
12-17 years old 1,375 1,252 1,102
Source: The Department of Household Registration, Ministry of the Interior
21
In Response to Point 69 in the National Report
Children’s Road Traffic Safety
56. Currently, there is no clear regulations on the delineation of route to school and
school area, which results in the lack of systematic planning and appropriate
management system for pedestrian facilities. In December 2021, a junior high school
teacher in Kaohsiung was hit by a car when acting as a crossing guard. The teacher
has been in a coma for more than a month since the accident. This accident highlights
the long-term problem of road traffic safety for schoolchildren. According to the spirit
of Article 6 of the CRC, the government should not do nothing but pass the buck onto
to schools.
57. We suggest:
(1) The government should provide a comprehensive schoolchildren road traffic
safety plan via the coordination among related ministries.
(2) The transportation agencies should improve the traffic signs or traffic conditions
on the roads with high traffic risk around schools, and the police agencies should
strengthen law enforcement and crack down on traffic violation.
(3) Apart from proactive promotion and law enforcement, all competent authorities
should develop a route-to-school maintenance and management plan (whether
regular or irregular) and check the implementation effectiveness, so as to
continuously review and improve the plan.
Road Traffic Safety Education
58. The Ministry of Transportation and Communications has developed the “Road
Traffic Safety Literacy Framework and Teaching Module.” However, it is little more
than a means of encouragement in the school-based curriculum52 or integration
curriculum termed by the Ministry of Education. Over 80% of teachers in Taiwan
agree that schools should offer road traffic safety education.53 Nevertheless, teachers
are burdened with school affairs and have insufficient time to promote and teach road
traffic safety, which is the greatest difficulty in delivering road safety education in
school. Under the prevalent credentialism in Taiwan, the time originally arranged for
52 Take the elementary school level for example. The curriculum planning framework can be divided into two
categories: “ministerial curriculum” and “school-based curriculum.” The former is a “domain learning curriculum”
that helps students acquire basic knowledge and balanced development, while the latter is orientated as a “flexible
learning curriculum” that includes, inter alia, cross-disciplinary and integrated thematic/topic/issue-based inquiry
courses, club activities and skills courses, and special needs courses, setting great store by inquiry-based, cross-
disciplinary, and integrated curriculum design, which is not mandatory but for encouragement purposes only.
53 This survey was conducted among faculty and staff of all schools in Taiwan who had implemented road traffic
safety education during the year.
22
road traffic safety education is bound to be rearranged for other subjects.54 The
Ministry of Education claimed that the promotion of road traffic safety lacks the
general public’s support, which is diametrically opposite to the survey done by the
Ministry of Transportation and Communications indicating that nearly 90% of the
public support the inclusion of road traffic safety education in the 12-year Basic
Education.55
59. We suggest:
(1) The government should formulate an overarching inter-ministerial promotion
strategy, ensure the inclusion of road traffic safety education in the curriculum,
add new forms of safety risk and traffic modes in the purpose of teaching, and
require a minimum or specific number of course hours.
(2) The government should allocate sufficient resources to road traffic safety
education, draw up appropriate budget, and provide professional manpower
training and support system for schools and organizations at the regional and
local levels. For example, the competent authorities can include road traffic
safety education in the training program for prospective teachers, or strengthen
in-service teachers’ teaching capability and expertise to integrate road traffic
safety into the subjects they teach. Also, the government should regularly track
schools’ instructional effectiveness and design an appropriate assessment
mechanism.
Traffic Conditions of Schoolchildren’s Route to School
60. In Taiwan, the injuries and deaths of children and youth under 17 from road traffic
accidents on the route to/from school mainly occur when they ride slow-moving
vehicles (Table 4).56 However, the government only includes sidewalks into its “route-
to-school planning,”57 but ignores driveway planning and intersection design that are
54 The Ministry of Transportation and Communications, “The Final Report on the 2021 Road Traffic Safety
Curriculum Module Plan for All Learning Levels.”
55 87.46% of the public support the “inclusion of road traffic safety education in the curricula of early child,
elementary, and high schools,” and the approval rate of the age group of 18-34 is higher than 90%. The Ministry of
Transportation and Communications, “The Mid-term Report on the 2019 Road Traffic Safety Monitoring Indicator
Study,” pp. 136-137.
56 The data may not reflect the seriousness of the current situation because the column of “Purpose of Travel”
corresponding to the “Road Traffic Accident Investigation Report Form” has never been faithfully filled in.
57 The Urban Humanity-Oriented Transportation Design Manual published by the Ministry of the Interior in 2018
defines the route to school as “using spatial planning and design or time zone control in school area to provide a
safe route for students to enter and exit the school.” The area set up as the route to school is “demarcated by school
area, i.e., the area in which junior high and elementary school students live.” However, the manual bewilderingly
mentions that “there is no difference between the content and spirit of the establishment of the route to school and
the connotation of the urban pedestrian environment planning and design.”
23
more essential for schoolchildren’s road traffic safety.58 In addition, there is no clear
regulations on the delineation of school route and school area, which results in the
lack of systematic planning and appropriate management for pedestrian facilities.
Moreover, the government fails to adequately inform the general public about the
regulations on road traffic safety, the law enforcement is weak, and pedestrian zones
are often encroached. Existing rules and laws notwithstanding, to ensure road traffic
safety is still like herding cats.
Table 4: Statistic on the injuries and deaths of children and youth under 17 from road
traffic accidents on the route to/from school in Taiwan (slow-moving vehicles and
pedestrians)
2017 2018 2019 2020 2021 Total Average
Bicycle 354 383 368 341 243 1,689 337.8
Electrical Power 7 25 17 16 10 75 15
Assist Bicycle
Electric Bicycle 41 59 87 94 92 373 74.6
Pedestrian 161 148 168 165 96 738 147.6
Total 563 615 640 616 441 2,875 575
Source: The Road Traffic Safety Data Integration and Analysis Platform, Ministry of
Transportation and Communications
61. Schools at all levels do not fully grasp the drop-off and pick-up of students. The
poor coordination and division of labor among the related agencies in the policy on
“improving parent drop-off and pick-up area”59 make it difficult to take proper
planning and control measures. Besides, there is neither a clear and uniform definition
of “parent drop-off and pick-up area,” nor the establishment guidelines. The
government fails to provide statistics on parent drop-off and pick-up area, which
renders the conditions and improvement rate unknown.
62. The government does not provide any data or statistics on the planning for
“increasing pedestrian zones.” Besides, the policy implementation is subject to the
58 Tai Yi-Zhen, “‘The Route to School’: Steering a Path to a Livable City,” 2021. Rretrieved from https://
opinion.udn.com/opinion/story/12135/5782057
59 Previously, a local government’s education department asked elementary schools to investigate the situation of
the drop-off and pick-up for after-school tutoring, only to be questioned by city council members for buck passing,
or was considered by front-line teachers as the most crap official document. News retrieved from https://
tw.appledaily.com/headline/20111024/2UJVMRV5WRAJIZRLHVFAQIPFCA/
24
resources of each local government, and there is a significant urban-rural gap in this
regard.60
63. We suggest:
(1) The route to school should take the holistic road design and space planning into
consideration. Facilities such as bicycle lanes and pedestrian refuge islands that
protect vulnerable road users should be proactively constructed.
(2) The government should demand related agencies to formulate a “route to school
maintenance and management plan” (whether regular or irregular), along with
proactive promotion and law enforcement.
(3) The government should provide clear planning schedule and concrete
performance of implementation on the improvement of the route to school,
including the sites of implementation, the spatial planning, the control measures,
the types and numbers of installed facilities, as well as the statistics on
implementation efficiency and performance assessment.
(4) The local competent authorities should regularly investigate the modes of
students going to/back from school61 by reference to the survey on parents’
opinions about school traffic management measures, and accordingly propose a
clear and viable management strategy for drop-off and pick-up and an inter-
agency division of labor in coordination with regular review and improvement
through supervision and performance assessment.
(5) When establishing pedestrian zones, physical facilities should be given a higher
priority than road surface marking. The competent authorities should provide
related statistics as well as clear and viable improvement plan and schedule.
Road Traffic Regulations and Law Enforcement
64. In Taiwan, special protection measures for vulnerable road users remain wanting.
Related regulations fail to keep up with the international trend. For example, the fines
for breaching the Road Traffic Management and Penalty Act (e.g., vehicles not
yielding to pedestrians) are much smaller in comparison with those in most
60 For instance, “build pathways,” “broaden curb side strips,” “remove electric poles,” “bicycle lanes,” “safety
fences,” “colored paving,” “ensure the continuity of sidewalk pavement,” “install rubber cylinders,” “easily
identifiable curb side strips,” “two-stage road crossing facilities,” “improve roadside gutter facilities,” and other
road improvement measures. The Road Bureau, Ministry of Land, Infrastructure, Transport and Tourism, Japan,
Route to School: Examples of Measures Taken by Road Administrators to Ensure the Road Traffic Safety in Daily
Life, 2017. Retrieved from https://www.mlit.go.jp/road/road/traffic/sesaku/pdf/a-jirei.pdf
61 Including the distance between home and school, the time of arriving at school, the means of transportation, the
number of passengers, after-school activities and venues.
25
countries.62
65. The regulations on child restraint systems are contradictory and out-of-date. For
example, the regulations governing safety equipment on tour buses were amended
recently and require that children over 4 must fasten the seat belt. However, children
under 4 are not subject to any mandatory requirement for restraint systems. In
addition, the preschool buses in Taiwan are out-of-date and lack safety equipment
such as seat belt, which is inconsistent with the international trend of child accident
prevention.63
66. We suggest:
(1) The government should amend related rules and laws as soon as possible,
explicitly demanding that all vehicles carrying children to and from school or
other places must be equipped with seat belts or proper safety devices.
(2) The government should conduct an overall review on current rules and laws,
providing vulnerable road users with better protective measures and burdening
drivers with heavier responsibilities. Meanwhile, more effective law enforcement
and promotion are necessary to advocate a humanity-oriented transportation
environment and culture.
Data Collection
67. Although the government has established the “National Health Insurance Research
Database” and the “Road Traffic Safety Data Integration and Analysis Platform,” the
data collection on non-fatal injury accidents of children still have the problems of
incomprehensive monitoring areas, incomplete monitoring items, flawed data
62 According to the data provided by the Ministry of Transportation and Communications, the fines for vehicles
not yielding to pedestrians in many countries are higher than those in Taiwan (1,200-3,600 NTD), such as France
(4,739 NTD), South Korea (5,523 NTD), State of New Jersey, the U.S. (6,174 NTD), and Japan (13,689 NTD).
Central News Agency, 2020. Retrieved from https://www.cna.com.tw/news/firstnews/202009010041.aspx
63 “In the European Union, since 2006 all coaches and minibuses, including regular school buses, have been
required to be fitted with seat belts. EU research has shown that child restraints can greatly reduce the severity of
road accident injuries. According to the World Health Organization, seat belts are effective in preventing
passengers from being thrown out of a vehicle: 44% of unrestrained vehicle passengers killed are ejected, partially
or totally, compared to only 5% of those wearing seat belts. In Singapore, legislation was passed in 2009,
mandating the fitting of seat belts in all small buses, following a fatal accident in 2008, when an eight-year-old,
who was not wearing a seatbelt, was thrown out of a school minibus, and killed.” (2022 Position Papers, European
Chamber of Commerce Taiwan, 2021). Besides, the Japan Automobile Research Institute has published a series of
research on children-only bus with seat belt. It pointed out that, when a frontal collision or rollover occurs, the
two-point seat belt will secure the child in the seat and have the effect of preventing or reducing injuries to the
child (Sugita Koji and Hayashi Takehito, et al. 2019). It also ran experiments to show that, if children are properly
trained, the use of seat belts will not take them a longer time for emergency escape (Ishii Mitsuru and Sugita Koji,
et al. 2017). In 2020, the U.S. National Transportation Safety Board suggested that each state should make seat
belts in school buses compulsory. The U.S. National Highway Traffic Safety Administration demand that school
minibuses should be equipped with seat belts, because school minibuses are closer in size and weight to passenger
cars and trucks, which renders seat belts in these vehicles necessary to afford occupant protection.”
26
registration, and data inaccessibility.64 For example, the E-code in the National Health
Insurance Research Database is always not concretely provided, resulting in
incomplete records of injury locations, mechanisms, and activities. On top of that, it is
not available for public inquiry for reasons of privacy and personal information
protection.65 The “Road Traffic Accident Investigation Report” is the data source of
the Road Traffic Safety Data Integration and Analysis Platform managed by the
Ministry of Transportation and Communications. Some items in the report are defined
in a vague and general fashion, and there is a lack of information on people, vehicles,
roads66 and environment. Besides, front-line personnel are busy and lack adequate
equipment, expertise and time, hence in incomplete records and presentation of
existing data. Moreover, human errors are common in the process of data registration
and archiving, which also undermines the usability of existing data.67
68. We suggest:
(1) Short-term: Based on the specific purpose of injury monitoring, the government
should enhance the data collection, fully implement the E-code records of injury
cases in medical institutions, establish a standardized registration procedure for
statistical data, consistently define and explain the statistical categories, ensure
data de-identification, and develop a list processing system that not only reduces
human errors and demand for manpower, but also reinforces data connection and
presentation.
(2) Medium-term: The government should use the Injury Surveillance Guidelines68
published by the World Health Organization as a reference, thereby taking stock
of missing information on injury and working out an archiving schedule to
improve the incomprehensiveness of monitoring areas. The government should
also fulfill data visualization by integrating existing data into the Geographic
Information System (GIS).
(3) Long-term: The government should set up an independent first-level accident
injury data monitoring agency which is responsible for coordinating and
64 The Division of Child Health Research, National Health Research Institutes, “The 2030 Policy Proposal Outline
for Children’s Healthcare,” The Ministry of Health and Welfare, May 2019. https://reurl.cc/oxeNyv
65 Chen Pin-Ling and Bai Zhi-Wei, “Accident Injury Monitoring Data Statistics and Value-added Application
Project (expanded after 2016),” The Health Promotion Administration, Ministry of Health and Welfare, November
2017. https://reurl.cc/aN16Zl
66 For example, obstructed line of sight of drivers, seats and vehicle age.
67 The Transportations Safety Division, Institute of Transportation, Ministry of Transportation and
Communications, Review, Revision and Statistical Application of Road Traffic Accident Investigation Report, June
2019.
68 World Health Organization, Injury Surveillance Guidelines (No. WHO/NMH/VIP/01.02), 2001.
27
integrating the data collected by central and local authorities, supervising the
collected data, and achieving at least the minimum data set for monitoring
purposes. In addition, the government should establish an inter-ministerial data
archiving platform to analyze, assess, review, and propose evidence-based
prevention strategies, orientations, and objectives for children accident injuries.
In response to Points 30, 62 and 63 in the Concluding Observations/Points 70-72
in the National Report
The Government Fails to Effectively Prevent Child Suicide
69. In Taiwan, the number of child death by suicide almost doubled between 2016 and
2020,69 and the number of child suicide notifications spiked from 1,152 in 2016 to
5,464 in 2020.70 As much regrettably, the number of student death by suicide at the
elementary and high school levels also rose from 28 in 2016 to 47 in 2019.71 The
National Report just repeats existing policies without outlining any proactive strategy.
70. Of all the notified minor suicide and self-inflicted injury cases, “depressive
personality, depression or other mental illness” have become the primary causes in
recent two years, and its percentage grows from 26.4% in 2016 to 47.1%. The other
compound causes include family problems, adaptive obstacles, and emotional issues.
Statutory Regulations on Children and Youth Psychological Counseling
71. Article 19(2) of the Psychologists Act provides that “the psychologist shall also
obtain the consent of his/her clients or their legal representatives and advise them of
their rights.” This clause neither specifies the age threshold below which the consent
of legal representatives is mandatory, nor clarifies related matters that require
attention.
72. According to related practice, counseling psychologists are allowed to open cases
only after obtaining the consent of minors’ statutory agents. However, the rigid and
ambiguous regulations may result in belated intervention by professional counselors
and neglect of the right of children and youth to express whether they will accept
69 Appendix 3-5 of the National Report
70 Appendix 3-10 of the National Report
71 Appendix 3-11 of the National Report
28
medical treatment or not.72
73. Given the ambiguous psychological counseling regulations, even if children and
youth can seek psychological counseling on their own, they can by no means afford
the high cost of counseling.
High Rate of Suicide and Self-inflicted Injury among Children and Youth
74. The information released by the government comes from “notification
information” rather than “case investigation,” and, under the current rules and laws,
child death review is conducted only on children under the age of 6. Therefore, the
factors behind suicide in children over the age of 6 remain unidentified.
75. Point 72 in the National Report states that the government has provided
counseling for high-risk children and youth, such as those who have attempted suicide
or self-injury. Nevertheless, the government has no specific and effective measures to
eliminate the factors detrimental to children’s physical and mental health, such as
physical and psychological violence, excessive workload, and insufficient rest.
76. According to practical experiences and special reports,73 there is a shortage of
manpower in the existing full-time counseling mechanism in schools. The counseling
personnel range from the sublime to the ridiculous. The urban-rural gap in resources
grows. The changes of counseling personnel occur frequently. The administration’s
“Three-tiered Plan to Prevent Students’ Self-inflicted Injury” does not address the
paucity of resources and expertise on campus.
77. We suggest:
(1) The government should establish a death review system for children and youth
aged 7-18. In particular, the cases of children and youth suicide should be
prioritized for death review. The results should be publicly reported and the
government should make policy responses.
(2) The government should strengthen the promotion of physical and mental health
for children, adolescents and their parents, with a specific focus on de-
72 Some of the situations are listed below for reference: (1) the legal representative disallows the minor to have
psychological counseling, but the minor is in need of it; (2) the minor needs psychological counseling because of
domestic violence or domestic sexual assault, and it is inappropriate to require the perpetrator’s consent; and (3)
uncovering the reason for the minor to seek psychological counseling may lead to a stressful situation in the
minor’s family.
73 “The Melancholic Generation: Who Murdered the Adolescents in Taiwan,” United Daily News. https://udn.com/
newmedia/2021/teenage_depression/
29
stigmatizing physical and mental issues.
(3) In order to better understand the needs and difficulties of minors who seek
psychological counseling, and to make corresponding policies and regulatory
explanations, the central competent authority should: (A) Invite relevant
professionals (e.g., counseling psychologists, psychiatrists, and youth
counselors) to hold discussion forums on the measures for minors to seek
counseling on their own.(B) Explicitly define the “age” mentioned in Article
19(2) of the Psychologists Act.(C) Convene expert meetings aimed not only at
developing various channels that make children and youth as the subjects and
allow their stakeholders to express their views, but also at investigating the needs
and difficulties of children and youth in receiving psychological counseling and
related service.
In response to Points 30, 86, and 107 in the National Report
Children’s and Youth’s Freedom of Expression in the Alternative Care System
78. Some children and youth do not have the opportunities of full participation and
expression before entering the placement system, during the placement process, and at
the transition stage. Currently in Taiwan, only the Juvenile Justice Act provides that
court rulings shall take into account adolescents’ opinions. The entrusted placement in
the social administration system employs an overly simplified scale to assess
children’s and youth’s willingness to undergo the placement process. As for the
phases of alternative care service, such as admission to placement, placement
transition (incl. change of place and discharge), and treatment plans, no rule and law
stipulate that adolescents’ opinions shall be taken into account.
Complaint Mechanism in Placement Organizations
79. Observing the life experiences of children and youth in placement organizations,
we found that there are still staff members who lack awareness of child rights and
curtail their freedom of expression. For example, when children and youth want to
submit proposals for discussion at residential or family meetings, their proposals will
be examined and filtered by the staff first. Some proposals may be blocked, or the
staff may remind the children and youth that “fewer comments, fewer problems. It’s
more trouble than it’s worth to have so many opinions,” which frustrates children’s
and youth’s effort of expression and gradually curbs their willingness to make their
voices heard.
80. Both the internal and external complaint mechanisms of the alternative care
30
system are neither friendly enough towards children and youth, nor adequate in
protecting their privacy. Children and youth said that complaint boxes in alternative
care centers are seldom used, and staff of alternative care centers also stated that the
complaint line is mostly used by complaining parents. Over the past 10 years, the
competent authorities have received only 6 external complaints, which clearly shows
the ineffectiveness of the complaint channel.
81. We suggest:
(1) Practitioners in the alternative care system should receive comprehensive
training in child rights and establish a supervisory empowerment mechanism on
site, so as to promote the best interests of children and youth as a priority in high
stress care settings.
(2) The government should establish a mechanism for children and youth to voice
their opinions in the alternative care system, and solicit opinions from children
and youth as well as consider including them in alternative care-related rules and
laws.
(3) The government should assist children and youth who have difficulties in
expression, such as providing children and youth suffering physical and mental
disabilities with personnel or equipment assistance to facilitate their expression,
or arrange interpreters for non-Chinese speaking children and youth.
In response to Points 31 and 32 in the Concluding Observations/Points 73-86 in
the National Report
Child-friendly Environment for Expression
82. Student organizations, children and youth committees in the public sector, and the
children and youth delegation systems have been widely established to offer children
and youth more opportunities to participate in decision-making on public affairs.
However, when expressing their views, children and youth are often confronted with
unfriendly responses from adults,74 or the meetings are still set up from the adult
perspective and do not meet the needs of children and youth.75
74 Student organizations often get unfriendly responses at school meetings. Their proposals may be directly
handled by voting. They are even rebuffed when demanding that schools’ measures should be in compliance with
the law (e.g., lifting the hair ban, do not compel students to take the eighth class, do not punish students for
violation of dress code). Some private schools may even tell their students that “this is the rule of this school. If
you don’t like it, you can enroll in another school.”
75 The meeting schedule, agenda, and process of the children and youth rights committee of each county and city
are still designed primarily in consideration of adult members. Children and youth are often confronted with
arrangements that are not in their best interests, such as meeting convened during school exam or shortened
reporting durations in meeting.
31
83. The government just focuses on whether children and youth have the “opportunity
for participation” and whether their “identity as children and youth” is required by the
CRC. It lacks the implementation check mentioned in CRC/GC/No.12 (e.g., the right
to be fully informed, child-friendly information environment, the right to be given due
weight, and responses), and does not examine the effectiveness of children’s and
youth’s physical participation. As a consequence, the government fails to encourage
continued participation of children and youth in the process of public policy-
making.76
84. Although there is a promotional brochure compiled in cooperation with the private
sector, and the CRC empowerment training courses are conducted under the Taiwan
lottery feedback fund program, it is not mandatory for school faculty and staff or
supervisors with decision-making power to understand and follow, hence no
discernible effect on rights protection.
Delegates from Local Children and Youth
85. In Taiwan, the law has been amended77 and the status of children and youth
delegates in local governments’ children and youth committees had been elevated
from “attending as non-voting delegates” to “attending as voting delegates.” In
practice, however, the mechanism after the amendment is not as friendly as it was
before the amendment. When children and youth delegates were simply non-voting
attendees, most of them were allowed to be present in the meetings. After the
amendment, some local governments allow only the children and youth who are
committee members to attend the meetings and deprive other delegates of their right
to participation for reason of “limited attendance.”
86. Some local governments set a limit on the number of proposals submitted by
children and youth delegates, specify the standard format, distort the content of the
proposals, or unduly involve in drafting the proposals, rendering delegates’ honest
opinions unheard. School faculty and staff often prohibit children and youth delegates
from taking leave for government meetings, because the former do not understand the
latter’s engagement in public affairs.
87. There is a huge urban-rural gap in the capacity and resources among local
76 Appendix 3-12 of the National Report
77 The Implementation Act of the Convention on the Rights of the Child, and the Protection of Children and
Youths Welfare and Rights Act
32
governments, which leads to a substantial difference in local governments’ budget on
empowering children and youth delegates. On top of that, the age of children and
youth delegates varies from county/city to county/city, and some adults over the age
of 18 are delegated to represent children and youth.
88. We suggest:
(1) As the competent authority, the Ministry of Health and Welfare should lay down
the rules for children and youth delegates to join government meetings as the
minimum standard for local governments to follow, so as to ensure that the
implementation by local governments will not trample on children’s and youth’s
right to participation, and that no discrepancy will arise from differences among
local governments.
(2) The Ministry of Health and Welfare should hold regular liaison meetings to
assist local governments in gradually incorporating the CRC’s spirit into the
children and youth delegation system, so as to rectify local governments’
operational problems. Besides, the Ministry of Health and Welfare should
increase its subsidies for local governments on the children and youth
empowerment program, pool empowerment resources, and provide personnel
training, in order to substantially change the quality of children and youth
empowerment.
(3) The Ministry of Health and Welfare should introduce an effectiveness evaluation
mechanism that operates in conjunction with the current survey on children and
youth empowerment,78 in order to heighten the sense of self-efficacy
experienced by children and youth delegates and to embody the spirit of
effectively incorporating children’s and youth’s opinions into national policies.
(4) In view of the situation in which schools prevent children and youth delegates
from taking leave for statutory reasons, the Ministry of Education should
develop guidelines for schools at all levels on this matter and provide school
faculty and staff with the CRC educational training that increases their
proficiency in this regard, insofar as to ensure that the participation of children
and youth will not be restricted.
78 Currently, the Ministry of Health and Welfare is responsible for conducting annual surveys on the practice of
each local government in children and youth empowerment, and the data include the age and identity of children
and youth delegates, the number of participants in the training programs, as well as the number and types of
proposals put forward on the committee. However, no effective evaluation mechanism has been developed to
investigate children’s and youth’s satisfaction with the training program, their sense of self-efficacy about
submitting proposals to the committee, and their perceptions of how important they are, which is why the the
children and youth delegation system is often improved at no other level than legislation.
33
Chapter 4: Civil Rights and Liberties
In response to Points 27 and 28 in the Concluding Observations/Point 100 in the
National Report
Religious Groups on Campus
89. The Gender Equity Education Act is not fully implemented. Many schools79 still
allow groups with religious backgrounds to deliver life education or character
education in the morning session or after-school tutoring session. These groups
promote Christian doctrines and chastity, reinforce gender stereotypes, and advocate
anti-homosexuality in the classroom.80 As a response, the Ministry of Education
issued the “Notes for Off-Campus Personnel Assisting in Teaching or Activities at the
Elementary, Middle, and High School Levels” in May 2020, stipulating that (1)
regular teachers should be present when off-campus personnel assist in teaching; (2)
the courses and teaching material they provide must be reviewed by the school;81 and
(3) the content they deliver shall not violate the curriculum guidelines, related laws,
and the International Bill of Human Rights.82 However, the “Notes” are not
implemented properly, since incidents of religious groups on campus still occur
frequently.83
79 Take the Rainbow Family Life Education Association for example. According to the exclusive interview by
IMPACT, the association has more than 6,000 volunteers in over 600 elementary schools around Taiwan. Tsai
Ming-Hsian, “The 20th anniversary of the Rainbow Family Life Education Association—The second-generation
entrepreneurs tell stories by a story van touring around Taiwan as a token of appreciation for the efforts made by
the 6,000 volunteers of the association,” IMPACT, 20 June 2019. https://ct.org.tw/html/news/3-3.php?
cat=12&article=1344181
80 It is difficult for outsiders to know the exact content the group teaches in schools, because their course and
teaching material are not open to the public. Some parents created a Facebook fan page titled “Protecting Our
Children—Return Purity and Professionalism to Schools,” accepting parents’ anonymous complaints and collating
some of the content taught by the group. https://www.facebook.com/schoolpure/
81 Article 5 of the “Notes for Off-Campus Personnel Assisting in Teaching or Activities at the Elementary, Middle,
and High School Levels.”
82 Article 6 of the “Notes for Off-Campus Personnel Assisting in Teaching or Activities at the Elementary, Middle,
and High School Levels.”
83 Chen Yen-Heng, “Playing tricks for religious infiltration: Religious groups like the Rainbow Family Life
Education Association enter schools ‘under a false name’ and clandestinely disseminate anti-homosexual material
and preach to students,” Up Media, 25 November 2020. https://www.upmedia.mg/news_info.php?
SerialNo=100894
34
90. We suggest:
(1) According to Article 15 of the Gender Equity Education Act, “gender equity
education shall be incorporated into the pre-service training of teaching and
other staff members, the orientation training of new staff members, in-service
education programs and training courses for educational administrators. The
professional teacher training programs provided by universities that offer teacher
training programs shall have gender equity education related courses.” However,
the effectiveness remains to be improved. The competent authorities should be
more active in grasping the level of teachers’ knowledge about gender equity and
thus properly implement related laws and regulations.
(2) The competent authorities should supervise and urge schools to fully implement
the “Notes for Off-Campus Personnel Assisting in Teaching or Activities at the
Elementary, Middle, and High School Levels” and the review of curriculum.
In response to Point 33 in the Concluding Observations/Point 91 in the National
Report
Stateless Children
91. Under the current regulations in Taiwan, the newborns whose parents do not have
any proof of lawful residency (e.g., parents are both undocumented migrant workers,
or one of them is a legal resident but the other is not) can only apply for Taiwan’s
national health insurance on a case-by-case basis.84 The newborns whose parents are
lawful migrant workers, and the registered non-Taiwanese children and youth who
have acquired their residence permits, ought to be eligible applicants for Taiwan’s
national health insurance. In practice, however, the application procedure for the
insurance is relatively complicated, and it will be quite difficult for them to apply
without one-on-one assistance.
92. With regard to the infringement of the right of stateless children and youth to
medical care, the Control Yuan Investigative Report85 suggests that the National
Immigration Agency should consider issuing provisional residence permits to stateless
children and youth by treating them as the subjects of right instead of treating them
with their parents’ identities or whereabouts.
84 The procedure includes the presentation of official marriage certificate or the outcome of paternity test. The
father in question may be unable to afford the cost of paternity test or doesn’t know how to do it owing to the
complex process or information gap. If the mother in question is undocumented migrant worker, she may refuse to
provide relevant documents for fear of exposing her identity.
85 The Control Yuan, The Control Yuan Investigative Report, (2019), Nei-Diao no. 0100. https://www.cy.gov.tw/
CyBsBoxContent.aspx? 2n=133&s=6871
35
93. We suggest:
(1) The National Immigration Agency should issue provisional residence permits to
the children and youth whose parents do not have any proof of lawful residency.
Social welfare centers or the social affairs bureaus of local governments may
commission migrant worker-friendly institutions to tackle this issue on a case-
by-case basis, thereby reinforcing the intervention in children’s and youth’s right
to health and helping them acquire Taiwan’s national health insurance and
vaccination.
(2) The description of the application procedure for Taiwan’s national health
insurance should be multilingual. Human resource agencies or NGOs can help
distribute the description for migrant workers’ reference, so as to bridge the
information gap and enable them to apply for the insurance by themselves.
The Qualification of Hong Kongers as Political Refugees
94. Since 2019, political persecution in Hong Kong has forced many activists or
supporters of the Anti-Extradition Law Amendment Bill Movement to leave their
hometown.86 Currently, Article 18 of the Laws and Regulations Regarding Hong
Kong and Macao Affairs is the legal basis for Taiwanese government to deal with this
issue. The competent authorities will conduct a joint vetting procedure of individual
cases, and help the individuals apply for resident status after they passed the vetting.
However, in other countries, individuals will directly acquire refugee status after
passing the vetting, which is different from Taiwan’s approach. In Taiwan, individuals
who passed the vetting do not automatically obtain resident status but still have to
complete the application procedure. Contrary to the general practice in the world, this
procedure in reverse order will cause more difficulties for those who seek political
asylum in Taiwan.
95. Following Point 94, due to the lack of clear laws to govern this issue, practical
assistance is offered by the Taiwan-Hong Kong Services and Exchanges Office on an
ad hoc basis. It is debatable whether such assistance is sustainable and stable. The
situation worsens when it involves children. It is reported that an asylum seeker from
Hong Kong gave birth to a baby in Taiwan. The baby becomes stateless because its
parents cannot return to Hong Kong, and there are no applicable laws for it to obtain
Taiwanese nationality.
96. Currently, medical resources such as vaccination for stateless newborns can only
86 Most of them are young adults, and a small number of them take all their families along with them.
36
be acquired through private funding. Besides, stateless children’s health may be
severely undermined if they cannot have national health insurance during their
coming of age owing to their identity issue.
97. Furthermore, the enrollment of stateless children will be affected for they cannot
register as enrolled students. Even if they are allowed to sit in on classes, they will not
receive school certificates after completion of studies.
In response to Points 35 and 36 in the Concluding Observations/Points 101 and
102 in the National Report
Minors’ Freedom of Assembly and Association
98. At the end of 2020, the Legislative Yuan passed the amendment to the Civil Code,
which lowers the legal age of majority from 20 to 18. It also passed the other 25
amendments to other laws such as the Civil Associations Act and the Assembly and
Parade Act, replacing the term “20 years of age” in the original clauses with
“majority.” However, the only improvement made by these amendments is to lower
the age threshold of the initiators to 18. The “spirit” of the two Acts since 1987 still
manifests itself in other unreasonable restrictions on the citizens’ (incl. children’s)
freedom of expression. Problems including the prior permission required for assembly
and association, the cumbersome application procedure, restricted zone, and the abuse
of the police power on the assembly sites have long been denounced. Civic groups
have also proposed parallel reports many times in the national reports on the ICCPR
for the meeting of the international review. Despite that, the amendments to the
original frameworks of the two Acts remain wanting.
99. In addition, the two Acts only allow “nationals who have attained majority
without criminal record” to initiate assemblies. The overall legislation does not
consider the possibility for children or non-nationals to participate in assemblies or
associations. In the current situation, children and youth who intend to initiate related
activities must ask adults to apply for the activities on behalf of them.
100. In practice, problems arise because student groups on campus cannot register as
civil associations. The operation of student groups is to a large extent subject to the
influence of “adults” in schools, and students cannot autonomously determine the
status of student groups. The closeness of schools and the power relations between
teachers and students have prevented outsiders from obtaining relevant data.
101. The Ministry of the Interior has removed the age restriction in the draft of the
37
Social Associations Act it published in 2016. The requirement for “full disposing
capacity” of the person responsible was relaxed as “the person who has limited
disposing capacity with the consent of the person’s legal guardians.”87 However, the
Social Associations Act was not passed at that time. In the session of the Legislative
Yuan that began in early 2020, the Executive Yuan did not send the draft to the
Legislative Yuan for deliberation. In recent years, the number of student groups
comprising children or youth has mushroomed, but they cannot register as civil
associations, which directly results in the infringement of children’s rights of
assembly and association because they can neither apply for governmental subsidies
nor rent governmental venues.
102. We suggest:
(1) The government should amend the Assembly and Parade Act as soon as possible,
so as to lift unreasonable restrictions on assembly and parade.
(2) The Legislative Yuan should pass the Social Associations Act as soon as
possible, so as to protect children’s and youth’s right to form associations
recognized by law.
(3) When granting subsidies, the government should consider the application from
unregistered children or youth groups.
In response to Point 37 in the Concluding Observations/Points 103-105 in the
National Report
Privacy on Campus
103. “Teachers have carried out searches of students’ personal belongings for reasons
other than those stipulated by law [...]. The Review Committee recommends that the
Government take all necessary measures to protect children from such unlawful and
arbitrary interference with their right to privacy.”88 The National Report has listed
relevant laws in Point 104 and indicated the number of people punished for
infringement of privacy on campus in Attachment 4-3. However, the laws listed in the
National Report have remained unrevised since last international review meeting. The
number of people punished is merely 7 over the past 5 years, which is much smaller
than the number of relevant cases actually handled by civic groups.
104. The National Report simply mentioned Article 30 of the Guidelines on Student
87 “If the above-mentioned person responsible is a person who has limited disposing capacity, the person will have
full disposing capacity on the affairs of the association to which the person belongs with the consent of the
person’s legal guardian(s).”
88 Please see Point 37 in the Concluding Observations.
38
Counseling and Discipline, but ignored Article 29 which stipulates that “schools may
conduct regular or irregular search of student dormitories under the regulations
governing the administration of student dormitories.” This article empowers school
authorities to search student dormitories “without any justifiable reason.” We received
a complaint from the students of the National Ping Pei Senior High School at the end
of 2021.89 The students accused that the military training instructors in their school
entered the student dormitories during the final exam, searching their personal
belongings and ignoring objections voiced by the student representatives on site. The
Ministry of Education did not punish the school authority, which is obviously
inconsistent with the content of the National Report.
105. Following Point 104, Article 30 of the Guidelines on Student Counseling and
Discipline empowers school authorities to search for “books, pictures, videos or other
items involving obscene or violence,” and “cigarette, alcohol, betel nuts or other
substances hazardous to students.” These items may not cause imminent danger.
However, the school made undue interference in students’ privacy, which violates the
principle of proportionality and runs counter to the notion of “counseling prior to
discipline.”
106. In addition, the current Guidelines for School Regulations on Student Counseling
and Discipline empower school authorities to inspect students’ bodies and personal
belongings. It is noteworthy that the Ministry of Education regards the Guidelines as
“administrative guidance” in terms of legal status. It implies that the inspection power
that the Guidelines grant school authorities, while actually not empowered by law,
violates the principle of legal reservation.
107. We suggest:
(1) The inspection of students’ personal belongings should be empowered by law
and should not be conducted without any justifiable reason.
(2) The scope of search conducted by school authorities should be confined to
illegal items that may cause imminent danger.
(3) There should be a comprehensive procedural protection during the search
process, and students should be informed of the channels to file complaints and
seek remedies. The competent authorities should impose fitting punishment on
the school authorities who commit offenses.
89 The school authority of the National Ping Pei Senior High School searched the student dormitories during the
final examination. The students protested by arguing that even criminal suspects receive fairer treatment than they
do. https://udn.com/news/story/6898/5187459.
39
Chapter 5: Preventing Violence against Children and Youth
In response to Point 39 in the Concluding Observations/Point 115 in the National
Report
Children and Youth as Eyewitnesses of Domestic Violence
108. Regulations and laws90 have been made on helping children and youth who have
witnessed domestic violence: inform the competent authorities of the cases by
referrals online, and schools decide whether to activate the level-3 counseling.
However, there is neither related regulations on schools’ assessors and assessment
tools, nor the criteria for evaluating the level of counseling needs of children and
youth.
109. According to official statistics on the counseling cases of children and youth as
eyewitnesses of domestic violence in 2020,91 the competent authorities received the
referrals of 12,722 children and youth (from kindergarten to senior high school) who
have witnessed domestic violence, and the largest group among them (68%) were
treated by class teachers and school counselors. However, apart from the “educational
training” that helps teachers develop proficiency in counseling children and youth as
eyewitnesses of domestic violence, there is no follow-up assessment and supervision
mechanism concerning the situation of these children and youth after receiving
counseling. Furthermore, there is a lack of related assistance for class teachers and
school counselors who encounter difficulties in the counseling process.
110. We suggest:
(1) Qualified professionals (e.g., social workers and counseling psychologists in this
field) should be incorporated into the team when schools decide to activate
level-3 counseling.
(2) After activating level-3 counseling, schools should establish mechanisms for
follow-up assessment and supervision, such as holding follow-up meetings on a
regular basis to assess the cases that receive counseling, and inviting external
professionals to offer assistance or suggestions for the counselors encountering
difficulties.
90 Articles 4 and 8 of the Domestic Violence Prevention Act, and the Guidelines on Counselling and Treating
Children and Youth as Eyewitnesses of Domestic Violence.
91 The Ministry of Education (2021), the Working Report of the 6th Meeting of the 4th Task Force on Domestic
Violence and Sexual Assault Prevention, the Ministry of Health and Welfare.
40
In response to Point 57 in the Concluding Observations/Points 127 and 128 in the
National Report
Corporal Punishment as a Parental Right
111. According to the statistics compiled by the Ministry of Health and Welfare, the
number of children and youth who died of the abuse committed by their parents or
caregivers does not decrease under the current regulation of related laws.92 The
government neither amends the laws to explicitly prohibit domestic corporal
punishment (see Point 107), nor precisely defines “corporal punishment.”93
112. In Taiwan, the Civil Code94 breaches Article 19 of the CRC,95 and the court
agrees that parents may inflict corporal punishment upon their children.96 It is clear
that the country encourages parents to use child-rearing and upbringing as an excuse
for corporal punishment.97 The court’s ruling indicates that beating children and youth
over their hands, legs and buttocks with “bare hands” or “leather belts” is within the
parental right to use punishment. The judicial interpretation of the parental right to
inflict punishment upon their children still includes partial corporal punishment.
113. Even if amendments are made to the Protection of Children and Youths Welfare
and Rights Act in the future that include a prohibition on corporal punishment and
verbal abuse, the parental right to corporal punishment may offer an affirmative
defense to parents’ physical and psychological violence against children and youth
that render such kind of conducts lawful (incl. administrative laws).
92 https://dep.mohw.gov.tw/DOS/mp-113.html
93 So far, only the Enforcement Rules of the Teachers’ Act provides a definition of the corporal punishment inflict
by teachers on students. However, this definition fails to encompass all types of perpetrator, which renders a
separate legal definition necessary. Besides, the definition of corporal punishment in the Enforcement Rules of the
Teachers’ Act is premised on the purpose of discipline, and is often misinterpreted in practice. For instance, some
teachers or staff may claim that “this conduct has a purpose of physical training” as an excuse to circumvent the
definition of corporal punishment, so as to escape penalties. The committees handling related cases usually accept
this sort of claims.
94 Article 1085 of the Civil Code provides that “parents may, within the limit of necessity, inflict punishment upon
their children.”
95 Zhang Yu-Ling (2017), Moving toward a Non-Violence Child Rearing Society—Starting from Implementing the
Prohibition of Corporal Punishment under the Convention on the Rights of the Child.
96 The Taiwan High Court’s Decision, Appeal No. 17 (2018) states: “The defendant is the birth mother of Pan (the
child as the punishment receiver in this case), and is ergo entitled by law to punish her child within the scope of
necessity […]. The defendant punished Pan for disobedience. She beat Pan over his hands, legs and buttocks with
bare hands and a leather belt because Pan disobeyed her admonishment and took dangerous articles (glass and
lighter). This form of discipline is reasonable and within the scope of parental right to punish minor children.
Under Article 21(1), this conduct is not punishable.”
97 Child Welfare League Foundation (2016), The 2016 Survey on the Domestic Violence against Children and
Youth in Taiwan, retrieved from: https:// 6www.children.org.tw/publication_research/research_report/2206
41
114. We suggest: Taiwan should learn from the precedent of South Korea, a
neighboring country deeply influenced by its patriarchal system, and finally abolish
the parental right to inflict corporal punishment upon their children, whereby Taiwan
can go further in preventing violence against children and youth.
115. The incidence of domestic physical and psychological violence against children
in Taiwan is increasing year by year.98 Corporal punishment and scolding remain the
staple of parents’ approach to bring up their children. If the government refuses to
abolish the parents’ right to inflict corporal punishment upon their children, parents
will continue to enjoy the legal justification and support for physical and
psychological violence against their children, which is seriously detrimental to
children and youth.
116. We suggest:
(1) The government should repeal Article 1085 of the Civil Code, or replace it with
the obligation of protection and upbringing.
(2) The government should explicitly outlaw domestic corporal punishment, and
prohibit physical and psychological violence, quovis modo, against children.
(3) The definition of corporal punishment should be clarified by law, and it should
not be confined to specific purpose and extent.
In response to Points 52, 53, 56 and 57 in the Concluding Observations/Point 130
in the National Report
Governmental Survey Questionnaire Concerning School Corporal Punishment
upon Children and Youth
117. Designed by the government, the survey questionnaire is either completed as
schools’ self-appraisal or by students in classrooms with the presence of their
teachers. There have been several instances of teachers guiding students to fill in the
questionnaire at schools,99 which clearly violates students’ freedom of expression.
98 Article 1085 of the Civil Code provides that “parents may, within the limit of necessity, inflict punishment upon
their children.” It results in a conflict between the parental right to inflict punishment and the right of children and
youth to be protected from violence. According to the statistics in Appendix 5-2 of the 2nd National Report,
victims of corporal punishment and inappropriate discipline has increased in number year by year. Parents are still
accustomed to bring up their children with corporal punishment and scolding.
99 In the cases of corporal punishment, some victims indicated that their teachers told them that “running on the
track is not corporal punishment” or “demanding you to beat yourself is not corporal punishment because I didn’t
beat you.” If the questionnaire is completed by children under the supervision of their teachers, their teachers may
distort the definition of corporal punishment or directly “suggest” the answers for the questionnaire, and may even
trample children’s right of not to speak.
42
Besides, the questionnaire completed as schools’ self-appraisal is an action of mere
formality. Even if the content filled in the questionnaire is cut off from the realities,
schools are not liable for the discrepancy. Therefore, the resultant data that tend to
deviate from the real situation will hamper the government’s efforts to formulate
national policies that protect children and youth from violence in all its
manifestations.
118. We suggest:
(1) The government should assess the reliability and validity of data on sensitive
issues.
(2) The government should ensure that children and youth are adequately informed
of related information and placed in a safe and friendly environment when filling
in questionnaires.
In response to Points 52, 53, 56 and 57 in the Concluding Observations/Points
129 and 130 in the National Report
Physical and Psychological Violence against Children and Youth on Campus
119. Instances of physical and psychological violence against children and youth on
campus still frequently occur.100 From our practice in helping children and youth as
victims in this regard, we found that, in the schools’ mechanism for handling related
cases, the committee having discretion comprises primarily “the colleagues of the
perpetrator.”101 With such a conflict of identity, the offenses that meet the definition of
“corporal punishment” may be leniently interpreted as “inappropriate discipline,”102
which is often punishable by reprimand only.
120. In the government-collected data, the cases of “corporal punishment” may be
categorized as “inappropriate discipline,” hence the false illusion as to offenses of
physical and psychological violence against children and youth on campus have
decreased in number. The National Action Plan for Terminating Physical and
100 The competent authorities have misunderstood the actual situation due to the bias mentioned in Point 115.
101 Article 4 of the Regulations on the Dismissal, Suspension, or Discontinuation of Employment of Teachers at
the Elementary, Middle, and High School Levels provides that all the 5 members of the committee are selected by
school principal, and 3 of them are colleagues at the same school. According to the Guidelines on the Formation of
Teacher Evaluation Committee at the Elementary, Middle, and High School Levels, only 1 (parents’
representative) of the 5-19 members is not colleagues at the same school. In practice, the number of external
members has been increased so that “the faculty representatives who do not double as administrative staff or board
member” account for less than 50% of the committee members. However, the colleagues at the same school will
still build a majority in the committee if the members from administrative staff are included.
102 Please see the corrective measures proposed by the Control Yuan (no signs of improvement so far). https://
www.cy.gov.tw/CyBsBoxContent.aspx?n=134&s=6238
43
Psychological Violence against Children and Youth will be thwarted as well. The
government is not aware of the flaws in the procedure of safeguarding children and
youth. It simply follows previous policies on stopping physical and psychological
violence against children and youth, and ergo fails to yield practical results.
121. We suggest:
(1) The government should have a clear picture of how children and youth suffer
violence at school.
(2) The government should propose practical measures against the cause of
violence, with a particular focus on the conflict of identity103 of the committee
members who handle related cases under the current system, because Appendix
5-24 of the 2nd National Report does not differentiate between the
administrative sanctions on the basis of extent and cause.
In response to Point 57 in the Concluding Observations/Points 129 and 130 in the
National Report
Inappropriate Discipline in Preschool Education
122. Many rules and laws104 forbid teachers to impose corporal or unlawful
punishment upon students. However, related regulations and mechanism for handling
inappropriate discipline in the phase of preschool education remain unclear, hence a
growing number of controversial incidents of inappropriate discipline. Incompetent
staff or teachers are not dismissed, and complete information is unavailable. The
definition of “physical and mental abuse” in Article 49 of the Protection of Children
and Youths Welfare and Rights Act is so ambiguous105 that it is difficult for competent
103 The Humanistic Education Foundation’s practical experience shows that most perpetrators received no other
penalty than lenient administrative sanctions. On top of that, after schools’ gender equality committees are no
longer the main authorities over instances of sexual assault and harassment on campus (which implies that school
staff can no longer easily manipulate the procedure), the number of dismissals has increased from less than 10 to
more than 100 per year. It indicates that school staff shielding perpetrators from punishment is an institutional
issue that needs to be addressed.
104 The personnel qualification and the prohibition against inappropriate discipline are clearly stipulated in Article
49 of the Protection of Children and Youths Welfare and Rights Act; Articles 23, 25 and 46 of the Early Childhood
Education and Care Act; Article 12 of the Statute for Preschool Educators; Article 5 of the Guidelines on the
Statute for Preschool Educators; Article 3 of the Standards of Early Childhood Education and Care Service; and
Article 14 of the Guidelines on the Early Childhood Education and Care Act. The Notes for Competent Authorities
at the Municipal and County (City) Levels in Handling Incidents Suspected to Be Mistreatment of Early Child by
Preschool Educators has also been issued to govern the handling procedure and matters needing attention.
105 As for the definition of abuse, practical opinions have generally recognized that “abuse” is not necessarily
confined to long-term, continuous or repeated conducts since the amendment to Article 10(7) of the Criminal Code
introduced in 2019. The document from the Ministry of Health and Welfare (Hu No. 1101460013) also points out
that “the application of Article 49-1(2) and (15) tends to take account of the severity of the abuse, the repetition of
the violent behavior, and the degree of physical and psychological harm caused to children and youth, which often
leads to no penalties imposed in practice and results in a serious discrepancy with public expectations,” and
“should obey the spirit of the CRC and the General Comments that interpret the definition liberally for
application.” However, there is no clue about how to interpret it liberally.
44
authorities to apply it in sanctions. Besides, preschool educators who committed
inappropriate discipline may not incur corresponding penalties.106 As a result, there is
no specific and consistent approach to the controversies in this regard, and the
information about the sanctions is not fully registered and disclosed.
123. The survey administered by the Jing Chuan Child Safety Foundation shows that
a total of 162 cases were on the news as a matter of controversy over the past 5 years
(2016-2019). According to the statistics of judicial ruling, there were 62 cases of
childcare providers, 19 cases of infant care centers, and 22 cases of kindergartens. By
way of comparison, the government statistics reveals only the number of cases of
inappropriate discipline committed by non-preschool educators (please see Appendix
5-27 of the 2nd National Report), whereas that by preschool educators is still wanting.
124. We suggest:
(1) The government should develop clear indicators for the identification of
violations and information disclosure.
(2) The behavior that preschool educators shall not do to children and its penalty
system should be specified.
(3) The mechanism for information disclosure and for monitoring and managing
incompetent staff and institutions should be improved (incl. withdrawal
mechanism, offense modalities, recidivists, changes in institution name, the
person in charge, and the rate of updates).
In response to Points 56 and 57 in the Concluding Observations
Violence against Children and Youth in Sports Training on Campus
125. After the serious incident of a Judo instructor abusing a 7-year-old child to death
in Taichung on 21 April 2021,107 it is unbelievable that the government has not
provided an opinion or policy response in the National Report on the serious physical
and psychological violence inflicted by instructors upon children in the name of
“training” and “discipline” in sports training.
126. The situation mentioned in Point 123 has become a common occurrence in sports
training whether on or off campus. However, at school, only “full-time” sports
106 The Control Yuan, The Control Yuan Investigation Report, (2019), no. 0092 states that the rules and laws
concerning children and youth in Taiwan do not contain any provision for “inappropriate discipline” of a lesser
degree of violation.
107 In the incident, the instructor kept throwing the child on the floor regardless of the child’s repeated refusal to
continue the training, crying, and begging for mercy, which caused the victim severe injuries. The victim
eventually died of serious injuries. https://www.cna.com.tw/news/firstnews/202106040099.aspx
45
instructors are regulated by law, whilst part-time sports instructors, club instructors,
and coaches hired by parents clubs for varsity teams are not.
127. As for non-school venues, although the government promulgated the Guidelines
on the Establishment and Combat Sports Training Centers after the abovementioned
incident, there are neither mandatory measures to regulate the qualifications of
personnel, the procedure of dismissal, the process of managing incompetent
instructors, and the channels for children to file complaints, nor clear regulations on
the venues108 and the supervisory responsibility of the competent authorities.
128. We suggest:
The government should set up a transparent licensing system for “personnel of
children sports training,” including:
(1) A system for managing and registering incompetent instructors. If a sports
facility employs an instructor who tramples on the rights of students, the
employer, the person in charge of the facility, or the responsible entity shall be
punished, unless he/she/it can prove that all selection and supervision
responsibilities have been fulfilled.
(2) An enforceable and transparent institutional framework for handling
incompetent instructors.
In response to Point 126 in the National Report
Investigation Mechanism for Sexual Violence against Children and Youth
129. From the instances of sexual violence inflicted by teachers on students on
campus, we notice that there are often multiple victims who suffer years of violence.
Meanwhile, these victims tend to endure the sexual violence silently. Besides, to
avoid trouble, schools and local governments often refuse or resist extensive
investigations, and they are not willing to inform and explain to students, graduates,
and their parents. The in-depth investigations carried out by the private sector have
identified more victims,109 but the capacity of the private sector is admittedly limited.
130. Point 129 demonstrated that the government does not adopt a child-centered
108 He who runs a training center or works as a varsity team coach has responsibility for his students. Lee Yun-
Hsiou, “After the Judo incident, is Taiwan ready to ponder about this painful lesson? An interview with Prof. Lin
Jia-He,” Humanistic Education Journal, 2021, pp. 19-24. https://hef.org.tw/journal384-3/
109 Take the cases of sexual assault in the Naba Elementary School and the Sinshih Elementary School in Tainan
for example. The two schools and the government did not undertake systematic investigation and ergo ignored
other victims. According to our follow-up investigation, a total of 31 children were victimized by the same
perpetrator. The case was verified by the Control Yuan. https://www.cy.gov.tw/CyBsBoxContent.aspx?s=17268
46
approach to deal with cases of sexual violence against children and youth in
institutions. We suggest:
(1) The government should reasonably expand the scope of investigations into this
type of cases, so as to avoid the situation in which the victimized children and
youth get no counseling and have to bear the pain alone as a result of negligence
on the part of the competent authorities.110
(2) The extensive investigations should be fulfilled in terms of legislation, policy,
and action, along with a mechanism for systematic and retrospective analysis of
cases.
(3) Schools and the government should provide a safe environment and ensure that
victims have the right to choose between investigation or maintaining secrecy
about their cases. Proactively offering victims counseling and psychological
support can be extremely helpful for their recovery and in holding perpetrators
accountable.
In response to Point 133 in the National Report
Mistreatment of Children and Youth in Placement Organizations
131. Mistreatment, sexual harassment, and sexual assault have occurred between staff
and residents or among residents in some placement organizations. For example, in
2020, an exposé uncovered that a staff member at an orphanage in Taipei City used
violence against the children, not only forcing them to eat swill and transcribe
textbooks late into the night, but also taking nude pictures of the boys.111 In the same
year, the Children’s Rights Alliance Taiwan (CRAT) organized an empowerment
event for children and youth in placement. Some participants reported that they have
ever witnessed that other children were punished by half squat with full buckets, or
that a staff member found an 8-year-old child too noisy and therefore gagged the child
with a used diaper. So far, the statistical data on mistreatment, sexual harassment and
sexual assault in placement organizations are not available to the public, and the
system for institution assessment is inadequate at reflecting the quotidian existence of
children and youth in placement organizations, which leads to dark figures of this
kind of instance that cannot be thoroughly investigated.
132. We suggest:
110 The PDIS Task Force of the Executive Yuan, the Ministry of Health and Welfare, the Ministry of Education, the
Ministry of the Interior, and the Ministry of Justice, eds., Tackling Sexual Abuse of Children - The government
should conduct a comprehensive survey of sex crimes against children and the handling processes at all levels of
schools and children’s institutions in Taiwan, Issue Pamphlet, 5 January 2020.
111 See “‘An orphanage of terror’: A children welfare institution in Taipei City was exposed for child abuse and
sexual harassment,” Mirror Media, 25 January 2021. https://www.mirrormedia.mg/story/20210124soc007/
47
(1) The government should improve the system for institution assessment and seek
opinions from children and youth who have left the placement organizations, so
as to grasp the day-to-day operation of these institutions.
(2) The government should establish a complaint mechanism that is easily
accessible and usable for children and youth and is able to fully protect their
privacy.
In response to Points 15, 129 and 134 in the National Report
Teacher-to-student Psychological Violence
133. In Taiwan, the regulations prohibiting bullying were originally confined to
bullying among minor students,112 while the current practice incorporates teacher-to-
student bullying into the same regulatory mechanism, regardless of the fact that the
two bullying types are far removed from each other. There is an asymmetry in age and
power between teachers and students. Therefore, teacher-to-student psychological
violence is a breach of professional ethics, and there should be corresponding
corrective measures rather than habitually focusing on the care, counseling, and
education as if the bullying incident occurred between two minor victims.
134. The governmental definition of bullying does not encompass teacher-to-student
psychological violence, and the same expert database and investigation procedure are
applied to both types of violence.113 The cases of teacher-to-student psychological
violence are only handled by teacher evaluation committees or teachers’ performance
appraisal committees upon completion of the process, which is an incomprehensive
regulatory mechanism and an improper approach to related cases.114
135. We suggest:
(1) The government should treat teacher-to-student psychological violence as a
breach of ethics and an act of violence against children rather than simply issues
of interaction, and such offenses should be held punishable. Teacher-to-student
psychological violence and bullying shall be handled under different procedures.
(2) The government should help investigators, teachers, and other interested parties
advance their knowledge about psychological violence, and integrate content of
112 The main purpose is to offer sufficient care to both parties. The bully receives adequate counseling and
education, including introducing the concept of restorative justice in due course.
113 That is, student-to-student and teacher-to-student.
114 In one of the cases handled by the Humanistic Education Foundation, a teacher at an elementary school in
Taipei City has been demanding the whole class to deride a child with a rare disease as “stupid” and “will not be
successful in the future,” which causes anxiety and behavioral degradation to the victim. However, this case is not
deemed bullying despite the audio recording as evidence.
48
professional ethics into the chapter on the prohibition of psychological violence
against children.
In response to Point 54 in the Concluding Observations/Points 15 and 134-136 in
the National Report
School Bullying Prevention Policies and LGBT Students
136. In spite of related legislation,115 there is no signs of improvement in bullying
LGBT children and youth on campus, and assistance for them is nowhere on the
horizon. The “2020 Taiwan LGBTQ+ Student Campus Experience Survey”116
covered 1,226 LGBT students at junior, senior high and vocational schools between
September 2019 and July 2020. The survey results showed that 62.1% have been
verbally harassed, 17.8% have been physically harassed, 4.3% have been physically
assaulted, and 10.6% have had their personal belongings deliberately stolen or
damaged. Those who reported that they have experienced verbal and physical
harassment “very often” and “usually” owing to their gender expression accounted
respectively for 12.6% and 3.5%. Another study also indicated that 40% of LGBTQ+
individuals have experienced gender-based violence, and 73% of which occurred
prior to their enrollment at senior high and vocational schools, with verbal and
relational bullying as the staples.117
137. Following Point 136, the first survey revealed that more than half (55.2%) of
LGBT students who experienced harassment or assault have never reported to and
sought help from school faculty or staff. The key reasons include (1) they don’t think
that school faculty or staff can properly handle their cases (53.4%); (2) talking with
school faculty or staff about their cases can be emotionally taxing (48.8%); and (3)
they don’t want to come out of the closet to school faculty or staff or their families
(48.6%). Moreover, 16.8% of LGBT students said that they were afraid to seek help
because school faculty or staff members themselves are homophobic/transphobic. The
second survey pointed out that most of the victimized students repeatedly experienced
violence and bullying, but the average number of times they sought help was less than
one, primarily because they believed that “it’s completely futile trying to seek help.”
115 The existing statute has not only defined school bullying and sexual bullying, but also stipulated the report of
sexual bullying on campus as mandatory.
116 The Taiwan Tongzhi (LGBTQ+) Hotline Association, “2020 Taiwan LGBTQ+ Student Campus Experience
Survey Results,” 2021. https://hotline.org.tw/news/3136
117 The internet survey conducted by the Garden of Hope Foundation in 2019. https://www.goh.org.tw/mobile/
news_detail.asp?PKey=aBIPaB31aBMTaB35aBTHaB39aBRMaB34&Class1=aBSTaB33
49
138. According to the National Report, physical bullying (40%) is the most common
type of school bullying from 2016 to 2020, followed by verbal bullying (32%), which
together account for 72% of all reports. The “Statistics on the Number of Reports of
Suspected Sexual Assault, Harassment and Bullying on Campus”118 released by the
Ministry of Education illustrated that, after the law amendment in 2013, the average
number of reports of sexual bullying is 79 per year, which is much smaller than that
of sexual assault (1,505 per year) and that of sexual harassment (3,634 per year). The
discrepancy between our practical experience and the statistical data shows that most
of LGBTQ+ individuals suffered sexual violence before their enrollment at senior
high and vocational schools. They seldom seek help even though they continuously
suffered the violence.119 Even if they asked for help, they were not kindly treated.120
Besides, physical bullying is the staple type of reported school bullying, which differs
from the verbal and relational bullying suffered by LGBTQ+ individuals mentioned in
the two aforementioned surveys. It implies that even if LGBTQ+ individuals managed
to seek help after suffering violence, it remains quite difficult for them to be handled
under the regulatory system due to the categorization of violence.
139. Apart from being unaware of the high correlation between LGBT students and
bullying, the government does not formulate comprehensive, effective policies to
prevent school bullying, much less addresses LGBT students’ personal predicaments
and needs on campus. We suggest:
(1) The regulations on school bullying (incl. sexual bullying) for schools at the
elementary, middle, and high school levels should explicitly stipulate that
bullying includes violence against students’ gender, sexual orientation, gender
expression, and gender identity.
(2) The Ministry of Education should conduct an in-depth survey on the modalities
of sexual bullying, insofar as to understand the bullying types LGBT students
suffer on campus and the difficulties they encounter in seeking help, and then
establish guidelines to educate and train front-line school faculty and staff.
118 For details, please see the gender-based statistical indicator data—education environment on the official
website of the Department of Statistics. https://depart.moe.edu.tw/ED4500/cp.aspx?n=0A95D1021CCA80AE
119 The Child Welfare League Foundation noticed that more than half of the children and youth in Taiwan have
suffered sexual bullying, and nearly half of the victims would not tell their parents. Besides, around 30% of
children and youth believe that schools do not care about the issue of bullying. See the Child Welfare League
Foundation, “Investigation Report on the Status Quo of School Sexual Bullying against Children in Taiwan,”
2006, https://www.children.org.tw/research/detail/69/231; and the Child Welfare League Foundation, “An
Investigation into the Status Quo of School Bullying Prevention in Taiwan,” 2018, https://www.children.org.tw/
research/detail/69/1458
120 Chung Dau-Chuan pointed out that schools tend to use a heterosexual mindset to address issues concerning
sexual bullying, causing LGBT students to be reluctant to seek help for fear of secondary victimization. See Chung
Dau-Chuan, “Violence and Harmful Situations against LGBTQ+ Individuals,” Forum in Women’s and Gender
Studies, no. 94, (2011): 2-15.
50
(3) The government should improve the existing reporting and investigation
mechanism for school bullying (incl. sexual bullying), with a special focus on
LGBT students and take the best interests of children and youth121 as the primary
consideration.
In response to Points 162-165 in the National Report
School Bullying against Visually Impaired Children and Youth
140. According to the interviews and surveys conducted by the Parents Association
for the Visually Impairs Taiwan, most of visually impaired students who have suffered
verbal or physical bullying stated that their schools did not handle their cases
properly, and their cases were left unresolved especially because they could not
clearly identify the bullies and the schools have no relevant counseling mechanism.
Some of them have a distrust of their schools’ handling mechanism and therefore
choose to endure in silence.
141. In addition to the lack of a code of conduct for bullying incidents involving
visually impaired students, the government does not produce statistics on the number
of schools that have activated the school counseling mechanism because the bully is a
visually impaired student.
142. We suggest:
(1) Schools should invite parents of visually impaired students or representatives of
relevant professional organizations to take part in the bullying counseling
mechanism.
(2) The competent authorities should regularly review the appropriateness of school
bullying counseling mechanisms for visually impaired students.
(3) The government should categorize school bullying counseling cases by age,
gender, and identity (incl. students with different disabilities) on an annual basis,
and should also collect and publish the data on the handling results of each
case.122
121 Including whether to notify minor students’ legal guardians or not.
122 In a way of de-identification.
51
Chapter 6: Family Environment and Alternative Care
In response to Point 33 in the Concluding Observations/Point 151 in the National
Report
The Right to Identity of Immigrant Workers’ Children
143. Matters on the nationality, identity, adoption, and education of helpless children
are governed by law.123 Take Vietnamese immigrant workers for example.124 The
commercial office responsible for their affairs responded that “if a child’s mother is
an undocumented migrant worker, a marriage certificate between the child’s
biological mother and father as well as a DNA paternity testing are required for the
child to be available for adoption.” Besides, undocumented migrant workers in
temporary shelters have to leave after 100 days of stay if they cannot obtain travel
documents or passports, which makes it difficult for their children who are non-
R.O.C. citizens to return to their homelands.
144. We suggest:
(1) Since the status of Taiwan remains controversial in the international society, we
can tackle the issues concerning the rights of migrant workers and children and
youth via no other agency than foreign commercial offices in Taiwan. The
government should propose practical measures that are able to optimize the
contact system, facilitate friendly communication, ensure the acquirement of
identity for migrant workers’ children, and protect foreign children’s rights.
(2) The Labor Standards Act in Taiwan applies to domestic and migrant workers, but
does not include foreign “family caregivers” who are mostly women. They are
the main group of pregnancy, childbirth, and loss of contact. Their rights are not
under the protection of Taiwan (e.g., they are fired and unable to find other jobs
in the labor market after they get pregnant). As a consequence, they tend to take
a risk out of desperation. The government should add another chapter exclusive
to migrant workers’ rights to the Labor Standards Act, so as to effectively solve
the problem of undocumented migrant workers and protect their children’s rights
to be cared, thereby alleviating the problem of stateless children.
(3) It takes two weeks for a migrant workers’ newborn to acquire its identity after
123 Articles 6 and 7 of the Regulations for Placement of Helpless Children and Youth.
124 Vietnam is one of the primary sources of migrant workers in Taiwan.
52
the notification of its birth.125 However, its mother has already left the hospital
where it was born after two weeks, which makes it difficult to register its identity
and ergo its rights are affected. The government should optimize the process of
notification and management system, in order to protect the basic rights of
migrant workers’ children.
In response to Point 39 in the Concluding Observations/Point 142 in the National
Report
Parenting Education Leave
145. The right to education of children and youth includes a good partnership between
teachers and parents,126 foremost the parent-teacher meeting. However, schools tend
to reschedule the parent-teacher meeting from weekdays to weekend or evening in an
attempt to increase the attendance of parents. Frontline teachers pointed out that many
parents who have to earn the livelihood for their families or work shifts are unable to
attend the meeting, which not only undermines the parent-teacher partnership, but
also affects parents’ statutory right to participate in children’s education.127 Related
laws become a mere formality.
146. We suggest: The government should provide paid parenting education leave,
encourage all parents to take part in their children’s education, thereby strengthening
the school-family connection and improving the welfare of children and youth.
125 The hospital notifies the case to the Health Promotion Administration within 7 days. Then the latter transfers
the case to the National Immigration Agency who assigns its specialized operation corps in the 22 counties and
municipalities to make an inspection and handle the identity application.
126 Luo Xing-Fa and Lin Shu-Bi, “Establishing a mechanism to facilitate parents’ positive participation in school
affairs and activities, and improving the effictiveness of school education,” Taiwan Educational Review Monthly,
May 2015.
127 Article 8(3) of the Educational Fundamental Act: “Parents have the responsibility to provide guidance to their
children during the period of national compulsory education for their children, and have the rights to select the
form and content of education and participate educational affairs of the school for the wellbeing of their children in
accordance with relevant laws and regulations.” Article 20-2(1) of the Primary and Junior High School Act: “To
protect the rights and interests of their children at every stage of their primary and junior high school education,
parents shall play their part by taking responsibility for counseling their children and attending parent association
meetings. Parents have the right to participate in educational affairs to ensure students’ rights to learning and their
personality rights. Participation methods, content, procedures, and other related matters shall be determined by the
central competent authority.” Besides, Article 4(1) of the Guidelines on Parents’ Participation in School
Educational Affairs at the Primary and Secondary Levels mentions that “parents should take related responsibility
to ensure their children’s right to learning and coming of age. Article 4(3) of the Guidelines: Parents should
supervise and assist their children in learning in coordination with school teaching activities. Article 4(4) of the
Guidelines: Parents should maintain good interaction with teachers and schools to facilitate parent-teacher
cooperation. Article 4(5) of the Guidelines: Parents should actively participate in educational seminars and events.
Article 4(6) of the Guidelines: Parents should actively participate in the parents’ association set up by the school.
53
In response to Point 146 in the National Report
Quasi-public Preschools
147. To remedy the deficiency of public and non-profit preschools and to reduce the
burden upon parents, the government formulates the quasi-public preschool policy.
By signing contracts with the government, quasi-public preschools will receive
financial aid and shall not raise tuition fees during the contract period. However, the
Ministry of Education modified its rules in August 2021, agreeing quasi-public
preschools to increase tuition fees. This practice proved that the subsidy policy does
not bring any touch of publicness at all. Parents’ expenses seem to decrease under this
policy, yet in reality the money is going into the pocket of the private sector through
public funding. On top of that, the infrastructure and educational resources of quasi-
public schools go without supervision after these schools obtained public funding.
There is a lack of public accountability of quasi-public schools, which is totally
against the spirit of publicized education.
148. We suggest:
(1) The government should immediately stop loosening the fee-charging standards
of quasi-public preschools, and reduce the subsidy for them year by year.
(2) The government should allocate the funding to actually publicized preschools
and increase the number of public preschools.
In response to Point 151 in the National Report
Health Rights and Placement of Children Regardless of Their Nationality
149. By October 2021, the Harmony Home Association, Taiwan have accommodated
6 children of documented migrant workers transferred by social affairs bureaus
without any government subsidy. The National Immigration Agency’ report128
describes that pregnant migrant workers are provided merely with health education
and supervision. The Ministry of Labor also stated that the Employment Security
Fund covers only the placement expenditure for children of undocumented migrant
workers and excludes those of documented ones.129
128 The National Immigration Agency of the Ministry of the Interior, “2021 Budget Review of the National
Immigration Agency of the Ministry of the Interior and the New Immigrants Development Fund,” (Oct. 2020), p.
13. https://www.ly.gov.tw/File/Attach/207059/File_293446.pdf
129 The Ministry of Labor, “Official Letter Labor Fa-Guan No. 1100515201” (29 Sep. 2020) states that the
Employment Security Fund is used for boosting employment and promoting welfare of all citizens as well as
handling the employment and management of migrant workers. This case does not suit the purpose of the fund.
The Employment Security Fund does not cover the nursery expenditure on children of Taiwanese workers. The
lack of a nursery support system for children of documented migrant workers may practically prompt these
migrant workers to resort to illegal labor market for child care support (e.g., unlicensed babysitters).
54
150. We suggest: The government should take into account the status and real
situations of migrant workers, supplement the regulations on subsidies for children of
“documented migrant workers” in need of placement, and ensure that placement
organizations accommodating migrant workers’ children receive adequate support and
assistance.
In response to Point 43 in the Concluding Observations/Point 159 in the National
Report
Legislation on Kinship Care Placement
151. The number of children and youth under kinship care placement grew from 175
in 2014 to 280 in 2018.130 Practitioners have misgivings over the selection of kinship
caregivers for kinship care placement, the method of subsidy payment, and the
professional training standards.131 Besides, there is a lack of effective legislation to
protect the rights of children and youth during placement.
152. Article 10 of the Enforcement Rules of the Protection of Children and youth
Welfare and Rights Act provides that proper relatives shall come first when placing
children and youth. However, many local governments still follow the regulations on
foster families when handling kinship care placement, and do not provide parenting
training before placement. The government only commissions the Taiwan Fund for
Children and Families to offer post-placement support services in 9 counties and
cities.
153. We suggest: Local governments should make regulations on kinship care
placement for children and youth, define the scope of kinship care placement, offer
parenting education, and provide support services.
130 Zhao Shan-Ru, Hu Chung-Yi, and Peng Shu-Hua, “Final Report on the Estimated Demand for Out-of-home
Placement and the Effectiveness Assessment of the Existing Placement Model,” The Social and Family Affairs
Administration of the Ministry of Health and Welfare, and the Taiwan Association of Welfare and Health, (Feb.
2021), p. 8.
131 Jessie Shu-Yun Wu, et al., “The Difficulties of Kinship Care Placement and Its Debating Issues: Perspectives
from Practitioners,” Social Policy & Social Work, vol. 19, no. 2, (2015): 31-74.
55
In response to Points 42 and 45 in the Concluding Observations/Point 160 in the
National Report
Authoritarian Approaches of Foster Institutions
154. Owing to the shortage of manpower,132 some public and private placement
organizations have adopted institutionalized fostering approaches that ignore
individual differences among children and youth, intrude on their privacy, and inflict
collective punishment on them, which adversely affects the rights and welfare of
children in placement.133134
155. We suggest:
(1) The laws governing the establishment of placement organizations and their
assessment regulations should guarantee equal and free participation of residents
in the decision-making process concerning their rights and interests.135
(2) The government should proactively formulate policies that encourage foster
institutions to substitute “empowerment” for “authoritarian management.”136
(3) The government should actively fix the general problem of manpower shortage
132 The shortage of manpower has become a common occurrence in placement organizations.
133 For instance, residents must act collectively without options according to their age and free will. Placement
organizations hold too many events that require collective participation and ergo reduce residents’ personal leisure
time. Worrying that residents may cause trouble if they use smartphones, placement organizations not only prohibit
the use of smartphones and the access to social networking services, but also check residents’ personal cell phones
in order to avoid risks. Placement organizations also impose collective punishment on all residents when anyone of
them makes mistakes. These measures violate the privacy of children and youth.
134 The Chinese Childrenhome & Shelter Association, “2019 CRC Children and Youth Empowerment Group—
Suggestive Report on the Table of Follow-up Actions of the Concluding Observations;” “2020 CRC Children and
Youth Empowerment Group—A Simulated Report on Children and Youth in Placement Organizations;” Chen
Wang-De, “My 13 Years in an Orphanage: After Years of Poverty, Shame and Stigma,” (15 Dec. 2017) https://
www.twreporter.org/a/opinion-childrens-home-years; Dang Yi-Hsin, “Confession of an Adult Resident in a
Placement Organization: My Home Is Not So Much a Home as an Elaborately Orchestrated Show,” (10 Mar.
2020) https://npost.tw/archives/54372；Lin Yu-Hsuan, Chen Wang-De, and Chen Bo-Wei, “Is It Wrong to Be
Grateful and Appreciating? How the Educational Culture of an Orphanage Create a Sense of Inferiority among
Residents,” (20 Apr. 2021) https://reurl.cc/zW1bzy.
135 This includes not only designing a “formal” participation mechanism (e.g., a family meeting), but also offering
children and youth the opportunity to express their opinions, receive responses, and make decisions about their
desired lifestyles. Placement organizations should allow service users to fully participate in the decision-making
processes related to their rights and interests, and should not “infantilize” them in the name of “education” or
sacrifice their basic human rights in order to facilitate management. Chen Wang-De, Chen Bo-Wei, and Lin Yu-
Hsuan, “Empowerment or Constraint? Residential Child and Youth Care, Habitus of the Service User, and Class
Effect,” NTU Social Work Review, vol. 42 (Dec. 2020): 1-55.
136 Placement Organizations should empower service users to take control of their own affairs in order to enhance
their physical and mental health and improve the quality of organizational life. Chen Wang-De, Chen Bo-Wei, and
Lin Yu-Hsuan, “Empowerment or Constraint? Residential Child and Youth Care, Habitus of the Service User, and
Class Effect,” NTU Social Work Review, vol. 42 (Dec. 2020): 1-55.
56
in placement organizations.137
In response to Point 42 in the Concluding Observations/Point 163 in the National
Report
Inspection and Assessment of Placement Organizations
156. The routine inspection of children and youth placement organizations is carried
out by local governments according to law.138 Placement organizations will pass the
inspection as long as their practices conform to relevant regulations and no violations
are detected. However, the assessment indicators derived from relevant regulations
and the on-site assessment are determined unilaterally and subjectively,139 which fails
to provide a comprehensive understanding about the quality, output, and actual effect
of their services.
157. The Control Yuan’s 2017 investigative report noted that the assessment system
has reduced placement organizations to nothing but machines for paperwork
competition. Besides, local governments intervene only in those with ratings “below
C” for improvement. Moreover, some C-rated organizations have instead deteriorated
to D-rated after 6 years of guidance,140 and there is no withdrawal mechanism for
those rated D.141
158. Following Point 157, such unilateral assessment indicators do not take into
account the thorny issues of delivering care services to children and youth with
multiple difficulties. The government does not provide corresponding supportive
resources. Organizations taking care of those children and youth are often forced to
close due to unforeseen circumstances. It is much harder to take care of children and
youth with multiple difficulties, which renders them isolated and transferred back and
137 Meager manpower resources serve as the main reason for children and youth placement organizations to
develop an education model of total control. The government should conduct surveys and studies to understand the
actual need for manpower, revise relevant laws and regulations, and meanwhile raise the salaries of childcare
workers. Chen Wang-De, Chen Bo-Wei, and Lin Yu-Hsuan, “Empowerment or Constraint? Residential Child and
Youth Care, Habitus of the Service User, and Class Effect,” NTU Social Work Review, vol. 42 (Dec. 2020): 1-55.
138 According to Article 84(2) of the Protection of Children and Youths Welfare and Rights Act and Article 19 of
the Regulations for the Establishment and Permission of Private Children and Youth Welfare Institutes, the
competent authorities are entitled to carry out the inspection.
139 Mostly assessed by documents, while site visits by the inspectors secondary.
140 Wang Wan-Yu, “The Assessment of Children and Youth Placement Organizations Is Ineffective, Children Need
‘Whistleblower Protection,’ Too,” 2020. https://rightplus.org/2020/06/02/wang-wan-yu-1/
141 Gao Feng-Xian, The Control Yuan Investigative Report, (2018), Nei-Diao no. 0001. https://www.cy.gov.tw/
CyBsBoxContent.aspx?n=133&s=5945
57
forth among social welfare institutions.142
159. We suggest:
(1) The government should set up a neutral body143 for the assessment system, and
then work with public and private social welfare organizations to revise the
assessment methods and indicators in addition to allowing residents of
placement organizations or discharged adults to participate in the assessment
mechanism, so as to eliminate the ineffectiveness in the assessment process.
(2) The competent authorities should devise a proactive counseling mechanism and
strategy to improve the overall care quality of placement organizations.
(3) The government should establish a “specialized care” welfare service delivery
system for children and youth with different needs. Meanwhile, the government
should allocate budget for this endeavor, incubate professional manpower,
conduct regular studies, and plan for pilot organizations, in order to make
placement organizations fully capable of taking care of children and youth with
multiple difficulties.
In response to Point 42 in the Concluding Observations/Point 164 in the National
Report
The Government Subsidy and Professional Manpower for Private Placement
Organizations
160. According to the statistics produced by the Taiwan Residential Child Care
Alliance, the average caregiving cost for its small-scale members144 is about
NT$71,000-$77,000 per person/month, and that for its large-scale public members is
about NT$47,000-$53,000 per person/month. However, the current government-
approved subsidy for placement is merely about NT$21,000 per person/month (lower
than the 2019 standard wage of NT$23,000).
161. Following Point 160, the costs of professional personnel, facilities, equipment
and programs in private placement organizations are based on a “subsidy system.”
The competent authorities decide the amount of subsidy according to the actual
142Gao Feng-Xian, The Control Yuan Investigative Report, (2018), Nei-Diao no. 0001. https://www.cy.gov.tw/
CyBsBoxContent.aspx?n=133&s=5945
143 Lin Pei-Chun, “Toward a Better Understanding of the Right of the Child to Be Heard: A Rights-based
Approach for Children in Child Protective Proceedings,” Taiwan Human Rights Journal, vol. 4, no. 1 (June 2017):
73-96.
144 According to the definition in the 2018 Annual Plan for Joint Assessment of Children and Youth Placement
Organizations and Foster Institutions (2022), small-scale institutions refer to those with 25 or fewer placed
residents.
58
situation of service provision of each organization. The professional personnel cost is
not fully subsidized, and the number of caregiving staff is calculated according to the
minimum standard under the regulations. Such practice neither meets the practical
needs, nor considers the reasonable labor rights of caregivers who work at these
organizations. The above-mentioned phenomenon is one of the main reasons for the
high turnover of caregivers, which affects the rights of children and youth in private
placement organizations.145
162. We suggest:
(1) The central competent authority should take the lead and actively study, plan,
and formulate a national alternative care policy that meets practical needs.
(2) The costs of children and youth placement and professional personnel should be
included in the main budget, and reasonable subsidies should be provided to the
private sector.
In response to Points 43 and 44 in the Concluding Observations/Points 162 and
201 in the National Report
Borderline Children and Youth with Special Needs
163. Between 2014 and 2018, the number of children and youth with physical and
mental disabilities placed out of home was on the rise in about half of the counties
and cities in Taiwan, among whom the number of those with disability cards rose by
14.25%.146 In 2020, children and youth with special needs accounted for 43% of the
total residents at the placement organization run by the Garden of Hope Foundation.
These children and youth with special needs are often plagued by multiple issues,147
145 Gao Feng-Xian, (27 May 2021), The Control Yuan Investigative Report, Nei-Diao no. 0001. https://
www.cy.gov.tw/CyBsBoxContent.aspx?n=133&s=5945; Yeh Jing-Lun, (24 Aug. 2020), “The Ministry of Health
and Welfare Takes the Lead in Disregarding Children’s Rights (Part 1): The Rationalization of “Ultra-low Cost
Commissioning” in the Name of “Subsidy” Is Seriously Damaging to the Physical and Mental Health of Future
Generations.” https://rightplus.org/2020/08/24/placement-agency-1/; “The Ministry of Health and Welfare Takes
the Lead in Disregarding Children’s Rights (Part 2): The Central Government Runs the Largest Placement
Organization in Taiwan, But Asks Private Placement Organizations to Reduce the Number of Their Residents,
Leaving Children with Physical and Mental Disabilities Nowhere to Go.” https://rightplus.org/2020/08/24/
placement-agency-2/; “There Are Beds but No Daily-life Assistants, Where Can Children and Youth Go/Where Is
the Manpower of Placement Organizations? https://rightplus.org/2017/04/21/placement-1/; “Inadequate Wage,
High Labor Intensity, Money Is No Longer an Incentive for Daily-life Assistants/Where Is the Manpower of
Placement Organizations? https://rightplus.org/2017/04/21/placement-2/; “Whether Being on Call at Night to “Lull
the Children to Sleep” Counts as Hours of Work?/Where Is the Manpower of Placement Organizations? https://
rightplus.org/2017/04/21/placement-3/; “Tensions between Labor and Capital, When Will Sexual Assault, Violence
and Overwork Be Quelled/Where Is the Manpower of Placement Organizations? https://rightplus.org/2017/04/21/
placement-4/
146 A small number of children are placed in disability institutions, hospitals, and nursing homes.
147 For example, sexual trauma combined with mental retardation and psychiatric disorders. Besides, emotional
disorders, depression, hyperactivity, and Asperger syndrome are commonly seen.
59
and not all of them have disability cards.148 However, the assistant-resident ratio149
under the current laws remains unrevised in face of this change, which makes it
difficult for placement organizations to maintain the quality of professional services.
164. We suggest:
(1) The government should allocate corresponding resources to the intervention of
“specialized teams” or the operation of placement organizations, so as to
improve the quality of their services.
(2) The government should introduce care measures and determine the assistant-
resident ratio for children and youth with “borderline mental retardation.”
(3) Children and youth with special needs should be categorized according to their
physical, psycho-emotional and environmental conditions. The cases of children
and youth with special needs should be subsidized according to the
categorization criteria and matched with appropriate placement organizations
through this classification system.
In response to Point 48 in the Concluding Observations/Points 160 and 165 in the
National Report
Placement Turnover Rate
165. In Taiwan, the children and youth in placement organizations have maintained a
rapid turnover rate. The survey in 2019 demonstrated that 57.35% of the children and
youth in placement organizations have been transferred at least once,150 which goes
against the experts’ suggestion that frequent transfer should be avoided in order to
foster stable and healthy attachments for children and youth in placement
organizations.151
148 In the evaluation of the International Classification of Functioning (ICF), adolescents with borderline mental
retardation do not meet the criterion of “Category 1—neurological structure and mental and psychological
dysfunction,” and ergo they cannot apply for disability cards. However, they tend to fall behind with learning and
life skills.
149 Articles 22-1, 22-2, and 22-3 of the Standards for Establishing Children and Youth Welfare Institutes.
150 Zhao Shan-Ru, Hu Zhong-Yi, and Peng Shu-Hua, “Final Report on the Estimated Demand for Out-of-home
Placement and the Effectiveness Assessment of the Existing Placement Model,” The Social and Family Affairs
Administration of the Ministry of Health and Welfare, and the Taiwan Association of Welfare and Health, (Feb.
2021), p. 96.
151 Ibid., p. 22.
60
166. Children and youth may be transferred to another placement organization
because the original one is unable to meet their needs,152 and such incompetence is
probably due to the problems on the part of the public sector or the organization per
se.153 Placement organizations have to solve this predicament by themselves, whilst
governmental interventions are thin on the ground. As a consequence, when the needs
from children and youth exceed the capacity of placement organizations, the latter
tend to passively transfer the former to another organization or simply conclude the
case. These practices have affected the self-identity, interpersonal relationships, and
future career development of children and youth.154
167. We suggest:
(1) The government should take stock of local placement resources to ensure that
they can meet the diverse needs from children and youth at local placement
organizations.
(2) The government should draw up budget and offer professional training courses
on handling multiple issues, so as to improve the quality of services provided by
the staff of placement organizations.
(3) The government should identify the root cause of placement transfer and
mitigate its negative impact.
(4) The rights to expression and knowing of children and youth should be fully
respected during the placement transfer process.
In response to Points 58 and 59 in the Concluding Observations/Points 193, 194
and 195 in the National Report
The Right to Education of Children and Youth with Special Needs
168. The acceptance of children and youth from placement organizations varies from
school to school, and enrollment discrimination is unavoidable, such as forced cross-
district enrollment, meetings before enrollment, and frequent requests to send these
children and youth back to the placement organizations. The Control Yuan has
corrected some local education bureaus on this matter. However, the budget for
special education or general education cannot be transferred to the location of cross-
152 Including unwell situations, special issues (e.g., sex, self-inflicted injury, and causing harm to others), radical
behavior, or placement transfer out of necessity because their needs for, inter alia, education and medical treatment
cannot be satisfied.
153 For example, resource allocation under national alternative care policy, the service capacity of placement
organizations, the caregiving group dynamic of placement organizations and their abilities to coordinate and utilize
the resource network.
154 Dang Yi-Hsin, (2017), “Does a disobedient child deserve not to be loved?” The Girls Being Placed and Then
Abandoned in Those Years. https://npost.tw/archives/36816
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district enrollment.155 As a result, schools still tend to use the insufficiency of
counseling resources, special education manpower and teacher competence as the
excuses to refuse the enrollment of children and youth from placement organizations.
169. We suggest: The Ministry of Education shall be responsible for overseeing local
education affairs156 in accordance with the law, and shall supervise and assist local
competent authorities in increasing the knowledge, resources and budget concerning
the education for disadvantaged children and youth with special needs.
In response to Point 49 in the Concluding Observations/Points 168 and 169 in the
National Report
Self-reliance Services after Placement
170. The government has budgeted for the “Project on Enhancing the Capacity of
Self-reliance Adaptation Assistance Services for Youth” (hereafter referred to as the
self-reliance project”) according to the advocacy of civic groups and the needs of
discharged youth. However, the overall system still separates placement services from
self-reliance ones, and the two types of services are provided by different agencies,
which fails to satisfy the needs of children and youth in the alternative care system
who are preparing to be self-reliant.157 On top of that, the paucity of budget and
professional manpower may negatively affect the rights and interests of adolescents
who are about to be discharged from placement organizations and become receivers
of self-reliance services.158
171. We suggest:
(1) Alternative care institutions should initiate the self-reliance services assessment
mechanism in advance, pay attention to the service design on issues concerning
155 For example, if children and youth are placed in Miaoli County in a cross-district way, the Miaoli County
Government will not obtain the education budget for those children and youth. According to the criteria
established by the Ministry of Health and Welfare, the proportion of children and youth placed to rural areas in a
cross-district fashion will only rise. Therefore, schools, placement organizations and local governments are
actually the “victims” of the established system.
156 Article 9 of the Educational Fundamental Act.
157 According to the Hope of Garden Foundation’s statistics on the status and case concluding reasons of children
and youth in placement, 30% of them want to go home, and 26% of them want to be self-reliant. However, they
often feel anxious because of the weak function of their original families, the lack of self-reliance resources, or the
turnover of social workers.
158 Take the self-reliance services provided by the Chinese Childrenhome & Shelter Association for example. We
found several problems in the current policy system, including insufficient number of professionals, insufficient
amount of direct subsidies for self-reliant youth, insufficient government-approved items to meet the needs from
self-reliant youth, and insufficient subsidies on self-reliance dormitories. Besides, the amount of self-reliance
subsidies is seldom adjusted with the increase of personnel costs, which affects the quality of self-reliance services
and the allocation of subsidies.
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relational trauma, and substitute stage-based interdisciplinary collaboration for
intermittent services.159
(2) The government should amend relevant regulations, pour resources, and support
the placement organizations to fully implement the follow-ups and self-reliance
services for discharged youth, so as to help them be positive, independent,
steadily socialized, and even carve out a successful career.160
(3) The government should offer adequate professionals to the self-reliance project
and dormitories, so that civil institutions can provide more comprehensive and
effective self-reliance services.
(4) The self-reliance project should annually adjust the total sum, items and limit of
subsidy for youth who seek self-reliance by reference to the experiences of civil
institutions.
(5) The government should release an assessment report about the needs and
effectiveness of self-reliance services at least on a triennial basis, so as to adjust
the self-reliance project and serve as the dialogue basis for the public-private
collaboration in providing self-reliance services.
In response to Point 50 in the Concluding Observations/Point 172 in the National
Report
Welfare Support for the Families That Foster Children and Youth with Special
Needs
172. The domestic welfare system is not friendly enough161 to families that foster
children and youth with special needs, which is one of the main reasons why domestic
families tend to refuse to adopt them.162 General adoptive families do require
significant follow-up support, let alone those adopting children with special
159 Domestic studies have proved that the self-reliance project focusing on trauma-related issues indeed has a
positive influence on children. (Chen Yi-Fang, et al., 2013; Chang Chien-Yun and Hu Chung-Yi, 2018; Hu Chung-
Yi, 2020).
160 Scholars from home and abroad have pointed out that youth discharged from placement organizations do face
higher risk of social exclusion (Stein, 2012: 156), especially low-educational performance, high possibility of
unemployment, insufficient career readiness, high possibility of becoming vagabonds and young parents, heavy
reliance on governmental subsidies, suffering intense loneliness, poor physical and mental health, requiring
psychotherapy, alcohol and drug abuse, and committing crimes (Dixon & Stein, 2003, 2005; Mendes &
Moslehuddin, 2004; Stein, 2004, 2012; Stein & Munro, 2008; Hu Chung-Yi, 2020). It is imperative to provide
comprehensive self-reliant services for youth to recover from their traumas and return to the society steadily.
161 For example, those who foster children over 2 years old can only apply for “parental leave” and “allowance
during parental leave without pay” rather than “parenting subsidies” prior to official adoption. The welfare support
for children and youth with physical and mental disabilities is even scarcer.
162 The government encourages the development toward deepening the support for families fostering children and
youth with special needs and sets up associated subsidy programs. However, the survey conducted by the Garden
of Hope Foundation indicated that “unfriendly social welfare system” and “traditional cultural stereotypes” are two
major reasons why domestic adoptive families refuse to foster children with special needs, and this problem cannot
be solved simply by adoption matching service agencies.
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needs.163164 Such insufficient social welfare support results in the difficulties to match
domestic adoptive families and children with special needs, which makes
transnational adoption the only viable option.
173. We suggest:
(1) The criteria for childcare-related labor and social welfare for adoptive families
should not be the same as those for ordinary families, but should be defined in a
more specific manner. For instance, the clause of “start from the date of birth to
3 years old” should be amended as “2 or 3 years after the date of official
adoption or after the date of beginning to live with the adoptee(s) prior to official
adoption.”165
(2) The government should provide adequate and comprehensive follow-up support,
e.g., medical, educational, and counseling assistance, for children with special
needs and even for all adoptive families.
In response to Point 50 in the Concluding Observations
Governmental Monitoring of Domestic and Transnational Adoption
174. The rules and laws governing adoption provide that adoption should conform to
the best interests of children. Besides, domestic adoption is prioritized and assessment
indicators are developed.166 However, clear and practical guidelines on adoption
remain wanting.167 In practice, adoption tends to proceed from the standpoints of
“placement organizations and adoptive families,” which is suspected of being in
conflict with the best interests of children.168
163 The surveys in Taipei and Kaohsiung revealed that adoptive families require considerable follow-up support,
foremost educational and financial support. Counseling services account for over one-third. The surveys even
identified that families fostering children with special needs require greater support in many aspects in comparison
with general adoptive families.
164 The Taipei City Adoption Resource Center, “Taipei City Survey on the Living Conditions of Adoptees and the
Welfare and Service Needs of Adoptive Families,” 2013; The Kaohsiung City Adoption Resource Center,
“Kaohsiung City Survey on the Living Conditions of Adoptees and the Welfare and Service Needs of Adoptive
Families,” 2014; Lee Chia-Hsin, Chiu Ching-Hui, and Bai Li-Fang, “An Analysis of the Adaption and Welfare
Needs of Adopted Children in Taipei and Kaohsiung,” Community Development Quarterly, no. 159, (2017):
278-290.
165 Lai Yueh-Mi, 2018, “A Study on the Reasons and Strategies for Transnational Adoption of Children and
Youth,” a study commissioned by the Social and Family Affairs Administration, Ministry of Health and Welfare.
166 For example, the necessity of adoption, and the competence of the adoptive families.
167 For example, is the assessment of adoption necessity based on the view of children and youth or that of their
birth families?
168 From their practical experience, civil adoption matching agencies have found that some adoptees are unwilling
to be adopted.
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175. We suggest:
(1) The government should review the overall planning for the protection of children
and youth, reinforce general family support projects, improve the quality of
national placement and care, and offer adequate support to birth families, in
order to help children or youth stay with their birth families and avoid the
necessity of adoption.
(2) The government should proactively utilize more effective media or modes to
promote “proper understanding of adoption” and regularly assess the promotion
effectiveness, so as to dispel conventional stereotypes about adoption.
(3) We agree with the recommendation of Point 50 in the Concluding Observations;
that is, the government should provide domestic adoptive families with more
comprehensive support.
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Chapter 7: Basic Health and Welfare
In response to Point 187, 246 in the National Report
Alternative Care During the COVID-19 Pandemic
Subsidies and Assistance
176. Although the government subsidizes the agency with a monthly allowance of
1,500 NTD per person during the pandemic period with suspension of classes169, the
subsidy is only 50 NTD per child per day170, which is quite insufficient. In addition,
the foster family has no other assistance except for the special pandemic leave that
isIn the past 25 years, Taiwan's temperature has risen by about 0.68°C, equivalent to
3.5 times the global warming rate. Economic and densely populated coastal
settlements are affected by sea-level rise yearly. Children who will be 18 years old in
2039 estimated will live in less than hundreds of square kilometers compared to
today, and the coastal areas south of Changhua will be the same.
177. During the school's closure, the alternative-care institutions without any
guidance, the online learning forced the children of the institutions to live and learn
their lessons in the institutions. They practically stayed together the whole day in the
same environment. Institutions were often faced with insufficient hardware facilities
and professional aids for children with special needs. It is even more challenging to
obtain with professionals.171
Subsidy application verification mechanism
178. Although the government provides subsidies for children and families, there is
no verification mechanism for the "family in need." One can quickly register and
review the subsidy by presenting only the "Parent's ID Card number" and "Child
169 See ‘Regula ons on homework placement of children and young children with COVID-19 during the
period of school suspension for care and subsidy’ of Ministry of Health and Welfare.
170 See”One child per day is only subsidized 50NTD, the placement alliance calls one person one le er
to the president ‘don't sacri ce the rese lement of children.’”m Placement Alliance (2021.07.17)
h ps://tw.appledaily.com/life/20210717/DTRVSSE465H6NPQT6LFGUBILGQ/
171 See’ Press Release: The pandemic is severe, do not let children in alterna
ve care face the cold
winter of rights and interests this summer’ of Children’s Right Alliance Taiwan.
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Health Insurance Card number." The parents or guardians of the children in the
alternative-care system, usually not the primary caretakers, will take away the
subsidy. For example, in the experience of the previous "Revitalization Triple
Voucher" policy, the "parents who have never cared about their children" disappeared
after receiving the vouchers, whereas the cost of institutions that take care of children
increases, but they cannot receive relevant subsidies.
Policies and supporting measures
179. During the pandemic, the loading of social workers and staff of the institution
has increased rapidly, and the manpower allocation has been tight172; children living
in institutions all day also demonstrate the lack of space for activities; in addition,
"self-reliant youth" who have left the alternative-care system also face their problem
of a weak support network. Most of them are engaged in the service industry, and due
to the covid-19, they may face reduced shifts or even be fired, causing employment
and economic security issues and affecting their mental health. At the same time,
schools at all levels took measures of distance learning; it is difficult for self-reliant
youth to obtain high-quality online education without sufficient resources.173
180. We suggest:
(1) In light of the previous experiences of other countries where the pandemic
outbreak took place a year before us, the government should take their example
and fortify their policy on alternative care systems and the solutions to cope with
the side effects caused by online learning, self-reliant youth encompasses and
such.
(2) During the pandemic, the loading of social workers and staff of the institution
has increased rapidly, and the manpower allocation has been tight; children
living in institutions all day also demonstrate the lack of space for activities; in
addition, "self-reliant youth" who have left the alternative-care system also face
their problem of a weak support network. Most of them are engaged in the
service industry, and due to the covid-19, they may face reduced shifts or even
be fired, causing employment and economic security issues and affecting their
mental health. At the same time, schools at all levels took measures of distance
172 Adjusted the work ow in response to the three-level alert subdivision and diversion policy.
173Chen Won-de, ”Group image of Fighters against Pandemic”: School, mental health, incomes,
dwelling are in the borderline to crash, rely-reliant life isn’t easy.(2021.06.22)
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learning; it is difficult for self-reliant youth to obtain high-quality online
education without sufficient resources.
In response to Point 192 in the National Report
Special Needs student identification system
181. Local authorities should educate the personnel on proceeding with the diagnosis
of the placement system and disabled and gifted students.174 In contrast, the quality
and criteria of which aren't coherent. In addition, in some of the local government In
cities, personnel who graduated from "non" psychology-related departments are
allowed to conduct work of psychological assessment work. In addition, special
education schools are legally entitled to enroll students independently. Some parents
choose not to enter the identification and placement process of the county and city
governments and let their children attend special education schools.
182. We suggest:
(1) Establish a "National Unified Appraisal and Placement System" and "Personnel
Training Content”.
(2) It should be ensured that children from the age of two to all educational stages
are professionally assessed and placed in the appropriate field by the "Special
Education Students Diagnosis and Placement Counseling Committee."
The person conducting psychological diagnosis on special needs students
183. The person conducting psychological assessments on special needs students are
professionals of the special education team, yet which position for the special needs
student is substituted by "special education teachers." This practice has damaged both
the right to education and the right to health of special education students. Special
education teachers should focus on their own profession, teaching instead of part-time
psychological assessors.
In response to Point 75 in the Concluding Observations/Point 192-194 in the
National Report
Special Education Support for Visually Impaired Children
184.The opinions of visually impaired parents and visually impaired students were
surveyed by non-governmental organizations, and most of them pointed out that
174 Regula ons Governing Special Educa on Students Diagnosis and Placement Counseling Commi ee
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visually impaired students often encounter the problem of insufficient special
education resources or manpower when they are studying in ordinary schools.175
185. We suggest：
(1) Special education for the visually impaired should follow relevant regulations176
in developing to integrate with the local community.
(2) For visually impaired students (including totally blind and low-vision students)
studying in ordinary schools, schools at all levels should be subsidized to
provide sufficient "braille" or "large-character teaching materials,” as well as
sufficient "teacher assistants" to facilitate visual Disabled students integrating
into the public schools and educational environment.
In response to Point 193 in the National Report
Inclusive education for special needs students
186. According to the official data, the ratio of students enrolled in special education
schools has declined, but the resources for special needs students who enter inclusive
education are insufficient. Even though many types of professionals are in the special
education team177, the number of assistant hours special needs students can apply for
is generally inadequate. "Special education assistants" are essential personnel who
assist ordinary schools in implementing special education. Still, they are mainly
recruited under a minimum wage and the one-year term contract conditions, resulting
in a high staff turnover rate, which is not conducive to students adapting to life and
learning in ordinary schools.
175 It mainly includes supplementary textbooks, examina on papers (including quizzes), or study
sheets, not all of which are available in Braille or large print. There are o en short teacher assistant
hours regarding manpower assistance in class. Courses that require addi onal manpower support,
such as physical educa on classes, art classes, science experiment courses, etc., cannot be assisted by
assistants in every category.
176 Ar cle 18, 27 and 33 of the Special Educa on Act.
177 Including Occupa onal therapist, Counseling psychologist, Speech-Language Pathologist,
audiologist..etc.
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Cross-regional schooling for children with special needs
187. The enrollment status of inclusive education has not been fully implemented, and
the continuum of placement178 is still the mainstream education for students with
special needs. As for the children who require to be placed in special education
classes, if there are no special education classes in the administrative district to which
they belong, the students need to study in different communities, or there are certain
schools with a good reputation for accompany special needs students. Some children
with special needs, since they are in their early childhood, are forced to live in
boarding school, an involuntary "institutional" type of life far away from their own
home.
In response to Point 56, 57 in the Concluding Observations/Point 193, 194 in the
National Report
Mistreatment of special needs students
188. Incidents of special education teachers and related staff mistreating special needs
students have occurred frequently. For example, teachers of the special education
class of Jiangong Elementary School in Hsinchu City used chili water to train special
education students to spit water179. To stop quarrels between students, the teacher pins
schoolchildren to the ground180. In addition, parents of special kids who have been
mistreated are often unable to obtain appropriate support services after the incident.
189. We suggest:
(1) Professional knowledge of special education teachers and relevant teaching staff
should be strengthened in interacting with special students.
178Those of normal educa on classes inclusive with services of Centralized special educa on,
Decentralized resource and Special educa on programs.
179 That special educa
on teacher who use chili water as training material. Humanis c Educa on
Founda on Report. h ps://hef.org.tw/epilogue-5/
180 Complaining kindergarten:
https://m.facebook.com/story.php?story_fbid=699485397301391&id=201226800460589。
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(2) Administrative, legal, and psychological support and other services and
assistance should be provided for parents or actual caregivers in the event of
mistreatment.
In response to Point 58 in the Concluding Observations
Special textbook translation expenses
190. The government should provide textbooks with "appropriate teaching materials"
for special education students studying in regular classes. However, in practice,
teachers must prepare supplementary teaching materials by themselves. The
supplemental teaching materials are processed and translated for teachers' use for
special students. The subsidy standards for reprocessing and production costs vary by
local governments, and some cities do not even provide it.
191. We suggest that the government should understand the actual demand and usage
of teaching materials and increase the budget for "supplementary teaching materials”
accordingly.
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In response to Point 58(1) in the Concluding Observations
The right to preschool education for children with disabilities
192.The Special Education Act stipulates that the implementation of special education
for children with special needs should begin at the age of two181. The practice varies
from city to city. And the local preschool special education resources are
insufficient182. For example, There are 589 preschool students with physical and
mental special needs in Hsinchu County, yet only three centralized special education
classes and 14 decentralized resource and special education programs are provided183.
The number of public kindergartens is insufficient, and it is impossible to
accommodate all preschool students with special needs who want to go to school.
193. We suggest:
(1) The government should keep track of the implementation of preschool education
for social needs students of every local administration.
(2) Increase the number of pre-school special classes’ capacity to protect the right to
education for children with special needs.
In response to Point 200 in the National Report
The right to cultural participation of children with special needs
194.In the Assessment Report on the Ministry of Culture's management and
maintenance of monuments and historical buildings, the review indicators did not
include accessibility. In addition, most of the historical sites and buildings ignore the
importance of having accessibility facilities and equipment, or in some cases, they
make claims to have accessibility facilities and equipment, yet in other parts of
buildings or services such as guided tours, restroom or restaurant designs, are not
181 Ar cle 23(b) of Special Educa on Act: In order for special needs children to receive early
interven on, special educa on prac ces shall start as early as two years old.
182 Take Hsinchu County as an example, the quali ca on for pre-school special educa on appraisal
and priority placement for public and young children is three years old. Hsinchu County 110th school
year pre-school special educa on appraisal and public and child priority placement schedule. 。
h ps://serc.hcc.edu.tw/var/ le/145/1145/img/157153255.jpg
183 Hsinchu County Special Educa
on Sta s cal Annual Report for the 108th school year, Hsinchu
County Government (2020, September).h ps://serc.hcc.edu.tw/var/ le/145/1145/img/
1572/349079661.pdf
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included in the disability-friendly coherent mechanism.184 These barriers cause a
cultural gap between children with special needs and their peers.
195.We suggest that the government should plan how to gradually improve the
environment of historical sites and buildings for children with special needs and
promote the cultural participation rights of all children. The specific measures
include: amending laws, referring to successful experiences, evaluating complete
feasibility, building alternative actions, and implementing them. Incorporate BOT
contracts and reviews into accessibility/accessibility metrics.185
In response to Point 59 in the Concluding Observations
Preschool inclusive education for visually impaired children
196.Visually impaired children are often hindered from entering kindergartens to
receive inclusive education. Through interviews with parents of visually impaired
children, they stated that they had applied for admission to ordinary kindergartens and
were discriminated against directly by the kindergarten or refused entry because they
did not have enough teachers, assistants, or resources to teach the visually impaired
children, and even suggested to the parents to accompany the children throughout the
class, etc. The above measures blocked out visually impaired children from the
kindergartens of their community, and finally can only choose to enter the preschool
department of the special education school system.186
197.To enable public and private kindergartens to enroll visually impaired children,
the Competent Authority of education should:
184 There have been cases where the exhibi on venue provided an unfriendly environment with no
accessibility, and the creator himself(a person with special needs) could not a end his own show.
185 Might consider to correct the laws and regula ons such as “Principles on the alterna ve
improvement plan of accessibility facili es construc on to exited public agency／organiza on／
ins tu on and buildings”, and “Act for Promo on of Private Par cipa on in Infrastructure Projects”.
186 According to the special educa on no ca on website of the Ministry of Educa on, in 2018a total
of 42 visually impaired children received pre-school special educa on services, 30 of whom received
tour counseling or ordinary special educa on programs in general kindergartens, and the remaining
12 a ended centralized special educa on classes. 28.6% of the visually impaired children who
received pre-school special educa on services could not successfully enter general kindergartens.
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(1) continuously provide special-education-related training for kindergarten
teachers to improve their special education knowledge and ability.
(2) Subsidized kindergartens to hire more teachers’ assistants to help visually
impaired children integrate into the class curriculum.
(3) via professional help from the itinerant teachers for visually impaired
education, provide Braille teaching for visually impaired children fulfilling
the goal of linking with elementary school education.
Children in the long-term care institutions
198. Children with special needs and low self-reliance are often placed in long-term
care institutions, where staffing is usually insufficient. There are extreme cases in
some private nursing homes where children are confined to beds. This situation leads
to poor quality of education, caring services, and a low possibility of conducting
Individualized Instruction.
199. We suggest:
(1) The government should provide resources to support the expertise of relevant
institutions.
(2) Relevant institutions must develop strategies for special children and children's
needs and care.
In response to Article 5 of the Convention
The right to seek, receive and impart information and ideas and expression of
children with special needs in judicial and administrative procedures
200.Humanistic Education Foundation found that the officials ignored children's
needs in the court observation of child abuse cases in special education schools. For
example, during the interrogation, the prosecutor used difficult words, the question
sentence was too long, the questioning time was as long as two hours, and he had to
be questioned by the teacher, the suspect. In judicial or administrative procedures,
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there is no "Forensic Interviewers"187 who is a professional intermediaries in sexual
assault cases to assist children with disabilities, which damages children's right to
know and express their opinions. Although there are social workers to accompany the
children, the social workers do not possess the professional ability to translate
information to help the children receive, understand, and respond.188 It is difficult for
children with special needs to exercise their right of expression in court, and because
there is no professional intermediaries, Secondary victimization of these children
becomes very common.
201. We suggest:
(1) In judicial and administrative procedures, intermediaries with different
professions should be provided to assist children with special needs in
interacting with the personnel in charge.189
(2) The Ministry of Education shall develop an assistance mechanism in the
procedures for student complaints and administrative remedies for children with
special needs.
(3) The Ministry of Justice shall deliberate and provide an assisting mechanism for
children with special needs to express themselves during the procedures such as
complaint, indictment, litigation, or non-litigation, and correct relevant
procedures in schools, which shall also be considered together
In response to Article 2,6,24 of the Convention
Gender gap in participation in physical activities
202.The authorities have realized that worship of masculinity, gender stereotypes, and
gender discrimination in the sports field is one of the main reasons for preventing
women from participating in sports.190 However, they have not yet taken any concrete
187 Ar cle 15-3of Sexual Assault Crime Preven on Act: Whenever considered as necessary by a judicial
policeman, judicial police o cer, prosecu ng o cer, prosecutor or judge at the inves ga on or trial
level, if the vic ms of sexual assault incidents are children or have mental disabili es, they may be
interrogated (examined) with the assistance of relevant professionals at their side. …The provisions of
the two preceding Paragraphs apply muta s mutandis to any case where the party, agent or defense
a orney is cross-examining vic ms who are children or have mental disabili es.
188Court Room Sketch on the special needs children Abuse cases, Humanis c Educa on
Founda on(2021)h ps://hef.org.tw/2021_work_1_4/
189 States par es are also under the obliga on to ensure the implementa on of this right for children
experiencing di cul es in making their views heard. For instance, children with disabili es should be
equipped with, and enabled to use, any mode of communica on necessary to facilitate the expression
of their views, CRC/C/GC/12 para. 21.
190 White Paper on Promo ng Women's Par cipa on in Sports, Sports Administra on.
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action. The "regular exercise rate" of young girls aged 13-17 is much lower than that
of boys of the same age, with 16.8 percentage191. In addition, the proportion of female
students in sports classes to cultivate professional sports athletes decreases as the
education stage increases.192
203. We suggest:
(1) The content of physical education courses should include various types of sports
and leisure activities.
(2) Gender equality awareness among physical education teachers, sports referees,
coaches, and other personnel should be actively advocated, and a gender-
friendly sports learning environment should be provided.
In response to Point 60-63 in the Concluding Observations/Point 70 -72 in the
National Report
Children's Rights to seek phonologist Consults
204.The number of reported cases of children's self-harm has not improved
significantly193. According to the investigation and research by the competent
authority, family issues have become one of the three leading causes of self-injury or
suicide in Taiwan194. Therefore, when children seek outside help, the government
should recognize that the children can fully understand and judge, and the right to
191 In 2019, 39.7% of females aged 13-17 had regular exercise habits, and 56.5% of men aged 13-17
had regular exercise habits, a di erence of 16.8 percentage points,2021 Gender Equality Index report,
The Gender Equality Commi ee
192 According to ‘2019 School Sports Sta s cs Annual Report’ of the Sports Administra on, The
propor on of female students in elementary school sports classes is 37.62%, middle school students
are 29.6%, and high school voca onal students are 26.74%. (2021)
193 。In 2018, according to the data from ‘Number and Percentage of Suicide Reports by Rela ves and
Vic ms in Domes c Violence and Children and Children Incidents’ conducted by the Suicide
Preven on Society and the Suicide Preven on Center, during 2016 to 2018, there were 1,277 children
counterparts and 1,829 children vic ms registered in suicide no ca ons. In addi on, according to a
sample survey of psychologists in the conference taught by the Na onal Federa on of Counseling
Psychologists Associa ons during the pandemic, the results showed that a er entering the na onal
level 3 alert, among the 278 psychologists responsible for the cases, the number of people who
interrupted counseling due to the pandemic reached 5,753. There are about 2,900 licensed
psychologists at present, and it is es mated that the total number of interrupted consulta ons is
around 60,000. About 60% of the members of the Na onal Federa on work in schools at all levels. It
is es mated that more than 30,000 students have interrupted counseling due to the outbreak.
194 According to the "2018-2019 Campus Student Self-Injury Incident Analysis and Preven on Strategy
Report" by the Ministry of Educa on, it is di cult to single out student suicide, usually reported as
mul ple causes. The most common possible causes are (1) mental illness (41.9%), (2) Family
rela onships (33%), and (3) Emo onal problems (24.6%).
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consent should no longer be given only to the "parents."195 Children's best interests,
the rights to life, survival, and development, and the right to privacy should be
considered while providing children in need with psychological counseling services.
205. We suggest:
(1) The legal guardian's consent should not be regarded as the only necessary
condition for the provision of psychological counseling services. The
professional opinions of the psychological counselor, the best interests of
children, their rights to life, and to make their own decision should be taken
more seriously regarding whether to provide services.
(2) The regulations of online counseling should be refined and revised, the age
limit should be lowered, and psychological counselors should be given the
flexibility to adjust accordingly. 196
In response to Point 63 in the Concluding Observations/Point 219 in the National
Report
Preventive Psychological Support Resources for LGBT Children
206.Among the LGBT children support groups of the Hotline Association, there are
often children who are excluded from their families, situated in hostile schools, and
live in an environment that lacks support, which harms their mental health.197 The
data on children's "mental health" and "suicide" are not categorized by children's
gender, sexual orientation, gender identity, and other personal characteristics, so it is
impossible to understand the mental health of LGBT children fully. According to a
195 Although Ar cle 77 of Civil Code states that ‘when the expression of intent relates to the pure
acquisi on of a legal advantage, or to the necessaries of life according to his age and status, a person
who is limited in capacity to make juridical acts do not need his guardian’s approval , ’ yet according
to the lex specialis principle, Ar cel 19 of Psychologists Act demands that in the case of minor, ‘The
psychologist shall also obtain the consent of his/her clients or their legal representa ves and advise
them of their rights.'
196According to clause 5 of “Reference principles for psychologists to perform communica ve
counseling prac ce”,the object of the communica ve, psychological consulta on should be over the
age of 18 and exclude pa ents with neurosis, mental illness, or mental insu ciency of the brain.
197 The life stages of LGBT children encountering gender-based violence, cases in the middle school
stage are the most severe (67.1%), followed by the high school voca onal stage (46.9%) and the
elementary school stage (50.4%). The perpetrators are school students (66%), family members
(44.8%), and teachers of the third school (30%). The two highest levels of harm or impact were mental
health: psychological 86.6%, self (value/iden ty/self-esteem) 81%. The Hope Garden Founda on
(2019). Gender-Based Violence Online Survey on Mul -Gender Ethnic Groups.
https://www.goh.org.tw/tc/p2-news_detail.asp?PKey=aBVMaB31aBYWaB33aBHIaB37aBSLaB39
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survey conducted by the Hotline Association, the "Gender Equality Student
Association" in schools can be used as a mental health resource to provide peer
support for LGBT students. However, only 8.1% of LGBTs in the survey indicated
that their schools have such student associations.198
207. We suggest:
(1) When the government collects data on children's mental health and suicide,
it should classify children according to their gender, sexual orientation,
gender identity, and other personal characteristics to understand the groups
needing support.
(2) The competent education authority should produce specific policies and
measures to provide psychological support resources for LGBT children.
Before the support system is completed, it should actively ensure that
student associations concerning gender equality issues in every level of
schools, including senior high schools, are established as a proactive
preventive measure of LGBT students' mental health.
In response to Point 67 in the Concluding Observations/Point 226(b) in the National
Report
Sex Education Curriculum and LGBT Children's Right to Sexual Health
208. Children in the hotline LGBTs children support group said that the school's sex
education curriculum ignores and excludes LGBT education.199 The content of the
curriculum is entirely heterosexual as the norm. In the absence of accurate sexual
health information, many LGBT children contract STDs or AIDS in our service due to
unsafe sex.
198 2020 Taiwan LGBTQ+ Student Campus Experience Survey Report, Taiwan TongZhi (LGBTQ+) Hotline
Associa on（2020) h ps://hotline.org.tw/news/3136
199 2020 Taiwan LGBTQ+ Student Campus Experience Survey Report, Taiwan TongZhi (LGBTQ+) Hotline
Associa on（2020) h ps://hotline.org.tw/news/3136
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209.We suggest that the competent education authorities should incorporate diverse
health issues into the "108 Curriculum" teaching guidance and develop textbook
resources and teaching plans that teachers can use; Comprehensive sexuality
education that includes LGBT groups.
In response to Point 65-67 in the Concluding Observations/Point 226(b) in the
National Report
Children's right to education (sex education curriculum)
210.After confirming students' needs and obtaining their parents' consent, some
teachers gave lectures on condoms and safe sex in the classroom but were sued by
conservative groups outside the school for "public indecency."200 Furthermore, there
were cases where schools offered parenting education lectures about sex education, in
which conservative groups protested by holding banners at the school gates.
Therefore, such phenomena led teachers to teach under pressure, and implementing
gender equality education for children was affected.
211. We suggest:
(1) Education competent authorities should establish guidelines and provide
teacher training to ensure that school curricula provide student-centered
education for students.
(2) Regarding the conflict between sex education and gender equality education,
competent education authorities should actively initiate social
communication to clarify misinformation.
200 ‘Giving lectures about sex educaon in schools but being "hunted" by conserva ve groups... In this
gender equality movement, elementary school teacher Liu Yuhao insisted on going for the children in
the south.’, Business Weekly, Wu Zhongjie(2019.01.17). h ps://www.businessweekly.com.tw/careers/
indep/37648
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In response to Point 227, 228 in the National Report
Children’s subjectivity and sexual autonomy
212. The health education website set up by the Ministry of Health and Welfare, in
which the content and information highly problematize the sex-related issues among
children.201 The government has not provided teachers with complete and systematic
training on sex education202, which has resulted in limited teaching content or filled
with teachers' "personal values," failing to implement the connotation of sexuality
education curriculum, and the neglect of children's sexual autonomy. This
protectionism further weakens the freedom and subjectivity of children.
213. We suggest:
(1) The government should have an empowerment perspective in implementing
the sex education curriculum and the training of teachers.203
(2) An evaluation mechanism for the sex education curriculum should be
developed to ensure that the content and attitude of teachers can respond to
students' needs and achieve empowerment.
(3) "Parents" should be seen as a subject of continuous study concerning gender
equality. The government allocates funds to supervise schools to conduct
"Sex Education Courses for Parents" to create a friendly atmosphere.
Teachers' professions are valued, and students' rights and interests are
protected.
201 For example, sugges ng same-sex rela onships, etc. are just "seeking excitement and challenge,
losing the true meaning of sexuality and the basis of love."h ps://health99.hpa.gov.tw/ar cle/18395
202 Both students and teachers believe that sex educa on teaching me is seriously insu cient. The
lack of good training and teaching materials is the top two di cul es that teachers think are the most
di cult. Guo Li'an, Chen Yuping, Wang Dawei, Liu Anzhen, Zhang Xinyou (2017). An explora on of the
connota on of adolescent sexuality educa on and emo onal educa on: A comparison of the
perspec ves of teachers, students, and parents. Student A airs and Counseling, 56, 28-49.
203 Fang Gang (2013). Empowering Sex Educa on: A Preliminary Explora on of Theory, Content, and
Methods. Sexuality Research, Volume 4.
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In response to Point 229 in the National Report
Underage Pregnant Girls' Right to Education and Children of Young Parents’
Right to Survival
214.About 2,000 underaged girls in Taiwan give birth every year. The Gender
Equality Act guarantees the right to education for pregnant students. Yet, many female
students are bullied and suffer physically and mentally due to pregnancy, termination
of pregnancy, or have not enough supporting resources after giving birth. They stop
their studies due to the lack of childcare resources204, and the existing school facilities
and social welfare design cannot meet the needs of young parents to balance their
studies and childcare. Lacking the knowledge and ability to take care of children at
the same time facing unbearable pressures such as childcare, housing, economy,
education, etc., young parents resulting in multiple incidents such as child abuse and
even suicide that endanger children's right to survival. 205
215. We suggest:
(1) Complete sex education and emotion and relation education: Besides
physical development and contraceptive knowledge, sex education should
strengthen aspects such as sexual behavior, power relations, and emotional
relations.
(2) Formulate schooling and child care plans for young parents: integrate
medium and long-term strategies such as family education, childcare, health
education, and social welfare, and maintain young parents’ enrollment in the
school, which is conducive to guaranteeing the safety of their children. The
above plans should aim to help young parents complete their studies and be
able to find a job, taking care of their children independently.
204 The Educa on Ministry no ed 3,927 pregnant students from 12018 to 2019, of which 2,737 were
suspended from school, resul ng in nearly 70% of pregnant students. It is challenging to de ne them
as "teenage mothers," and the Ministry of Educa on has not conducted more detailed sta s cs.
However, the concluding observa ons point 49 of CEDAW's third na onal report recommended the
government take measures to reduce the burden on pregnant students and young mothers. Such as
providing retake exams, mee ng childcare needs, increasing scholarships, or other appropriate
assistance, so the " Young parents" rather than "minor" parents de ne this par cular stage.
205 。The Ministry of Health and Welfare's "2016 Annual Analysis of Major Child and Adolescent
Abuse Incidents" found that "young parent," "unstable employment," "lack of awareness of child
development," and other factors were signi cantly associated with abuse.
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In response to Point 68 in the Concluding Observations
Global Warming
216.The current national education syllabus has an environment, ocean, energy, and
disaster prevention education curriculum. Yet, they are not compulsory and have not
been integrated into "climate change" and "adaptation education," so children cannot
understand the crisis they face. In addition, Taiwan's greenhouse gas emission
objective is only halfway to the 2050 international goal. Under extreme weather,
agriculture, health, transportation, and even energy security have all been affected.206
The government's lack of active advocacy of awareness of disaster prevention
(drought/flood/earthquake) will expose children to climate risks and an increasingly
severe living environment.207
217. We suggest:
(1) Should amend the relative laws as soon as possible to make companies/facilities
that emit greenhouse gases pay the related costs.
(2) The right to receive information and education: Complete climate change and
adaptation education by integrating knowledge in various professional fields into
life so that children can fully understand the climate crisis, mitigate warming and
be familiar with the response to climate disasters.
(3) Significant oversight and right to voice: Children should have the right to
participate in public affairs on climate issues.
206 。Taking last year as an example, in the face of a severe drought in spring, the central part of the
country implemented the "supply ve days, stop two days" district water supply for 61 days, se ng a
record for the longest implementa on me Taiwan over the years. In August, due to torren al rain
entrained by Typhoon, some central and southern regions were seriously ooded, which led to a slope
collapse that seriously a ected driving safety for the rst me.
207 In the past 25 years, Taiwan's temperature has risen by about 0.68°C, equivalent to 3.5 mes the
global warming rate. Economic and densely populated coastal se lements are a ected by sea-level
rise yearly. Children who will be 18 years old in 2039 es mated will live in less than hundreds of
square kilometers compared to today, and the coastal areas south of Changhua will be the same.
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Chapter 8: Education, Leisure and Cultural Activities
In response to Point 243 in the National Report
Overly high Senior-high School Student-teacher Ratio
218. After implementing the "108 curriculum", the teacher shortage has become even
more apparent due to the increase in alternative learning, multiple subjects,
appropriate student-grouping, internship grouping, and other courses in senior high
schools. Thus, reducing the current class size of 35 students in vocational and senior
high schools is necessary to make teaching manpower compatible.
In response to Point 246 in the National Report
Right to Education for Students with Physical and Psychological Disabilities
during the Pandemic
219. According to regulations208, to meet the needs of special education students, their
educational stages, grade arrangements, educational venues and implementation
methods should remain flexible. Moreover, the measures and facilities provisioning
for special education and related service shall conform to adaptability,
individualization, communization, accessibility, and integration. However, in practice,
the low labor participation rate of the disabled parents209 or the disabled students may
have caused a relatively low internet penetration rate at home or stereotypical
characteristics210 in some categories, all can lead to the failure of students to
participate fully in online learning.211
208 Article 12 and 18 of the Special Education Act.
209 The labor force participation rate of people with disabilities aged over 15 was 20.7%, and the unemployment
rate was 8.1% in May 2019. Retrieved from: https://statdb.mol.gov.tw/html/svy08/0841menu.htm
210 Students with autism or Asperger's syndrome, for example, are considered to take informal classes because
they are not educated at school.
211 According to the Survey on Children and Youth during the Pandemic by the Taiwan Alliance for Advancement
of Youth Rights and Welfare, the proportion of students with disabilities who cannot use digital products for online
teaching and homework during homeschooling is much higher than that of ordinary students.
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220. We suggest:
(1) Check whether the affected students with disabilities have successfully
reached the instructional resources and evaluate if the learning outcome is
affected.
(2) Eliminate the digital gap as much as possible to equal the rights of information
reception and online education.
(3) Maintain the "normal function" of family and school by reserving the rights
for some students to attend the school where possible.
In response to Point 247 in the National Report
Teenage Pregnancy and Abortion
221. The Ministry of Health and Welfare (MOHW) has statistics on teenage fertility
rates, and the Ministry of Education (MOE) has statistics on student pregnancy.
However, there are no official "statistics on teenage pregnancy and abortion".
According to the investigation by The Control Yuan, both MOHW and MOE have not
been able to know the number of teenage pregnancies well. Therefore, The Control
Yuan suggests creating an integrated platform to collect concrete statistics from
schools to MOHW to further establish coherent measures and policies.212
222. We suggest:
(1) Provide correct official statistics on teenage pregnancies and abortions.
(2) Conduct empirical studies to investigate the patterns and causes of teenage
pregnancy.
212 The Control Yuan, The Control Yuan Investigation Report, (2017), no. 0070. https://www.cy.gov.tw/
CyBsBoxContent.aspx?n=133&s=5846
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In response to Point 70 in the Concluding Observations/Points 249, 250, 251, and
252 in the National Report
Obligation of Public and Private School Attendance
223. The government promotes a conditional tuition-free policy for senior secondary
education.213 However, according to the law214, the Ministry of Education has enacted
and amended the "Regulations Governing Private Senior Secondary Schools with an
Excellent Performance Evaluation Being Subject to Less Stringent School Operation
Requirements."215 As a result, enlarging the difference in tuition fees between public
and private schools and increasing the financial pressure for students.
224. We suggest:
(1) Review the purpose of the regulations to encourage private senior secondary
schools with excellent performance.
(2) Consider rewarding high-performing private schools through government
subsidies rather than transferring the obligation onto students.
In response to Point 72 and 73 in the Concluding Observations/Point 243 in the
National Report
High Preschool Student-teacher Ratio
213 Those who study in professional group subjects and the first three years of five-year junior college programs
are exempt from tuition fees regardless of public or private schools; those who study in public or private high
schools and whose annual family income is less than 1.48 million are exempt from tuition fees. When exceeding
the threshold of 1.48 million, those who study in public high schools will not be subsidized, while in private high
schools, there will be fixed subsidies considering the family's financial burden.
214 Article 57(3) of the Private School Law: In addition to rewards, private schools whose evaluation results
indicate that they have been well run shall not be bound by the Law and related regulations when setting out to do
the following, after being approved by the school authority:
1. Adding new departments, schools, programs, and classes.
2. Deciding the departments, schools, programs, and classes that are enrolling, admissions, and student numbers.
3. Deciding the ages of the president and fulltime teachers.
4. Deciding tuition and fees, their uses and amounts. Limited to schools having a sound student aid mechanism.
5. Conducting experimental education in a school setting or on-campus educational experiments.
215 After the amendment was announced in November 2019, private vocational and high schools are exempted
from tuition fees. However, some schools are exempted from the relevant laws and regulations regarding the fees
charged by students from Article 47(1) of the Private School Law and Article 56(4) of the Senior High School
Education Act, and they can increase up to 20% of the sundry fees and 10% of the collecting fees.
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225. The preschool student-teacher ratio enacted in 1981 by the Early Childhood
Education and Care Act is 15:1. However, in recent years, the birth population has
dropped from 410,000 to 180,000. Previously, the student number of each class in
primary and junior high schools was 45. The number has shrunk to 29 in primary
schools and 30 in junior high schools. On the contrary, the student-teacher ratio in
preschools remains the same as 40 years ago, with 30 students in each class.216 There
is no apparent improvement dealing with childrens' injuries in preschools, and the
high student-teacher ratio is one of the main reasons.217
226. We suggest that lowering the student-teacher ratio can effectively improve the
quality of child care in preschools or other child care institutes, reduce the overwork
cases of manpower, and help decrease the manpower turnover rate. Therefore, the
government should:
(1) Propose a specific timetable for lowering the preschool student-teacher ratio,
at least to 12:1.
(2) Provide support to counties and cities governments willing to reduce the
student-teacher ratio and subsidize additional classes or manpower costs.
In response to Point 74 in the Concluding Observations
Educational Resource Distribution in Remote Areas
227. Children in remote areas have insufficient resources for childcare and education,
and there is a problem of uneven distribution of resources between urban and remote
areas. For example, regarding public educare services for children aged two to six,
54.71% of public preschools and 65.52% of non-profit preschools are located in
Taiwan’s six special municipalities, indicating the enormous gap between urban and
remote areas.
228. Take a closer look at the “remote areas” of counties and cities defined by the
Ministry of Education, 20 remote towns have a coverage rate of less than 60% of
216 The integration of kindergartens and nursery schools in 2016 revised the Early Childhood Education and Care
Act, lowering the student-teacher ratio for children aged 2-3 to 8:1, yet for aged 3-6 remained 15:1.
217 Chang Hsin-Yi, "A Survey Study of Children's Safety in Kindergarten and Day Care Center", Department of
Social Work & Child Welfare, Providence University, Master's Thesis, 1999.
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public educare services, and 50 of them are between 60% and 90%. Moreover, among
these 100 remote areas, 64 townships and cities have no private preschools.
229. In practice, the Community (Tribal) Cooperative Educare Centers (abbr. as the
Educare Centers) has found that although the centers served children between the
ages of two and six, there was a lack of care resources for newborns, infants and
toddlers under the age of two in remote areas. Entrusted by parents, the Educare
Centers provided "temporary babysitting," indicating that there are infant care needs
in remote areas and tribes. Nevertheless, the central authority, the Ministry of Health
and Welfare, is still "conducting an assessment."218 NGOs also applied with the local
governments, hoping to utilize the public spaces in the tribe to build up public educare
homes, thereby fulfilling the infant care needs aged 0-2. However, local governments
have declined their applications due to the high operation cost.
230. We suggest: The authority should promptly amend the law to respond to the
Concluding Observations regarding protecting children's right to education in remote
areas. Survey the educare needs of children aged 0-6 in remote areas. Furthermore,
inject due funds to provide affordable, accessible, and good-quality public educare
services.
In response to Point 78 in the Concluding Observations/Points 259-264 in the
National Report
Dropout Children and Youth
231. In practice, the dropout students are intervened mainly by alternative education
resources, and the definition of dropout is relatively narrow. Some counties and cities
do not have alternative education resources yet219, meaning there may not be
218 The Ministry of Health and Welfare recently discussed a particular chapter about cooperation in the children
educare act draft, intending to refer to the Educare Centers. So they visited the Educare Centers of Pinghe and
Meiyuan tribes in Pingtung, and considered setting up public educare homes in the tribes.
219 Such as collaboration transition class or middle way class.
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resources for dropouts in time; besides, there are gaps in allocating rural-urban
resources.220
232. To cooperate with "the policy to reduce the dropout rate," schools adopt a
passive strategy, preventing many students from being reported as dropouts221. These
students attend school irregularly for a long time because they lack learning motives
in the current educational system or are interrupted by other reasons. When not
identified as dropouts, they cannot get counsel or other resources.
233. We suggest establishing an early warning mechanism for long-term absent
students, keeping track and providing counseling. Furthermore, formulating concrete
counsels and introducing resources from different support systems to stabilize their
attendance.
Service System for High School Dropout Students
234. The as-is high school dropout counseling still focuses on "returning to school."
Although the government currently has related resources for juveniles to refer to or
choose from, the services are divided and lack a primary role of tracking, counseling,
or managing resources. Resulting in concluding a case or terminating the service due
to multiple causes, and leaving no way to follow up on the cases.
220 Financial Statement of Agency, K-12 Education Administration, Ministry of Education, 2020 (Certified)
https://www.k12ea.gov.tw/Tw/PublickInfo/InfoopenDetail?filter=6587798C-6F9E-4221-
B5D2-880F9890F002&id=d170e5b9-0883-4637-b5c7-c993dccce244。 The rechecked number of primary and
junior high school dropouts was 3,086 in the 108 school year. In 2020, the K-12 Education Administration,
Ministry of Education approved subsidies summed up 1,324 students and 89 classes for "middle way classes,"
"collaboration transition classes," and "Tzi-Huei classes." https://www.k12ea.gov.tw/Tw/PublickInfo/
EdufundDetail?filter=588AEF47-226C-4164-95A8-EE5EA941567F&id=7f349e8b-d68a-4a64-
b08e-7989cfab6b2d
221 Schools must report the status of dropouts under the "Policy of Subsidizing the Implementation for the Drop-
outs Preventing, Tracking and Returning to School Counseling by the K-12 Education Administration, Ministry of
Education" and the "Guidelines for Reporting and Returning to School Counseling of Unenrolled or Drop-out
Students in Primary and Junior High Schools." However, schools often use strategies to avoid reporting, such as
asking students to come in two days a week, allowing the students without entering the classrooms to stay in the
counseling rooms, or taking leaves to accommodate the abovementioned policies. "Ministry of Education says
Returning-to-school Rate of Dropouts Is Increasing, while Children and Youth Groups Expose the Lie and Reveal
the Truth," retrieved from: https://udn.com/news/story/6885/5104010
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235. We suggest:
(1) Establish a case management unit for high school dropout services to provide
juveniles with counseling or service referrals according to their needs. Track
the cases and ensure they receive appropriate assistance or support.
(2) Disseminate the related resources or support to junior-high students as
prevention.
In response to Point 79 in the Concluding Observations/Point 275 in the National
Report
Rules of School Uniform and Dress Code
236. In 2021, a non-governmental organization conducted the "Taiwan-wide Survey
on Winter Clothes and Accessory."222 The result pointed out that 72.5% of vocational
and senior high schools still do not comply with the regulation; moreover, the figure
is 95.6% in junior high schools, especially in private schools. The statistics showed
that regardless of public or private, the schools ignored the regulation223 from the
Ministry of Education and have continued to restrict students' dress codes illegally.
237. We suggest:
(1) Strictly supervise the violated schools for improvement.
(2) Refine the operation of the school uniform committee.
222 Within two weeks, responses from 2,856 students in Taiwan were collected. A sum of 425 vocational and
senior high school and 181 junior high school students participated in the survey. Results show that restrictions by
schools on students' dress codes include "restricting exposed hoods from hoodies," "prohibiting students from
wearing scarves and hats," "restricting the colors of students' winter clothes and accessories," "only skirts for girls'
winter uniforms," "directly confiscate students' winter clothing and accessories." As suggested from the survey,
private schools are more restrictive, arguing that "private schools are not under the control of the Ministry of
Education," "students who do not like the school regulations, please transfer to another school," et cetera. Many
students also said in the questionnaire, "It is such a difficult thing just to hope to be able to dress warmly in
school." Hair bans are vague or empty descriptions, such as re-dye to the original color, no perm, not weird, neat
and clean, simple, in line with the student's identity, et cetera, intended to cause confusion and conflicts for
possible rule-violation.
223 The Ministry of Education has issued administrative guidelines such as "Principles for the Regulations of
Students' Dress Codes in Senior High Schools," "Principles for the Regulations of Students' Dress Codes in Junior
High Schools," and "Principles for the Regulations of Students' Dress Codes in Primary Schools."
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(3) Review the implementation of the new national school uniform regulation and
really discipline schools involved in regulation violations.
In response to Point 82 in the Concluding Observations/Points 29, 31 and 276 in
the National Report
Complaints Procedure for Reformatory Schools
238. The complaints procedure of reformatory schools is almost the same as that of
adult prisons. With no independent, confidential, and secure complaints filing
procedure, neither the reformatory school's appeal committee nor the re-appeal
committee of the Ministry of Justice has clearly stated that Juvenile inmates have the
opportunity to express their opinions. The six juvenile correctional agencies
(Chengjheng High School, Ming Yang High School, Dun Pin High School, Li Zhi
High School, Taipei Juvenile Detention House, and Tainan Juvenile Detention House)
all closed their complaint cases by "groundless."224 From July 2020 to June 2021,
these six agencies' total complaint case number is zero. It was until the victim's family
made an external complaint that disclosed the fights, gambling, cell door shaking, and
others that happened in Dun Pin High School. The Control Yuan started the
investigation and issued the Corrective Report (Year 110 Jiu Zi no. 1) and
Investigation Report (Year 110 Si Tiao 0027).
239. We suggest:
(1) Actively provide various complaint filing channels to students, including
newly-established external inspection teams for each correctional agency.
(2) Although the Agency of Corrections, MOJ, has determined that reformatory
schools are not ordinary schools and cannot apply the operation of the
ordinary school appeal committee, they should at least include:
A. If one of the complainants or respondents is a special education student, the appeal
committee shall contain a member with respective expertise;
224 [225] "Case Closure of Complaints of the Agency and Others", Agency of Corrections, Ministry of Justice.
(last updated on July 23, 2021) Retrieved from: https://www.mjac.moj.gov.tw/4786/4848/4873/988908/post
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B. During the appeal process, the complainant shall have the opportunity to express
their opinions at the meeting and can answer the questions raised by the appeal
committee;
C. Involving a student representative is worth working on, and new regulations can
determine the election. As an essential citizenship education, the election process is
scarce and necessary in juvenile correctional agencies.
In response to Point 80 in the Concluding Observations/Point 277 in the National
Report
Military Training Instructors and Alternative Manpower
240. The policy of the Ministry of Education indicates that all schools cease to recruit
new military training instructors from 2017 and schedule to "evade all the military
training instructors from the school campus" by 2023. According to the "Guideline of
Recruiting Innovation Manpower for Student Affairs in Senior High Schools" issued
by the K-12 Education Administration, each military training instructor position
replaces by one innovation manpower. However, there are many controversies about
the innovation manpower in practice. In 2018, conflicts happened between students
and faculties in Taipei Municipal Jianguo High School. The innovation manpower
who worked as security guards has implemented a different school regulations
standard than past military training instructors, resulting in students launching a
petition against the innovation manpower position.225
241. There is no clear official statement about the difference between innovation
manpower and its predecessors, whether they have the same authorities or can
discipline students. We suggest:
(1) Enhance the recruitment policy's promotion for innovation manpower to
attract more candidates. The small number of applicants mainly came from
relevant positions in the education system is the bottleneck for successful
recruitment in practice.
(2) Regulate the qualifications and authorities of the innovation manpower, re-
clarify the job description, rather than just sending the military training
225 https://tw.appledaily.com/life/20180914/SOHMH3JH3PEMIKON72U4FQF6WI/
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instructors off the campus and back to school with the name "innovation
manpower in student affairs."
In response to Points 83-85 in the Concluding Observations/Point 291 in the
National Report
School Time for Students
242. In 2016, the Ministry of Education amended the regulations to stipulate that
students can decide to participate in early self-study during two specific school days.
However, the regulations are limited to public and private high schools "supervised by
the Ministry of Education," so local governments have no obligation to follow the
regulations.226 Moreover, a deprived class recess as punishment is often, not to
mention students still accused of tremendous schoolwork pressure in suicide notes227.
Although there are regulations that require schools to protect students' right to
sufficient rest, the regulations are in a low legal hierarchy, therefore, lack coercive
power, causing minor improvement in some schools. Furthermore, no investigations
were made public to the schools that violated these regulations, making it challenging
to hold them accountable.228
243. We suggest:
(1) The Ministry of Education should protect the right of discretion in early self-
study for all students.
226 In response to the adoption of the proposal threshold in the public policy participation platform "Modify school
hours for junior and senior high schools to 9:30-17:00," when the Ministry of Education held the first online public
hearing, the participants asked about "Is there any school that illegally gives new lessons in the eighth class?" The
students left commends "+1", which can be recognized as early self-study and academic tutoring regulations; many
schools still violate the regulation as an open secret. Many students pointed out that their schools violated the
regulation and hoped that the Ministry of Education would show courage and supervise the improvement of illegal
schools, preventing these well-meaning policies from being seen not utilized by students.
227 News of a student studied in Taipei First Girls High School committing suicide, link: https://news.ltn.com.tw/
news/society/paper/1133231
228 The government had already begun to persuade schools not to compulsorily participate in homework tutoring
or evening self-study before the "Implementation Research of Education Normalization—Coordination Meeting
for Junior High School Course Guidance and Self-study in Schools" in 2006. The persuasion period has exceeded
15 years, and there is still no guarantee of the student's right to adequate recess with disciplinary measures against
the school. In addition, the improvement in the forced increase of study time is limited. According to the
investigation by the Control Yuan, there is still an average incomplete pass rate of 58.78% regarding the complete
improvement, indicating schools still infringe on students' right to recess under current policies.
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(2) The Ministry of Education should enforce laws and regulations, take
accountability as the central education authority, not rely on the current
investigations conducted by NGOs.
In response to Point 85 in the Concluding Observations
Low Satisfaction in Youth with Arts Education
244. Youth with art empowerment education have shown above-average results when
conducting NGO questionnaires, as to willingness to participate in theater art
activities, work in art industries, and art-related recreation time.229 However, only
10% of youth expressed satisfaction regarding the art education policy survey230,
indicating enormous room for improvement about the current system.
Youth Arts Education
245. The government has injected relatively minor resources into the groups that
empower youth drama arts. According to research by NGOs, to improve citizen
cultural literacy and cultivate artistic talents, one must start from childhood or
juvenile.231
246. We suggest:
(1) Promote and formulate the competent authorities related to art education
policies. In addition to education agencies, include culture agencies as co-
authorities.
(2) Add government subsidy to encourage and promote youth art training or
rooting plans by education and culture authorities.
229 "Impact Report on Promoting Sustainable Development with Theater Education by Teenager Performing Arts
League," Teenager Performing Arts League, 2021.
230 "Impact Report on Promoting Sustainable Development with Theater Education by Teenager Performing Arts
League," Teenager Performing Arts League, 2021.
231 "Impact Report on Promoting Sustainable Development with Theater Education by Teenager Performing Arts
League," Teenager Performing Arts League, 2021.
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In response to Point 85 in the Concluding Observations/Points 199 and 296 in the
National Report
Safety Management System of Children's Playgrounds
247. Although the Ministry of Health and Welfare has set relevant regulations for
children's playgrounds,232 there are still problems of ambiguous accountabilities and
responsibilities233 due to the diversity of venues and the involvement of multiple
authorities. In addition, due to the lack of workforce and funds for professional
inspections, the current completion rate of qualified children's playgrounds is only
33%234. Unable to carry out improvement plans. Nevertheless, there is no complete
quantitative data as a reference for overall policy planning.235
248. We suggest:
(1) As to common playground injuries236, implement the coding records for
external causes that conducted medical treatments in hospitals. Meanwhile,
de-identify the data for further application.
(2) Actively establish and implement the filing procedures for the "Basic
Information of each Children's Playground and Facilities" and educate the
case officers. Combine the existing data with a Geographic Information
System (GIS) to create infographics.
(3) Actively develop the industry's entry and withdrawal mechanism and the
training and certification system to guide and encourage the private sector to
232 "Children's Playground Safety Management Regulations," "Ministry of the Interior Design Standards for
Barrier-Free Facilities and Equipment in Recreational Places," and relevant national standards such as CNS12642,
12643, 15912, 15913, et cetera.
233 The number and relevant management regulations of playgrounds are commonly not precise due to the
turnover of pertinent contractors.
234 From the "2nd Accident Injury Prevention Coordination Meeting in 2021", most recreational places have not
been implemented for future reference and are prohibited from opening, affecting children's right to play.
235 The government fails to master playground data such as GPS positioning, game types, playground size and
nature, and injury monitoring data, causing a lack of an overall clear game-planning policy with risk-benefit
assessment, which is challenging to take into account the needs of children regarding different ages, ethnic groups,
and regions.
236 Such as falls, punctures, fractures, et cetera.
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invest in the playground inspection business. In addition, take full
responsibility for supervision and management.
In response to Point 85 in the Concluding Observations/Points 200 and 295 in the
National Report237
Recreational Resources for Children and Youth with or without Disabilities in
Non-Urban Areas
249. In non-metropolitan areas, there are limited recreational areas and facilities for
children and youth. Unevenly distributed resources happen in urban and rural areas.
Most public facilities locate in the city center; therefore, the accessibility is poor for
children and youth living in remote areas238. In addition, there is no development of
relevant recreational resources for children and youth with disabilities.239
In response to Points 267 and 323 in the National Report
Overseas Students Programs
250. The number of overseas students in the work-study program has increased
yearly240, by five-fold in six years. In the deliberative conferences between central
and local agencies, it was evident that the consensus is in favor of introducing
overseas students to prevent the closure of private schools from poor enrollment.241
Moreover, even the national policy242 views overseas students as a solution to
complement the labor shortage in Taiwan, ignoring the rights to education and
237 Appendix 7-14 and 8-27 of the National Report
238 For example, the average number of children and youth served in New Taipei City is 1,193; it is 1,444 in Taipei
City and as high as 13,455 in Nantou County.
239 Appendix Page 170 of the National Report, the second draft. https://crc.sfaa.gov.tw/Document/Detail?
documentId=190168FD-DBE4-4092-B9AD-AC8C4FA2F322。 Promotional Team of Child and Youth Welfare
and Rights, Ministry of Health and Welfare, 2nd Meeting Minutes, Page 25, 2020.
240 The number of students gained from 281 in the 103 school year to 1726 in the 109 school year.
241 "Overseas Students as the Cure for Private Schools on the Verge of Closure? Recruitments of the Cooperative
Education Programs have doubled, and Students in Mainland China also shown Interest", United Daily News, link:
https://udn.com/news/story/6929/3793757
242 [243] The establishment of the "3+4 Overseas Compatriot Student Vocational Training Program" by the New
Southbound Policy.
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counseling for underage overseas students.243 Not to mention that the government
cannot inspect and audit whether the educational organization equips with qualified
counselors and teachers who can communicate in respective native languages to
provide further assistance for underage overseas students.
Information dissemination for the Vocational Education
251. The labor rights of our student participants, such as ensuring that labor rights and
interests are intact, are passively protected. Furthermore, evaluations on the training
outcomes from partner institutions are not active. According to the "The Act of the
Cooperative Education Implementation in Senior High Schools and the Protection of
Student Participants' Right," schools should provide student participants with basic or
pre-training to equip them with background knowledge. However, in the investigation
reports on the rights and interests of student participants, the evaluation of "student
participants obtaining adequate training" is not presented, such as whether obtaining
skills evaluation certificates and the proportion amongst student participants.
252. There are 120 petition cases from 2016 to 2020, judging from the statistics, 20 of
which are related to vocational skills training in cooperative education. The
government should enhance the inspection and review about protecting the rights and
interests of student participants.
In response to Point 300 in the National Report
The Kite Project
253. Teenager Performing Arts League has established the Kite Projects
autonomously since 2014. Starting from 2017, they introduced art empowerment
programs as club activities in alternative education, decreasing the dropout rate
yearly. However, the sustainability of those programs is an issue. After the program
243 "Training Foreign Workers or Educating Students: When Overseas Students from Southeast Asia Meet Novice
Teachers in Vocational High Schools," The Reporter, link: https://www.twreporter.org/a/opinion-southeast-asia-
overseas-chinese-students-in-taiwan-vocational-high-school
Excerpts from the report: The schools mixed students with different Chinese proficiency, making it difficult for
students to learn; when students lacked motive or resisted occasionally, the school ordered them to bask in the sun
and sing military songs on the sports field, and practice marching on the spot every day after school… ...and like
local students, they are "trained" to be useful interns. Enterprises have also heard that there are obedient and cheap
students, so they are more willing to negotiate with schools for cooperative education.
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ends, the at-risk students are back to their routines.244 Currently, mainstream
education has not valued art education,245 and there is no long-term, well-planned
policy and implementation for accompanying art.
254. We suggest:
(1) The government should recognize accompanying art education and provide
subsidies for cultivating teachers.
(2) Evaluate alternative education programs and incorporate the sustainable Kite
Project into the curriculum design.
244 In the report by the Teenager Performing Arts League, schools are divided into five levels, the first one is the
academic counseling classes in caring stations, the second is alternative school/education, the third is placement
institutes, the fourth is Juvenile Detention Houses, and the fifth is Juvenile Reformatory Schools. In the early days,
the League worked on Levels 3 to 5. The current focus is Level 2. The results are fruitful when accompanying
those students. However, the students can easily be dragged down by their original lives when the semester ends.
245 [246] Chen Yu-Hsiang, "Discussion from a Competence-Oriented Perspective on the Status Quo and Practice
of the Secondary School Teacher Training 'Arts Teaching Material and Methods' Curriculum", Journal of Research
in Education Sciences, Volume 63, Issue 4 (2018), 63(4), 89-117 doi: 10.6209/JORIES.201812_63(4).0004
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Chapter 9: Special Protection
In response to Points 56, 283, 314 in the National Report
Co-creating Tribal Preschools246
255. Consider the youth and elderlies in the tribe as teachers, integrate tribal cultures,
and live within the context of tribal routines and ethics247 to foster children's abilities
to grow self-reliant in the tribe. The realization of the Community (Tribal)
Cooperative Educare Service Center (hereby Educare Center) has proven to be the
best educational practice to pass on tribal cultures. Unlike the “childcare center
voluntarily built up by the community” indicated in the Early Childhood Education
and Care Act248, the government shall actively promote the Educare Centers with
empowerment policies, from formulation, promotion, empowerment measures to
system-completion, in order to help the tribes to succeed the indigenous cultures.
256. 60-70% of the operating funds for the Educare Center are from the central
government's "subsidy programs"249, and the community fundraises from 20% to
30%. Especially in Pingtung County, where the Educare Centers are most popular, the
"Community Development Associations" take accountability for these subsidy
programs. However, the associations are not professional NPOs or NGOs and do not
have sufficient financial resources or fundraising capabilities.250 Therefore, the
community development association is very tight in the use of funds and even has to
sacrifice the labor rights and interests of the educators (overtime pay, shift charge, et
cetera.) to subsidize the operation of the center.
246 There is no designation for this preschool in current law and practice, and the official name is Community
(Tribal) Cooperative Educare Service Center.
247 The educators at the Educare Centers designed the course content by themselves, including a complete series
of life learning, starting from the nearby land, understanding the transitions of the four seasons, and important
festivals in tribal culture.
248 Article 10 of the Early Childhood Education and Care Act.
249 The Council of Indigenous Peoples and the Ministry of Education will each pay half of the personnel expenses
related to the Educare Center (teachers, cooks, activities and meals, facilities and equipment, et cetera). The meal
subsidy is 800 NTD per child per month, which converts to only 36 NTD per child for lunch and snacks every day.
250 The Council for Cultural Affairs is in charge of the community development associations. It hopes that a group
formed by the community undertakes the promotion of community construction. Community development
association staff are unpaid unless there are subsidy programs.
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Indigenous Children Subsidies
257. The Educare Center advocates the sharing of spirits and resources of indigenous
tribes; therefore, it centrally uses the local government subsidies for indigenous
children and youth that belong to the center251 and makes up for the operating costs.
In August 2021, the Ministry of Education(MOE) implemented a new child care
policy, "National child care policy for ages 0-6." Since the MOE provides more
allowance than the indigenous child care subsidy (21,000 NTD vs. 10,000 NTD), the
Council of Indigenous Peoples filed an official document to local governments stating
that they will cease to subside for indigenous child care. However, when the semester
started, the Educare Centers found that they were not eligible for the new allowance
policy from the MOE. The MOE mainly responded, "Because the Educare Center can
compensate child care and education costs with subsidies from the central
government. Therefore, the 'National child care policy for ages 0-6' does not apply to
the Educare Center." The local government subsidies for indigenous children and
youth to operate Educare Centers no longer exist, causing immense financial
difficulties for community development associations that run the Educare Centers.
Fund for Pedagogic Materials in Co-creating Tribal Preschools
258. The Council of Indigenous Peoples requires that 50% of pedagogic materials for
the Educare Centers integrate with the tribal culture. However, the Council does not
provide any pedagogic materials or resources. When designing pedagogic materials,
teachers must develop project plans, make music recorders, draw picture books, hire
indigenous language teachers and invite tribe elders to class. The Educare Centers
need to search and make additional proposals and applications for these irregular
subsidies to cover the above expenses.
Teachers in Co-creating Tribal Preschools
259. There is no quota for administration staff in the Educare Centers252, yet the
administrative work is the same as that of public preschools. With the student-teacher
251 The Educare Centers apply for the "Indigenous Children Subsidy" to the county or city governments. Each
Indigenous child aged 3-5 in the Educare Centers will receive a maximum subsidy of 10,000 NTD per semester
from the Council of Indigenous Peoples.
252 There are administration staff and related personnel expenses allocated in public preschools.
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ratio of 8:1, the teachers/educators still need to serve administrative duties. Moreover,
in parallel with the non-profit preschools and immersion preschools, the educators'
salaries in the Educare Centers are lower than in the former. The educators' salary in
Educare Centers is based on educational backgrounds and indigenous languages
certifications; however, most educators are mothers in the tribes and may not be able
to afford or have time for advanced education. Furthermore, many tribes are in the
mountain areas far from advanced education schools, indicating a tremendous cost of
transportation.
260. We suggest:
(1) The government should conduct an annual survey on the resources and needs of
childcare for children aged 0-6. The scope of the survey should be specific to
each township and urban area, and even more detailed to villages, communities,
or tribes. Particularly, the childcare demands in rural, remote areas and
indigenous tribes need special attention. Based on the survey results, set policy
goals for setting up public childcare institutions, and reduce the resource gap
between urban and remote areas yearly.
(2) The government should face up to the actual outcomes of the Educare Centers,
for they can meet the education and care needs of tribal parents and inherit the
culture of indigenous people. View the Educare Center as a part of public care,
formulate specific policy goals, and allocate sufficient budgets, to stabilize the
operation of the Educare Center.
(3) Regarding the research and development of pedagogic materials for the Educare
Centers, the government should increase the subsidy to encourage them to
develop localized pedagogic materials and courses.
(4) The government should improve staff salaries in the Educare Centers, increase
the number of salary subsidies, and do not use academic qualifications or
indigenous language certification as the only salary standard. Instead, adopt
multiple identification methods flexibly and respect different perspectives
between indigenous groups about education and caregiving.
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Gap and Cultural Discrimination in Minority Education
261. After the children from the Educare Centers enter primary school, they are no
longer connected with indigenous education. Possibly because the neighboring
primary school is not an indigenous school, or the children from the Educare Centers
are positioned as lacking academic ability after entering the primary school stage,
resulting in discomfort. In a more extreme case, it was found that the primary school
authorities used a unified teaching standard to measure children's capabilities by
academic achievement. Often, schools would abandon children who cannot keep up
by the third and fourth grades. Compared with tribes, schools are fields that do
specialization. The original tribal life context is scholastically extracted from
traditional cultural knowledge, causing inherited tribal culture great difficulties.
262. Moreover, to avoid the problem of the previous point, parents can only choose to
transfer their children who initially participate in the Educare Center to the public
preschool, which has achieved the goal of perfectly connecting to primary school
education. To effectively prevent discrimination and cultural gaps caused by
education systems and policies, we suggest that the Ministry of Education should
provide systematic and practical training for primary and junior-high school teachers,
as well as systems and frameworks for learning materials, evaluation of students'
abilities, and ethnic languages and indigenous cultures as basics. Furthermore,
cultivate flexibility and respect for children and youth of different ethnic groups.
In response to Point 89 in the Concluding Observations / Points 318-322 in the
National Report
Labor Data Collection and Rights for Children Under the Age of 15
263. The government can still not grasp the actual labor situation of "child labor under
15." The Labor Standards Act stipulates that children under 15 must make legal
applications for work. However, the number of legal applications filed by the official
is only 1,000 per year253 (more than 90% of which are in the entertainment industry).
However, according to the Ministry of Health and Welfare's 2018 "Report on the
Survey of Children and Adolescents Living Conditions"254, it is estimated that there
are 73,778 junior-high-school students aged 12 to under 15 with working experience,
253 Refer to [Appendix] Appendix 9-6 of the National Report (p. 174).
254 Department of Statistics, Ministry of Health and Welfare, 2018, (1) 2018 Survey and Analysis - Children:
https://www.mohw.gov.tw/dl-70442-d0dc910a-407a-4fc0-a112-5155f1932ed7.html ; (2) 2018 Survey and Analysis
- Youth: https://www.mohw.gov.tw/dl-70441-6400564b-96a3-4005-a153-c1f5b9598d07.html
101
which is much higher than the number of legal applications. In addition, based on the
same survey, far from the entertainment industry shown in the legal application,
40.5% of child labor working in the catering industry accounted for the highest
percentage, and others included factories.
264. The illegal working conditions for child laborers under 15 are worrying and lack
legal protection and labor insurance. Followed the child labor context, in 2020, there
are still cases of economic exploitation in the capital, Taipei255. Furthermore, several
social workers served in non-metropolitan areas, and the "Survey about Out-of-school
labors of Continuing Education Students"256 indicated the actual labor exploitation
cases in real life.
265. Currently, the Taiwan government merely conducts a "one-time" work survey
targeting students aged 16-18 in continuing education in 2019.257 Which do not
correspond with the "normality" and meaningful data collection about essential issues
of children and youth mentioned in the Concluding Observations and General
Measures of Implementation.
266. As stated above, there are also no relevant surveys and data on the ethnic groups
that the CRC concerns peculiar. Only indigenous and non-indigenous groups are
distinguished so far. Others, including data of new immigrant children, LGBTI, and
high-risk families, are missing. Practice shows that often the minorities are less likely
to be protected by labor insurance.
Underage Labor Rights and Occupational Safety
267. Under current laws and regulations, it is still impossible to protect underage
children's labor rights and occupational safety effectively. Only children aged between
15 and 16 have exact regulations regarding working hours. According to the "Survey
about Out-of-school labors of Continuing Education Students" by Taiwan Alliance for
Advancement of Youth Rights and Welfare and the survey by Directorate-General of
Budget, Accounting and Statistics, more than half of the youth aged 15-19 work over
255 In 2020, a chicken cutlet chain store in Taipei illegally hired several junior high school students for 60 NTD
per hour (the legal minimum wage per hour was 160 NTD at that time). Link: https://tw.appledaily.com/life/
20200518/HOJWTWL5DWSGOCLLPCLVTRLJ4I/
256 See footnote 5.
257 Conducted by the Taiwan Alliance for Advancement of Youth Rights and Welfare "The Survey and Research
about Out-of-school labors of Continuing Education Students aged under 18 in Senior High Schools
2019" (abbreviation: Survey about Out-of-school labors of Continuing Education Students) http://
www.youthrights.org.tw/news /1484
102
forty hours a week, which is no different from adults.258 The same survey by Taiwan
Alliance for Advancement of Youth Rights and Welfare pointed out that 35% of
students work more than five days a week. Long working hours for children and
youth causes physical and mental pressure, oppressing their right to education.
Moreover, there are still 25% who work more than 8 hours a day, 15% work seven
days continuously, and about 12% work late at night or in the early morning.
268. According to the Ministry of Labor statistics, about 120,000 children aged 15-18
are employed259. However, there are no statistics with accurate age classification, and
in Appendix 9-5, National Report, there are only 21,000 children laborers within the
same age range who have labor insurance. Based on a survey by Taiwan Alliance for
Advancement of Youth Rights and Welfare and NGOs, from 2015 to 2020, about
40-50% of underage workers were not covered by labor insurance; meanwhile, the
unnoticed number of underage workers without employment insurance was even
higher.260 Meaning that juvenile workers are not covered by social insurance when
facing unemployment and unpaid parental leave risks.
269. As stated in Point 262, in Taiwan, there have been two severe child abuse cases
in the workplace over the past five years, resulting in one death and one serious
injury. In both cases, the disadvantaged juveniles were in financial difficulties and
unable to get a job; therefore, they reached out to illegal manpower agencies and
could not get any backup or support when facing problems in the workplace. Among
these two cases, a 17-year-old boy was imprisoned, abused, and required amputation
treatment in 2020261; the other 15-year-old boy, the second generation of new
immigrants from Taiwan and India, was beaten to death in 2018262. Both cases show
that employers lack awareness of regulations related to the employment of children
and youth, and the government's protection of labor rights and interests for
disadvantaged children and youth is seriously insufficient.
258 See Table 22 in the link, https://www.stat.gov.tw/ct.asp?xItem=46590&ctNode=3579&mp=4
259 Refer to the statistical table 22 of the “Human Resources Utilization Survey” by the Directorate General of
Budget, Accounting and Statistics, Executive Yuan in 2020, https://www.stat.gov.tw/ct.asp?
xItem=37200&ctNode=517&mp=4
260 It is worth noting that the labor allowance for covid-19 in 2021 is based on employment insurance as an
essential basis for the determination.
261 "Changhua Teenager Working as an Iron Worker in Taoyuan was Abused and Detained by His Employer for 3
Months", 6 May 2020 https://news.pts.org.tw/article/477681
262 "His mother left home while nowhere to find his father! 15-year-old Taiwanese-Indonesian boy working to
support himself was abused to death by colleagues", 3 October 2018 https://news.ebc.net.tw/news/society/133100
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270. The advocacy work of juvenile labor rights and its stakeholders is a mere
formality and lacks result evaluation. There is also no reinforcement about
individualized support and services for juveniles with disadvantages or high-intensity
work needs.
271. We suggest:
(1) Immediately entrust academics and NGOs to conduct a complete survey and
research on "the situation of children labor aged under 15”.
(2) Conduct meaningful labor surveys and data summaries, including labor
conditions, reasons, and the current status of supporting systems. Avoid
formulating policies without the foundation of wholistic and actual statistics.
Moreover, the utilization of relevant resources is unclear and without rolling
review.
(3) The government should accelerate formulating relevant laws and regulations to
protect, appeal, and support underage labor rights.
In response to Points 90-91 in the Concluding Observations/Points 324-331 in the
National Report
Juvenile Drug Abuse
272. The government has no clear strategy for juvenile drug abuse strategy. In
practice, dealing with drug-addicted juveniles is often focused on preventing,
reporting, and informing, like handling criminals or adverse problems, instead of
physical and mental health issues that need support and counsel, based on CRC.
273. When facing juvenile drug use, the scattering mechanisms in police
administration, social administration, and campus security and counseling assistance
have different rules, and there is no clear guidance on site. For example, the Chun-
Hui(Youth-Support) Project on campus mainly comprises student affairs staff. In
junior high schools, the student affairs office is in-charge, while in high schools, the
military training instructors (replacing with security guards after transitions) take the
responsibility. Although both start from concerns about campus security and
management accountability, contradictions happen from time to time between them
and the counseling office. n an actual case, a teenager under treatment with a hospital
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service group was investigated by the police on campus, infringing on his privacy and
making him labeled. As a result, other children and youth with similar issues are even
more afraid to ask for help. In addition, some high schools and vocational schools
would reject applications from juveniles under custody because of their drug cases,
affecting their right to education.
274. In 2021, the "Implementation Plan for the Prevention of Student Drug Abuse by
the Ministry of Education" is revised, designing incentives and punishments to
establish a real-time report system in conjunction with schools and police agencies.
Meanwhile, the implementation plan stipulates that the information-reporting ratio for
sources of individual cases and the rate of case counseling must reach 80%, creating
potential contradictions on campus between the investigation of tracking drug dealers
and the counseling for cases. In practice, the mission of tracking drug dealers will
navigate the counseling strategy, challenging case counseling.
275. As stated above, another drug prevention measure on campus is the "Principles
of Incentives and Disciplines for Reporting Specific Personnel at Schools at Senior
Secondary Level or Below." However, the proportion of "specific personnel" being
reported is a standard of performance, which distorts the operation of campus
counseling.
In response to Point 333 in the National Report
Children and Youth Sexual Exploitation and Sexual Abuse
276. The front-line police officers currently lack understanding of victims of sexual
exploitation, tending to stereotype them when interrogating. Moreover, when
operating relevant procedures, they do not adjust their questioning or wording to the
rights and interests of children and youth. Furthermore, some police officers are
unaware of the procedure for children and youth sexual exploitation and provide
wrong information to children, causing them to misunderstand or create confusion.
277. We suggest:
(1) Include police personnel in the scope of the educational training in Point 85 in
the National Report, along with prosecutors, prosecutor investigators, judicial
police officers, and social workers.
105
(2) Enhance the educational training about the "CRC" for police officers to
implement the protection of children's rights and interests in judicial procedures
when handling child sexual exploitation procedures.
In response to Point 337 in the National Report
Research on Juvenile Inmates
278. Reformatory schools and juvenile detention houses are "total institutions" with
the judicial treatment of deprivation of liberty. They should be more active in
reviewing and arranging different research cases based on the principles of children's
best interests and the right to express and be heard, rather than apply one standard
operating procedure.
279. We suggest:
(1) Re-examine the pre-research preparation if the consent of the statutory agent is
confirmed. In practice, juveniles often violate the law because of family
relationships, and the agent's consent will be meaningless.
(2) Ensure that children and youth are safe to speak for themselves and will not
suffer from subsequence.
(3) Make sure that no trauma is generated in the procedure.
In response to Points 95-97 in the Concluding Observations/Points 338-354 in the
National Report
Children and Youth who Violate the Law
On-Campus Counseling Resources
280. There are different types of special students or high-risk students who need
counseling in schools, and all primary schools with more than 24 classes have set up
counseling offices. However, the recent declining birthrate has caused insufficient
enrollment; thus, most primary schools no longer have counseling offices, resulting in
a counseling manpower shortage. Taking the six southern counties and cities as an
example, only Kaohsiung City has set up counseling offices without exception. Chiayi
106
City and Pingtung County have set up counseling teams, but Yunlin County, Chiayi
County, and Tainan City have no counseling directors or team leaders. The current
situation of school counseling manpower in primary schools presents "one country,
multiple systems." Increase the level to the whole country, the insufficient campus
counseling manpower will be even more severe, and the gap between urban and
remote areas will be more obvious.
281. As mentioned above, facing the neediest students who are not on campus, the
counseling manpower may have no time to visit or provide assistance. Even students
who enter the counseling system at school may have to leave the ordinary classroom
and concentrate in the counseling room for better management and control. Partly
because they cannot perform stably in class and the on-site teachers cannot take care
of their needs, which has become a specialization of isolation.
282. "Measures for the Prevention and Counseling of Juvenile Misbehaviors," as an
integrated action plan under the "Juvenile Justice Act," has been criticized by the
public for "mere connections with formality"263. It lacks substantial resource
consolidation and re-evaluation of the current system; thus, it cannot effectively
respond to the manpower-shortage dilemma and the resource distribution gap between
urban and remote areas in the education sector.264
283. As the "Measures" stated above, it marks more than ten behaviors, such as
"overuse 3C products," as deviations. As an extension of the "Juvenile Justice Act," it
excessively spreads the regulation of the "Code of Criminal Procedure" to the legal
behaviors secured by "The Protection of Children and Youths Welfare and Rights
263 The press conferences held by six NGOs and legislators (27 October 2020): https://news.ltn.com.tw/news/
Taipei/breakingnews/3333587
264 According to Point 74 in the Concluding Observations on the initial report of the Republic of China/Taiwan on
the implementation of the UN Convention on the Rights of the Child, in terms of educational resources, the review
committee noted that the current allocation of educational resources is insufficient to ensure the quality of
education for children in remote areas. The investigation report by the Control Yuan also indicated that there are
shortages of on-campus counseling manpower for students with special needs in different regions. If even the
resources to serve the special needs of children and youth in the system are insufficient, the resources will only
become more difficult in the face of the students exposed to risks and deviant issues in the future.
107
Act." Which completely deviates from the CRC spirit about counseling first and
removing judicial labels.265
In response to Point 29 in the Concluding Observations/Point 344 in the National
Report
Children and Youth's Privacy Rights in Judicial Cases
284. There are times that after the mass media disclosed juvenile delinquencies,
Netizens would find victims and perpetrators in the cases with the "human flesh
search engine" and launched public trials on the Internet. Though "The Protection of
Children and Youths Welfare and Rights Act" clearly states that no information about
relevant children and youth in judicial cases are allowed to share. However, many
media provide sufficient information to identify interested parties, such as the
surname, school status, and living area, indicating a lack of specific practice
procedures. NGOs have appealed to self-discipline committees of various media but
with no apparent outcomes.
285. We suggest:
(1) Establish a set of remedies for violations of children and youth's privacy under
the management of a single competent authority.
(2) Enforce a related discipline for media and individuals who leak information
about children and youth in juvenile delinquencies.
265 According to Point 3 of the legislative reason of Article 86 of the "Juvenile Justice Act," the legislators
intended to limit the types of "deviant behaviors" in the "Measures for the Prevention and Counseling of Juvenile
Deviant Behaviors" to those listed in Article 3, Paragraph 1, Subparagraph 2 of the "Juvenile Justice Act," which
listed three types of risk exposure behavior. However, it is questionable whether the Executive Yuan has exceeded
the scope of the "Juvenile Justice Act" by adding 14 kinds of deviant behaviors to the "Measures for the Prevention
and Counseling of Juvenile Deviant Behaviors," which were not included in the "Juvenile Justice Act." Second,
although the Executive Yuan has repeatedly stated that "deviant behavior" theoretically "has no meaning of
labeling specific children." Nevertheless, the "Measures for the Prevention and Counseling of Juvenile Deviant
Behaviors" treat provisions of the "The Protection of Children and Youths Welfare and Rights Act," such as "use of
electronic products beyond a reasonable time," as a type of "deviant behavior" with the level of "sub-law." Thus, it
is inconsistent with the intention of "protecting rights" in the "Children's Rights Law." At the same time,
classifying such behaviors as deviant behaviors with "risk of delinquency" is more likely to result in over-
judgment of behaviors and "actual labeling effect."
108
In response to Points 345, 346 in the National Report
Professional Human Resources and Support Empowering System of Diversion
286. Other treatments (including custody) than being put on protection and
transferring to the district prosecutors' office, there has not been a significant change,
according to the "State of Filings and Dispositions of Juvenile and Child Protection
Investigation Cases in the District Courts"266.
287. The implementation of treatments with diversion actions is not fully yet.
According to Appendixes 9-21 and 22 in the National Report, more than half of the
cases lodged, due to juvenile criminal cases and risk exposure behavior of juvenile,
commence for trial. Meanwhile, the number of non-trial (including transferred
guidance, send to discipline, reprimand) has not significantly increased yearly. The
proportion of reform education also remains unchanged at 3-4%.
In response to Point 348 in the National Report
Restructuring of the Reformatory School
288. The competent functionary in the district government pointed out that: the
pressure from policy implementation has caused the recruitment of junior
professionals or manpower with no relevant working experience in juvenile
correctional agencies. The government's empowerment support program needs to
reinforce urgently.
289. As stated above, in reality, professional manpower are not employees but mainly
contractors (previously, labor contracting) or undertaken by external NGOs and
professionals. When these types of manpower enter a reformatory school, there are
many restrictions on entry permits and actual counseling time. There are also
problems such as uneven service qualities, which sacrifice the counseling
effectiveness.
290. The "Measures for Transition of Student Status and Resumption of School for
Children and Youths Received Placement Counseling, or Reform Education"
implements too hastily. Usually, the implementation starts one month before the
266 Please see "The Statistics about Concluded Case of Children and Youth Incident in District Courts by the
Judicial Court," source: https://www.judicial.gov.tw/tw/dl-86550-541f0e41899f4dcbb0e097609d7e05bb.html
109
reform education expires or the same month when the reform education ends,
resulting in ineffectiveness.
291. As mentioned above, in reality, ordinary schools often directly refuse or decline
to accept students with placement counseling or reform education on the grounds of
opposition from other parents or difficulties in the discipline. Resulting in nowhere
for the juvenile to go or attend schools with longer distances that are willing to
provide support.
292. We suggest providing wholistic juvenile services from placement, the follow-up
to transition for the sake of case continuity, and:
(1) Start the transition plan and the comprehensive care and counseling as soon as
possible. Formulate the treatment plan for the juvenile with the same team
members, check the implementation outcomes accordingly, and adjust it
timely.
(2) Assist senior and professional implementers in collaborating with the novices.
Meanwhile, ensure they have room for entering schools to perform their
expertise.
In response to Point 349 in the National Report
Draft Act for the Treatment Implementation in Juvenile Correctional Agencies
293. The current draft is based on the "Prison Act" and "Detention Act" for adults, far
from the CRC and the Havana Rules applicable to children and youth. The act's spirit
is based on "education" yet unfortunately buried by the guard and control mindsets.
In response to Point 350 in the National Report
Identification Processes in the Juvenile Detention Houses
294. What dominates the operation of Juvenile Detention Houses is the existing
discipline, which gives priority to guarding, controlling, and orders. With scarce
management staff, the teachers during the daytime are not regular, and it is impossible
to have a deep understanding of each teenager under observation. Completing the
identification and scoring for a juvenile within one month goes through the motions.
110
295. As stated above, at the end of November 2021, there was a jail-bar-shaking
incident at the Taipei Juvenile Detention House.267 On the surface, the cause seemed
to be a conflict between two factions of students. However, the administrator
deliberately acted against the new supervisor's "no pepper water" order by allowing
juveniles to fight.
296. We suggest improving the working conditions of the staff in the Juvenile
Detention Houses, supporting the station and training multiple professionals, reducing
the administrators' sense of crisis in the surrounding, and improving the lack of
flexibility when handling juveniles under detention.
In response to Points 351-353 in the National Report
Systems of Transition and Resumption of School
297. Based on the service outcomes disclosed in the "Resource Enhancement Plan for
Alternative Care for Children and Youth in Out-of-Home Placement" and the "Quality
Improvement Plan for Children and Youth Placement Services," it is still impossible
to know the actual effect of enhancing judicial juvenile care from the existing data.
298. There are still cases of judicial juveniles being placed in reform education
premises because the placement institutes could not accept the cases.268 The inability
of the placement institutes to accommodate the case are diverse, including the care
capacity (quantity and quality) of professionals, funding, community support
resources, and acceptance of a community, all of which will affect the possibilities
owned by children and youth. A single institution should not undertake these tasks
alone but rely on the collaboration between relevant competent units.
299. From the current information, it is impossible to know the service coverage rate
and outcome of transition after leaving the Detention Houses (Reformatory Schools).
However, there are many difficulties with following up or self-reliance services for
267 "Surprisingly News about the Juveniles Did Jar-Bar-Shaking Riots Out of Hunger Detention House: Not
because of Hunger, but the Juveniles Taunted and Provoked Each Other," 28 November 2021: https://
www.ettoday.net/news/20211128/2133730.htm
268 In the case of "After Contacting 12 Placement Institutions, No One was Willing to Accept the Juridical
Juvenile, and finally determined that the Juridical Juvenile Was Ordered to Reformatory", through the
investigation report, the Control Yuan urged the Judicial Yuan and the Ministry of Health and Welfare to review
and improve, 14 August 2019, the investigation report: https://www.cy.gov.tw/News_Content.aspx?
n=124&sms=8912&s=14169
111
judicial juveniles who have left the Detention Houses (Reformatory Schools)269. In
addition to the service difficulties of judicial juveniles themselves, there are many
dilemmas at social worker services, institutional levels, and external levels (policy
and environment) that remain to be resolved.
300. We suggest:
(1) For the deployment of community services, the government should strengthen
functions other than social affairs departments and actively cooperate with
other departments (such as police, labor, and justice) and social workers to
assist juvenile cases.
(2) Actively link the policy resources and allocation for judicial juveniles with
private children and youth organizations. Regularly inspect, put forward
practical evaluation and review, to avoid losing contact with the practice or
being a mere formality.
(3) Construct a professional treatment model for judicial juveniles, improve the
willingness of relevant workers to stay in office for a long time, and avoid the
rupture of experience and relationship.
Employment Preparation and Transition Services for Judicial Juvenile
301. The government's employment service for juveniles in particular circumstances
is still based on the service delivery of adults. The usage rate of juveniles in need is
pretty low. Charts 9-25 and 26 only show the number of participants in the particular
training programs, and the numbers for participation and employment referral are
mere two digits. The average calculated by each county and city would be less than
10, while in remote areas, the usage rate is close to zero.
302. As mentioned above, it is difficult for judicial juveniles to return to the
community to find jobs due to the social stereotype. The government has not provided
employers with sufficient incentives to assist and support. Meanwhile, planning
services for individuals lack systematic and structural support, such as employer
incentives, and can only rely on private organizations to help themselves.
269 Hu Chung-Yi, Huang Shang-Hao (2019). The Practice and Challenge of Follow-up Service for Young
Offenders Leaving Reformatory Education in Taiwan, Crime and Criminal Justice International, 31, pp. 71-100.
112
303. We suggest:
(1) Provide individualized services and support for the particularities and needs of
judicial juveniles. Not only aim at employment rate but also consider the
willingness and capability to help them remove obstacles to successful
employment.
(2) When presenting statistics such as employment service implementation and
participation in training, the location of projects should be included to monitor
the availability of resources provided.
(3) Develop a concrete incentive for employers, build and improve the system of
juvenile-friendly stores, establish a matching platform, and connect more units
to help juveniles become self-reliant in society.
(4) Strengthen the use of various publicity channels such as mass media,
eliminate the judicial juveniles stereotype of the public and companies,
providing job opportunities.
In response to Points 355-362 in the National Report
Juvenile Delinquency/ Children and Youth that Deprived of Liberty (including
any form of custody, imprisonment, or detention)
304. See the regulation introduced in the National Report, as shown in Appendix270:
The average placement time in 2020 for delivery to placement institutions was the
longest, reaching 734 days (more than two years), while in 2019 was 630 days, a
difference of more than 100 days. The average number of days in juvenile
reformatory schools decreases, but no significant change in Juvenile Detention
Houses. In addition, although the course section indicates that it should match the 108
curriculum as much as possible, it does not explain the "flexibility" character of the
108 curriculum and how to implement it in the course arrangement.
270 Please refer to [Appendix] Appendix 9-27 (p. 196) and 9-28 (p. 197) of the second National Report
113
305. Students enter the reformatory school at different stages, the delinquencies are
various, and the conditions and support from their families of orientation have huge
differences. However, individual treatment plans are scarce.
306. As for the current situation of the counseling courses in the Juvenile Detention
Houses, both psychologists and social workers are insufficient. For example, Taipei
Juvenile Detention House, which has the most significant number of people in
custody, has only one psychologist and one social worker, so they cannot undertake
the identification tasks. The treatment arrangements in the Juvenile Detention Houses
are based on the administrative rules issued by the Agency of Corrections, Ministry of
Justice271. However, various solitary detention rooms with different names, such as
Room Jing-xin, still exist. Not to mention, other treatment methods that are prohibited
are still available.
307. We suggest:
(1) Initiate the evaluation and identification group meeting when the juveniles
enter the juvenile detention house. Formulate different identification priorities
and treatment suggestions according to individual situations. Fully utilizing
the limited time in the juvenile detention house, working towards the "identify
before treatment" goal is the priority. In addition, increase and strengthen the
professional counseling manpower to prevent the delinquent juveniles from
leaving the detention house without autonomous capability, or even knowing
members of different gangs or joining the local mafia.
(2) As to reformatory schools, Ming Yang High School272 is an example of
curriculum design, especially the arrangement of club activities, combined
with the "flexible" characteristics of the 108 curriculum, to pilot and develop a
characteristic curriculum of "reform education." Before formulating an
individual treatment plan, identify the needs (including living and social
interaction) that the juvenile lacks from the family and community in the
271 On 23 October, 2019, Agency of Corrections, Ministry of Justice, An Zi No. 10801094420, released from:
https://mojlaw.moj.gov.tw/LawContentExShow.aspx?id=FE334548&type=E&kw=&etype=etype5。 The first
point in the description section indicated that responding to the report of the Control Yuan, thereby increasing the
supervision density by the juvenile court. Moreover, the "Statute on the Establishment of Juvenile Detention
Houses" took effect when juridical juveniles violated disciplinary rules. It is forbidden to use "unlawful adverse
actions such as stopping receiving visitations, shopping, or prohibiting outdoor activities, and prohibits
establishing and using wards for rule-breakers and observation wards and other management measures."
272 Lin Chiung-Yu, Chen Hung-Yi, "The Curriculum of the Juvenile Correctional School in Taiwan: A Case Study
of Ming Yang High School", "Journal of Corrections", Vol. 6, No. 2 (2017), pp. 69-104: https://
www.mjac.moj.gov.tw/media/28212/77413555513.pdf?mediaDL=true
114
previous lifestyle. Then, jointly formulate goals with the parties concerned
about life after leaving the reformatory school and prepare for possible
difficulties and support resources. Finally, carry out the transition work, and
involve the social workers for follow-ups in earlier phases. What is more, in
the process, add the opinions and thoughts of the juveniles into consideration.
In response to Points 364-467 in the National Report
Training for Juvenile Justice Professionals
308. Appendix 1-8 and 9-29 in the National Report273 show that the government only
demonstrates the quantified number of sessions, participants, and the satisfaction
questionnaire. However, the substantive content lists only major items without details.
Especially for police officers, which divides into: (1) Incorporating "CRC" into the
"Junior Police Work Seminar" education and training, but just adding one item to the
original curriculum. (2) Introducing "CRC" in the training materials for women and
children's safety professionals. Both have limited success with the investigation as to
their primary goal.
309. We suggest:
(1) Use "CRC" General Comment No. 24 (2019) on "the Rights of the Children
and Youth in the Juvenile Justice System" as a coherent concept in the
curriculum rather than fragmented.
(2) The curriculum design compares the viewpoints integrated into the CRC with
actual cases and the implementation cases of the specific CRC transition.
(3) Juvenile correctional agencies are the most compulsory and restrictive
measures. Therefore, it is essential to develop work guidelines with the "CRC"
for reformatory schools and juvenile detention houses.
273 Please refer to [Appendix] Appendix 1-8 (pp. 15-16) and 9-29 (pp. 198) of the Second National Report.
115
CRC WATCH
2022.03.30
116
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來源 PDF:34_20220415140052_569619.pdf
2022 兒童權利公約第⼆次台灣國家審查
NGO 平⾏報告
- 回應2017兒童權利公約國家審查結論性意⾒
- 回應2021兒童權利公約第⼆次國家報告
撰寫單位：
ＣＲＣ WATCH 兒童權利公約⺠間監督聯盟
2022.03.30 (可公開)
2022 兒童權利公約第⼆次台灣國家審查
NGO 平⾏報告
- 回應2017兒童權利公約國家審查結論性意⾒
- 回應2021兒童權利公約第⼆次國家報告
撰寫單位：
ＣＲＣ WATCH 兒童權利公約⺠間監督聯盟
2022.03.30 (可公開)
對應條⽂與平⾏報告點次
CRC條⽂ 平⾏報告章次
3,4,5 1-24
1 25, 26
2 27-37
3 38-47
6 48-66, 69-77
4 67, 68
13 78-88
14 89, 90
7,8,22 91-97
15 98-102
16 103-107
18,19,37 108-128, 133-135
34 129, 130
19,20 131, 132
2,19 136-142
8 143, 144
18,28 145-146
4,28 147, 148
2,20,24 149, 150
20,27 151-155,160-167,170,171
25 156-159
20,28 168, 169
20,21,27 172-175
4,20,28 176-180
23,28 181-187,190-193, 196, 197
19,23 188, 189
23,27,28,31 194, 195
20,23,24 198, 199
13,23,40 200, 201
2,6,24 202, 203
13,24 204-209
2,24,28 210-213
6,28 214, 215
6,17,28 216, 217
28 218-220, 223-226
4 221, 222
2,28,30 227-230
2,4,28 231-235
4,29 236, 237, 240-243, 244-246
4,27,28 238, 239, 251-254
31 247-249
28,29,36 250
28,30 255-260
2,29,30 261, 262
4,32 263-271
2,4,6,24 272-275
34,40 276, 277
4,39,40 278-309
2022 兒童權利公約平⾏報告
總協調： 兒童權利公約⺠間監督聯盟
聯絡信箱： service@youthrights.org.tw
參與團體
（依照英⽂名稱字⺟排列）
社團法⼈臺灣兒童權益聯盟 Children’s Right Alliance Taiwan
社團法⼈中華育幼機構 Chinese Children Home and
兒童關懷協會 Shelter Association
財團法⼈台北市基督徒救世會 Christian Salvation Service
社會福利事業基⾦會
兒童權利公約監督聯盟 CRC Watch
財團法⼈台北市基督教 Good Friend Mission
勵友中⼼
台灣關愛之家 Harmony Home Association
財團法⼈⼈本教育⽂教基⾦會 Taiwan Foundation
Humanistic Education
社團法⼈台灣⾝⼼障礙者 Independent living Taiwan
⾃立⽣活聯盟
財團法⼈靖娟兒童安全 Jing Chuan Child Safety
Foundation
⽂教基⾦會
財團法⼈⺠間司法改⾰基⾦會 Judicial Reform Foundation
財團法⼈良顯堂社會福利基⾦會 Liang-shean Tang
Social Welfare Foundation
台灣媒體觀察教育基⾦會 Media Watch Taiwan
社團法⼈台灣⾚⼦⼼ Naivety ADHD Federation
過動症協會總會
Association
社團法⼈台北市智障者 Parents Association for Persons
with Intellectual Disability Taipei
家長協會
City
台灣親⼦共學教育促進會 Parent Participating Education
中華⺠國智障者家長總會 Taiwan for Persons
Parents Association
with Intellectual Disability Taiwan
社團法⼈中華⺠國視障者 Parents Association for the
家長協會 Visually Impairs Taiwan
台灣基督長老教會 Presbyterian Church in Taiwan,
原住⺠宣教委員會 Indigenous Mission Committee
監所關注⼩組 Prison Watch
社團法⼈台北市基督教教會聯合 Taipei Christian Church
會乘風少年學園 Association Cheng Feng
台灣⼈權促進會 Teenager's
Taiwan Schoolfor
Association
Human Rights
社團法⼈台灣廢除死刑 Taiwan Alliance to End the
推動聯盟 Death Penalty
部落互助托育⾏動聯盟（社團法 Taiwan Community Mutual-Care
⼈台灣社區互助照顧⾏動協會） Action Association
社團法⼈台灣性別平等 Taiwan Gender Equity Education
教育協會 Association
中華⺠國社區重聽福利協會 Taiwan Hard of hearing
台灣原住⺠同志聯盟 Association
Taiwan Indigenous LBGTQ Alliance
台灣勞⼯陣線協會 Taiwan Labor Front
⼩⺠参政歐巴桑聯盟 Taiwan Obasang Political Equality
台灣同志諮詢熱線協會 Party
Taiwan Tongzhi(LGBT+) Hotline
Association
臺灣青年⺠主協會 Taiwan Youth Association for
財團法⼈張老師基⾦會 TeacherDemocracy
Chang Foundation
青少年表演藝術聯盟 Teenager Preforming Arts League
財團法⼈勵馨社會福利事業基⾦ The Garden of Hope Foundation
會
全國教師⼯會總聯合會 The National Federation of
Teachers Unions
宜蘭縣得安家庭關懷協會 Yilan De-An Family Association
社團法⼈台灣少年 Youth Rights Alliance Taiwan
權益與福利促進聯盟
編輯團隊
總編輯
兒童權利公約⺠間監督聯盟 林⽉琴 (02)2369-5195
主編
兒童權利公約⺠間監督聯盟 何佳怜 (02)2926-6177
責任編輯團隊（依英⽂筆畫順序）
社團法⼈臺灣兒童權益聯盟
財團法⼈靖娟兒童安全⽂教基⾦會
社團法⼈台北市基督教教會聯合會乘風少年學園
財團法⼈勵馨社會福利事業基⾦會
社團法⼈台灣少年權益與福利促進聯盟
執⾏編輯（依英⽂筆畫順序）
詹景喻 Chan, Ching Yu
陳志遠 Chen, Chih-Yuan
陳惠敏 Chen, Hui-Min
陳旺德 Chen, Wang-De
韓宜臻 Hang, Yi Chen
何佳怜 Ho, Chia-Ling
何蔚慈 Ho, Wei Tzu
洪雅莉 Hung, Ya LI
林慧華 Lin, Hui Hua
劉志洋 Liu, Chih Yang
王泓亮 Wang, Hong Liang
吳佳燕 Wu, Jia Yan
永遠的夥伴與兒少權益⼯作者 - 吳政哲 Wu, Cheng-Che (1985-2021)
因為你為兒少權益的貢獻，讓我們的報告有⼀個強健的基礎。
編輯的話
兒童權利公約⺠間監督聯盟(CRC WATCH)是由台灣數個第⼀
線兒少服務機構、⼈權團體、教師與青少年⼯作者等夥伴組成。在
2017年聯盟就已集結45個⺠間團體，完成台灣⾸輪CRC國家審查之
平⾏報告。
本份報告有兩個核⼼的⽬標。⾸先是協助國際審查委員獲得⼀
份「清楚且完整」回應國家報告之NGO平⾏報告。另⼀個重要⽬標
則是呈現實務⼯作者對於台灣CRC落實之觀察及建⾔，試圖從兒童
為權利主體的視⾓檢視，包含「法規不⾜之處」、「政策執⾏成效
不彰」與「⺠間團體在兒童服務時所遭遇的困境」。檢視台灣2022
年CRC國家報告過程中，令我們擔憂的，多是法條、政策與⽅案的
描述，少⾒國家在公約維護上的成效與影響。
本報告以實務⼯作為基底，內容皆是第⼀線⼯作者的經驗與個
案觀察。在將近半年多的撰寫過程，我們透過章節分組的⽅式，由
執⾏編輯彙整各組專業團體之⽂字，或是由秘書處以訪談的⽅式收
整意⾒。透過多次讀書會的辦理與編輯會議，⼀⽅⾯促進參與團體
彼此交流培⼒，另⼀⽅⾯確認⽂字內容與⽅向。
我們感謝所有參與夥伴在繁忙的服務⼯作中對於報告提供最實
際的經驗⽂字，特別是責任編輯細⼼的協調與修整。本報告英⽂版
的產出更感謝許多NGO團體的捐獻。
台灣是移⺠與多元⽂化交集的海島國家，我們期待藉由更多⼈
權的語⾔對話，刺激台灣⼈對於傳統習慣的反思，促進多元⽂化與
族群的發展，讓兒童作為⼈的尊嚴，不因年齡⼩⽽有任何減損。
兒童權利公約⺠間監督聯盟
2022年2⽉
兒童權利公約監督聯盟第⼆次平⾏報告
⽬錄
第⼀章 ⼀般執⾏措施 --------------------------------1
兒少權利影響評估 ................................................................................................1
保留及聲明 ............................................................................................................1
CRC國內司法落實 ................................................................................................1
國家⾏動計畫........................................................................................................2
兒少政策協調機制 ................................................................................................2
申訴機制 ...............................................................................................................2
校園⾝⼼暴⼒申訴機制 ........................................................................................3
資源分配 ...............................................................................................................4
數據統計收集........................................................................................................4
CRC訓練 ...............................................................................................................6
第⼆章 兒少定義 -----------------------------------8
⼗八歲公⺠權........................................................................................................8
第三章 ⼀般性原則 ----------------------------------9
禁⽌歧視法規........................................................................................................9
校園性平 ...............................................................................................................9
教科書之多元性別內容 ........................................................................................10
學校歧視特教⽣ ...................................................................................................11
兒少最佳利益落實機制 ........................................................................................12
司法程序中兒少最佳利益 ....................................................................................12
受監禁或死刑判決之受刑⼈未成年兒女 .............................................................13
《少事法》 ...........................................................................................................14
兒少溺⽔事故傷害 ...............................................................................................15
跌墜事故傷害 .......................................................................................................16
兒少事故傷害防制機制 ........................................................................................17
死因回溯分析機制 ...............................................................................................18
兒童交通安全 .......................................................................................................21
交通安全教育 .......................................................................................................21
學童通學環境 ......................................................................................................22
交通規範及執法 ...................................................................................................24
數據蒐集 ..............................................................................................................25
政府未能有效預防兒少⾃殺 ................................................................................26
兒少⼼理諮商法規 ...............................................................................................27
兒少⾼⾃殺⾃傷率 ...............................................................................................28
替代性照顧兒少表意 ...........................................................................................29
安置申訴機制 ......................................................................................................29
兒少表意友善環境 ...............................................................................................30
地⽅兒少代表 ......................................................................................................30
第四章 公⺠權與⾃由 -------------------------------33
宗教團體入校 ......................................................................................................33
無國籍兒童 ..........................................................................................................34
香港政治難⺠ ......................................................................................................35
未成年集會結社 ...................................................................................................36
校園中隱私權.......................................................................................................37
第五章 保護兒少免受暴⼒侵害 ------------------------39
⽬睹家暴兒少 ......................................................................................................39
家長懲戒權 ..........................................................................................................40
政府之兒少校園體罰問卷 ....................................................................................41
校園中對兒童⾝⼼暴⼒ .......................................................................................42
學前不當管教 ......................................................................................................43
校內體育訓練對兒少之暴⼒ ................................................................................44
兒少遭性暴⼒之事件調查機制 ............................................................................45
安置機構不當對待兒少 .......................................................................................46
師對⽣之精神暴⼒ ...............................................................................................46
校園霸凌防制政策與LGBT學⽣ ..........................................................................47
視障兒少於校園受霸凌 .......................................................................................49
第六章 家庭環境與替代性照顧 ------------------------50
移⼯⼦女⾝分權 ...................................................................................................50
親職教育假 ...........................................................................................................51
準公共化幼兒園 ...................................................................................................51
不分國籍兒童之健康權與安置 ............................................................................52
親屬安置法規 ......................................................................................................53
安置機構權威化教養 ...........................................................................................54
安置機構的查核、評鑑制度 ................................................................................55
私立安置機構安置費及專業⼈⼒ ........................................................................56
臨界特殊需求兒少 ...............................................................................................57
安置轉換率 ..........................................................................................................58
特殊需求兒少受教權 ...........................................................................................59
安置後⾃立服務 ...................................................................................................60
特殊需求兒少收養家庭的福利⽀持 .....................................................................61
政府監看國內與跨國收出養 ................................................................................62
第七章 ⾝⼼障礙、基本健康與福利 ---------------------63
COVID-19疫情下的替代性照顧 .........................................................................63
補助與協助 ..........................................................................................................63
補助請領審核機制 ...............................................................................................63
政策及配套措施 ...................................................................................................64
特教⽣鑑定制度 ...................................................................................................64
特殊⽣之⼼評⼈員 ...............................................................................................65
視障兒少之特殊教育⽀持....................................................................................65
融合教育特教⽣ ...................................................................................................65
⾝⼼障礙兒少跨區就學 .......................................................................................66
不當對待特教⽣ ...................................................................................................66
特殊教材轉譯經費 ...............................................................................................67
⾝⼼障礙兒少學前受教權 ....................................................................................67
⾝⼼障礙兒少⽂化參與權....................................................................................68
視障幼兒學齡前融合教育....................................................................................68
長期安置住宿型機構之特殊兒少 ........................................................................69
司法⾏政程序中⾝⼼障礙兒少知情表意權 .........................................................69
參與體育活動的性別落差 ....................................................................................70
兒少⼼理諮商權 ...................................................................................................71
LGBTs兒少預防性⼼理⽀持資源 ........................................................................72
性教育課程與LGBT兒少性健康權 ......................................................................72
兒少受教權（性教育） .......................................................................................73
兒少性主體性與性⾃主權 ....................................................................................74
未成年懷孕女孩受教權與年輕家長之⼦女⽣存權 ..............................................74
氣候變遷 ..............................................................................................................75
第八章 教育休閒與⽂化活動 --------------------------77
過⾼的⾼中⽣師比 ...............................................................................................77
疫情期⾝⼼障礙⽣的受教權 ................................................................................77
青少女懷孕及墮胎 ...............................................................................................78
公私立學校就學負擔 ...........................................................................................78
⾼幼兒園⽣師比 ...................................................................................................79
中輟兒少 ..............................................................................................................80
中離⽣服務系統 ...................................................................................................81
校規服儀規定 ......................................................................................................82
矯正學校申訴機制 ...............................................................................................82
軍訓教官與替代⼈⼒ ...........................................................................................83
學⽣在校時間 ......................................................................................................84
藝術教育之低青年滿意度....................................................................................85
青少年藝術教育 ...................................................................................................85
兒童遊戲場安全管理 ...........................................................................................86
非都市區域的兒少(含⾝⼼障礙兒少)休閒資源 ...................................................87
僑⽣專班 ..............................................................................................................87
教育職業之訊息傳播 ...........................................................................................88
風箏計畫 ..............................................................................................................88
第九章 特別保護 ----------------------------------89
共創部落式幼兒園 ...............................................................................................89
原⺠幼兒補助 ......................................................................................................90
共創式部落幼兒園教材經費 ................................................................................90
共創式部落幼兒園師資 .......................................................................................90
少數族群教育之斷層與⽂化歧視.........................................................................91
未滿15歲童⼯數據與權益....................................................................................92
未成年勞動權益與職業安全 ................................................................................93
青少年藥物濫⽤ ...................................................................................................95
受性剝削及性虐待兒少 .......................................................................................96
收容少年之研究 ...................................................................................................96
觸法之兒少 ..........................................................................................................97
校園內輔導資源 ...................................................................................................97
司法案件兒少隱私權 ...........................................................................................98
轉向措施專業⼈⼒來源與⽀持培⼒系統 .............................................................98
少輔院改制 ..........................................................................................................99
少年矯正機關收容處遇實施條例草案 ................................................................100
少觀所鑑別流程 ..................................................................................................100
轉銜及復學機制 ..................................................................................................101
司法少年就業準備與轉銜服務 ...........................................................................102
觸法之兒少/被剝奪⾃由之兒少（包含任何⽅式的居留、監禁或羈押） .........103
少年司法專業⼯作⼈員培訓 ...............................................................................104
簡稱對照表
國家報告 台灣政府第⼆次兒童權利公約審查之
國家報告
CRC 聯合國兒童權利公約
兒少 兒童與少年
性平法 性別平等教育法
兒少法 兒童及少年福利權益保障法
兒少性剝削條例 兒童及少年性剝削防制條例
教保服務 幼兒教育及照顧服務
國⼩ 國⺠⼩學
國中 國⺠中學
108課綱 ⼗⼆年國⺠基本教育課程綱要
⾼中 ⾼級中等學校
COVID-19 嚴重特殊傳染性肺炎
少事法 少年事件處理法
少觀所 少年觀護所
少輔會 少年輔導委員會
社安網 強化社會安全網
兒少安置機構 兒少安置及教養機構
教保中⼼ 部落（地區）互助式教保中⼼
幼教法 幼稚教育法
幼照法 幼兒教育及照顧法
LGBT 多元性別者、同志
特教⽣ 特殊教育學⽣
安置盟 社團法⼈台灣全國兒少安置機構聯盟
⼼評⼈員 ⼼理評鑑⼈員
熱線 台灣同志諮詢熱線協會
第⼀章 ⼀般執⾏措施
回應結論性意⾒第8點/國家報告第6點
兒少權利影響評估
1. 政府設定2021年開始試辦兒少權利影響評估，但未⾒該評估CRC/GC/No.5/
para.45、47與立法部⾨之連動。相關辦法對於兒少參與與意⾒的納入機制仍
未提出有意義參與的規劃。1
2. 相關評估資訊也未有公開的管道能提供兒少、公眾與⺠間單位瞭解。
回應結論性意⾒第10點/國家報告第4點
保留及聲明
3. 對於《Optional Protocol to the Convention on the Rights of the Child
on the sale of children, child prostitution and child pornography》，除涉及
跨部會的專責，尤以網路兒少性剝削等新樣態之興起，我們建議政府應積極加
入此任擇議定書，藉此與公約連結，⽅能適時參考聯合國提供之法律修正與基
本指引，如任擇議定書所⾔：「採⾏整體性之⽅法來消除造成買賣兒童、兒童
賣淫及兒童⾊情之因素」。
回應國家報告第7點
CRC國內司法落實
4. 依CRC/GC/No.5/para. 20，兒童權利是否真正得到實現，以及是否可在法
庭上直接援引(the provisions of the Convention can be directly invoked
1 政府部⾨兒少參與的問題，請參本報告第三章兒童表意權之點次。
1
before the courts and applied by national authorities)，為司法落實之檢驗
必要標準，然此⼀核⼼精神之檢驗未⾒於國家報告之中。
回應結論性意⾒11點/國家報告第17點
國家⾏動計畫
5. 根據CRC/GC/No.5/para. 29，全⾯性國家⾏動計畫磋商過程，在落實有意
義的兒童與少年參與之磋商⽅⾯，仍未有明確之制度以檢視其有效性。
6. 根據CRC/GC/No.5/para. 33，未⾒該計畫對於兒童與公眾之宣導、友善資
訊製作與資訊公開揭露等作為，也未⾒該計畫之監督與國會報告機制。
回應結論性意⾒13點/國家報告第20點
兒少政策協調機制
7. ⽬前立法院在立法程序中，兒少議題僅靠立法院法制局進⾏法規研究，或個
別委員針對法案進⾏公聽會、邀請兒少諮詢等。國家報告所回應之相關規劃皆
非常態性的機制，也⽋缺實際執⾏成效。與CRC/GC/No.5/para.45之立法影
響評估之期待相距甚遠。
回應結論性意⾒第16、17、81、82點/國家報告第27-31、129點
申訴機制
8. 回應國家報告第29點，雖諸多法規皆肯認學⽣申訴之正當性，但⽬前實務處
理上學⽣申訴比例偏低，與官⽅調查數據落差⼤。
2
9. 以雲林縣淵明國中體罰案件為例，經主管機關問卷2調查，近半數曾經受
「打⼿⼼、打屁股、打耳光」之不當管教，申訴機制卻要求學⽣須「具名檢
舉」，3使其擔憂個資外流恐遭涉案學校及教師秋後算賬，承擔偌⼤⼼理壓⼒。
10. 我們建議：
(1) 教育部為教育事業主管機關，應重新檢視現⾏學⽣申訴機制的友善性，並
針對確保學⽣申訴過程的「⼈⾝安全」及「⾝分隱私保護」研議⽅法，包
含「匿名申訴」機制與建置「吹哨者保護」機制。
(2) 應儘速依教師法對違法事實明確之涉案教師做出懲戒，以守護校園安全。
校園⾝⼼暴⼒申訴機制
11. 教職員對兒少⾝⼼暴⼒事件主要處理程並非使⽤學⽣申訴機制，⽽是校事會
議、專審會、考核會。在此制度設計下，受害兒少不具當事⼈地位、4無法獲取
完整調查報告。5⼜惟於該委員會認為「有必要」時，才請兒少到場發⾔。且對
各該委員會之決議，兒少無法聲明不服，也無救濟管道。6
2 約三分之⼀曾受特定動作之處罰、約三分之⼀曾因成績未達標受罰（⼀分⼀下），整體問卷分析結論為
多數學⽣雖未直接受體罰，但都聽過老師會體罰。此問卷由雲林縣政府提供⾄地⽅議會之資料，尚未公開
於社會⼤眾。（2022.03.10)
3 「教育部潘⽂忠部長也坦承，從⽬前的資料來看，該校的管教措施確實有不妥之處，教育部會成立專案
⼩組處理，也會要求雲林縣府依法⾏政。蘇貞昌院長也提到，要求學⽣需要具名檢舉才能啟動程序確實不
合理，教育部應該要妥善處置」。資料來源：王婉諭立法委員臉書： https://www.facebook.com/
wanyu.claire/photos/a.102159017918319/310400640427488/?type=3。
4兒少在校內受教職員暴⼒對待之事件，⼤多由教師法、⾼級中等以下學校教師解聘不續聘停聘或資遣辦
法處理，處理過程被認為是校⽅考核教職員的程序，事件的兩造是校⽅及涉案教職員，兒少在程序中之地
位未受保障。
5絕⼤多數兒童在校遭受教職員⾝⼼暴⼒對待之事件，校⽅或政府會拒絕提供完整調查報告。另⾏提供的
「處理結果」資訊不⾜以使受害兒少了解調查⽅法、調查過程，採認事實的理由。且⼤部分的個案中，主
管機關或學校甚⾄不會向受害者說明對施暴者具體紀律措施為何，僅表⽰「將依法辦理」。
6兒少為受害者在性平法程序正好相反，獲得相對完整的當事⼈地位及保障。同時，兒童遭受⾝⼼暴⼒的
處理程序被分割成很多樣態，相關程序的啟動⽅式、權利保障程度也有極⼤的差異，也增加兒童理解相關
救濟程序的難度。
3
12. 我們建議：應立法賦予校園中受暴⼒對待案件中之兒少及其家長「當事⼈
地位」，包含：
(1) 於責任機關做成決定前，有權閱覽完整調查報告。
(2) 有權對調查報告提出質疑。
(3) 可對各該委員會做成的決定聲明不服之機制，向上級機關或法院要求啟動
救濟程序。
回應結論性意⾒第18點/國家報告第21、22點
資源分配
13. 政府兒少預算中75%使⽤於教育領域，對於發展、福利、健康、保護與其
他僅佔總體兒少預算的25%。7依研究分析，8我國因社會與家庭之結構、組成
及形態等改變，家庭⽀持系統與因應能⼒更為脆弱。政府應提供更有效之家庭
⽀持或補充性照顧服務，預防並協助解決家庭問題，完善家庭⽀持網絡。
回應結論性意⾒第20點/國家報告23點
數據統計收集
14. 國家報告23點與CRC/GC/No.5/para.48 要求相距甚遠，令⼈遺憾。⽬前
僅⾒各⾏政部⾨⾃⾏收集的數據，再將原始檔案連結放⾄國家報告所稱之「兒
7 國家報告附件1-2
8 陳如慧。近年我國兒少預算配置與執⾏成效之探討(109年8⽉，編號：109115)。https://
www.ly.gov.tw/Pages/List.aspx?nodeid=43912。
4
少統計專區」。整體缺乏有意義的資料，9加上分析重整10、數據來源的片⾯
性，難以呈現兒少權益現狀之真實樣貌。
15. 現有機制完全未如結論性意⾒之建議：確保對所收集的數據進⾏評價，並
⽤於評估落實⼯作進展情況，確認問題，並讓兒童瞭解所有政策發展情況。
(not merely to establish e ective systems for data collection, but to
ensure that the data collected are evaluated and used to assess progress
in implementation, to identify problems and to inform all policy
development for children).
16. 國家報告之「兒少數據統計專區」統計指標皆為單⼀個別檔案。其年齡
別、地區及族群等分類在蒐集數據時並無完全統⼀，因此不同檔案之數據資料
難以對照，無法瞭解數據間的關聯性。
17. 兒少統計專區置於CRC資訊網中，然該網站之兒童版網⾴卻未包含兒少統
計專區，忽略兒少之瞭解⾃⾝族群現況、使⽤統計數據需求與權利。
18. 許多政策皆未有完整的數據資訊基礎就已制定，請參⾒第26，41，51，
60，115，118，121，123，139，206點次。
19. 我們建議：
(1) 數據資料庫應以CRC條⽂為主軸，配合統計指標內容，並統⼀統計指標內
各項類別標準，形成互動式指標查詢系統，使數據可以進⾏交叉比對，發
揮效益，查詢上更為便利。
9 如國家報告附件1-6：政府機關所轄公私部⾨兒少事務相關⼈員受CRC訓練參與狀況，單以訓練⼈次無
法呈現是類⼈員接受訓練的狀況及比例。⼜如附件9-25中協助離開少年矯正機關之少年就業服務執⾏情
形，若無法呈現服務覆蓋概率，則無從得知服務推動的程度以及政策被運⽤的狀況。
10 ⽬前國家報告中兒少統計專區分為5⼤類別，已有218筆統計指標，蒐尋資料只能逐⼀搜索檔案，未來
統計指標增加、檔案數量龐⼤時將造成查詢困難。請參⾒ https://crc.sfaa.gov.tw/Statistics/Intro。
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(2) 建立兒少統計專區兒童版，以視覺化的⽅式呈現數據及敘明意義，讓兒少
更容易使⽤統計資料。
回應結論性意⾒第21、22點/國家報告32-34點
CRC訓練
20. 政府對於針對相關⼈員實施CRC訓練之品質與成效，仍未正⾯回應，⽬前
僅做服務量之呈現，無從得知相關訓練是否達成效果，且CRC訓練不應以滿意
度問卷為主要施測⼯具。11
21. 接受CRC宣傳的對象，不應僅⽌於兒少保護領域司法⼯作⼈員，⽽是在事
件有兒少相關⼈時，司法⼯作⼈員均應具有基本觀念，並有兒少權益保護之敏
感度，尤其是對於相關適⽤法律之認識之加強，否則就會發⽣5歲孩童遭地⽅
警員實施酒測之事件。12
22. 主管機關雖已有發展本⼟化語⾔如台語、客語，外國語⾔如英語、東南亞
語⾔等CRC宣傳媒材，但⽬前仍未⾒官⽅針對台灣本⼟原住⺠族語⾔發展之
CRC宣傳媒材。13
23. 承上點，且包括環保署、衛福部、教育部、內政部及法務部所宣傳的對象
有：校園、公務⼈員、家長親職、宗教組織、職業組織、社會團體、⼯商⾃由
職業團體等，應從兒少成長環境中的「利害關係⼈」（主要提供照顧之長輩如
祖⽗⺟）進⾏教育與宣傳，⽅能保障並有效推動兒少權益。
11 如國家報告附件1-8中矯正⼈員的訓練內容。
12 5歲兒童騎腳踏⾞撞特斯拉汽⾞，遭警⽅施以酒測之事件。https://www.cna.com.tw/news/
rstnews/202004040073.aspx。
13 參⾒第國家報告附件1-6。
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24. 我們建議：
(1) 政府發展相關評估機制，以了解對兒少的利害關係⼈導入CRC訓練後帶來
的影響，俾能進⼀步分析CRC的推動困境與落差。
(2) 針對國內流通之語⾔皆須製作相關之宣導媒材。
(3) 與兒少密切互動之⼈須加強其兒少權利意識之教育與宣傳，尤其針對最年
幼或是權利較容易受壓迫或受歧視之兒少。
7
第⼆章 兒少定義
回應結論性意⾒第25、26點/國家報告42-47點
⼗八歲公⺠權
25. 台灣2017年公⺠投票法之投票資格，與2021年⺠法成年年齡，皆下修⾄⼗
八歲。然公職⼈員選舉中之選舉與被選舉最低年齡為憲法法規所規範，長久以
來因台灣過⾼的修憲⾨檻無法修正，導致選舉與被選舉最低年齡為⼆⼗歲之畸
形、與現代⺠主⾃由化國家規定相距甚遠之景。
26. 台灣⼗八歲青年能參與公投投票決定國家⼤事，其⺠事⾏為受法律肯認，
卻因朝野國會代表協商不能，啟動修憲延宕多年，剝奪⼗八歲青年公⺠之公眾
事務參與權。即便修憲草案達成朝野共識，14未來還需⾯臨公投複決，意即須
⾼達965萬票超過⼀半有權投票之公⺠贊成，始能還權於青年。
14 立法院於2022.03.35將18歲公⺠權「中華⺠國憲法增修條⽂增訂第⼀條之⼀條⽂」議案三讀通過。
https://news.ltn.com.tw/news/politics/breakingnews/3871533。
8
第三章 ⼀般性原則
回應結論性意⾒27-28點/國家報告48-59點
禁⽌歧視法規
27. 禁⽌歧視之相關法規缺乏落實成效，亦缺乏針對執⾏阻⼒之因應⽅案。對
於少數群體或特殊議題之兒少所受之歧視困境，整體數據的調查無法更呈現。
國家報告第53點僅臚列國家所採取之措施，無從得知具體執⾏情形，亦無成效
評估。
校園性平
28. 我國法規規範教師應充實性別平等意識並落實於教育活動，15然⽽中⼩學相
關科⽬16的教師性別意識參差不⿑，缺乏多元性別認知，17發表恐同⾔論、甚⾄
放任歧視發⽣，無益於處理校園性霸凌案件。18
15 《性別平等教育法》第15、19條。
16 如健康與體育、綜合活動、公⺠與社會、健康與護理、⽣命教育及⽣涯規劃等。
17 38.81%的學⽣及32.35%的教師認為「教師缺乏性別平等意識」，⽽這正是實施性教育與情感教育的困
境之⼀。參⾒郭麗安、陳宇平、王⼤維、劉安真、張歆祐（2017）。青少年性教育與情感教育內涵之探
究：教師、學⽣與家長觀點之比較〉。學⽣事務與輔導，56：2，28-49。
18 勵馨基⾦會之調查與服務經驗發現，部分多元性別受暴者的創傷來⾃校園階段的性霸凌，師長由於本⾝
的性平意識不⾜，無法即時處理性霸凌事件。此外熱線《2020台灣同志（LGBTQ+）學⽣校園經驗調
查》也指出68.5%的學⽣聽過教師、教職員或教官發表恐同⾔論，74%的學⽣指出曾聽過學校教職員發
表對性別氣質表現的負⾯⾔論，約40%的教職員放任恐同歧視發⽣、不介入處理。
9
29. 在⺠間團體熱線的調查19中，恐同⾔論在校園中普遍出現，不只來⾃學⽣，
也來⾃教師及職員，20且超過四分之⼀的填答者提到在學校受歧視的經驗。21
30. 我們建議：
(1) 教育部應檢視教師接受性平教育之政策，強化師長性別教育知能，且落實
在融入式教學。
(2) 加強提升教師、教官、職員、校長及⼀級主管之性平意識，相關教育訓練
內容應明確包含同志與跨性別議題。
(3) 教育主關機關應盤點現⾏校園規範，違反性平法之處應限期改善。
回應結論性意⾒第27點
教科書之多元性別內容
31. 教育主管機關於《國⺠中⼩學九年⼀貫課程綱要》將性平教育議題列於領
域課程實施，但2017年部分家長團體以審視教科書之名，施壓教育部及教科書
出版社，要求刪去綜合課本中教導學⽣「多元性別」、「性別光譜」22等性平
教育內容，導致部分出版社刪除爭議處。
32. 台灣現⾏《108課綱-健康與體育領域》已規定國中⼩各階段性教育之學習
19 熱線的《2020台灣同志（LGBTQ+）學⽣校園經驗調查》，調查了2019/09⾄2020/07曾就讀國⾼中
職的LGBT學⽣，最終搜集到1,226份有效問卷。
20 41.9%的填答者表⽰常常或經常在學校內聽到gay這個字被⽤來表⽰負⾯的意思。87.2%的填答者表
⽰，聽到gay這個字被⽤來表⽰負⾯的意思，讓他們感到困擾或不愉快。40.6%填答者表⽰，當這些⾔論
出現時，即時有教職員在場，他們也從來不曾⼲預。並有68.5%的填答者指出曾經從他們的老師或其他學
校教職員那聽過恐同⾔論 。
21 無法根據⾃⼰的性別認同穿著特定服裝等。
22 為孩⼦教育把關！揪出國中⼩教材爭議點 家長團體4年來堅持不懈https://fongnews.net/breaknews/
35556/?fbclid=IwAR39y--FP88Ns9wgSOLsTnE6a91tbe1r2Zl0Yj9FPoggPzhRUF89_in7HEk。
10
內容23應包含「不同性傾向的基本概念及尊重態度」。但就台灣教科書市場最
⼤佔有率的三家廠商，24除康軒在⼀年級上學期健體課本12-13⾴探討性傾向的
困擾外，其餘兩家國中課本出版商仍未提及性傾向相關內容。
33. 我們建議：
(1) 請教科書廠商落實《性平法》、各領域《108課綱》及附錄⼆議題融入課
程之相關規定，發展多元性別、性傾向等相關教材
(2) 國家教育研究院應落實教科書專業審查，避免審查⼈員之意識形態影響，
回歸以教育部頒定之「⼗⼆年國⺠基本教育課程綱要」為審查依據。
(3) 教育主管機關應提升審查單位之性別平等意識，並辦理相關增能進修。
回應結論性意⾒第27、28點/國家報告第29、193、194、197點
學校歧視特教⽣
34. 學校拒絕為特教⽣入學提供合理調整，甚⾄利⽤同儕壓⼒排擠特教⽣，⼜
貶低特教⽣學習成就、或藉⼝學校資源不⾜，致使家長⾃⼰轉學事件，皆於⺠
間團體接觸個案中⼀再發⽣。
35. 特教法規因尚未納入合理調整原則，對特教⽣的救濟產⽣實質阻礙。⼜法
未明定禁⽌歧視，且歧視亦無法規定義，導致特教⽣申訴程序處理範圍未明確
包含歧視事件之處理。特教⽣⾯臨無障礙設施不⾜、瑕疵、禁⽌使⽤等狀況，
沒有具體申訴、可問責之程序。
36. 教育部〈特殊教育學⽣申訴服務辦法〉未針對特教⽣及其家長規劃適度的
23 「⼗⼆年國⺠基本教育課程綱要—健康與體育領域」規定第三學習階段（國⼩5-6年級）性教育學習內
容為：「Db-III-2 不同性傾向的基本概念與性別刻板印象的影響與因應⽅式。」第四學習階段（國中7-9
年級）性教育學習內容為：「Db-IV-3 多元的性別特質、⾓⾊與不同性傾向的尊重態度。」
24 台灣國中⼩教科書市場佔有率最多分別為康軒、南⼀、翰林三家廠商，總佔有率達9成以上。
11
告知或系統性的宣導，導致特教⽣相關⼈無從取得救濟管道。
37. 我們建議：
(1) 盡速將包含無障礙設施不⾜之申訴、合理調整請求程序、禁⽌歧視之條款
明⽂納入特教規範，確保程序正義及可問責性。
(2) 對教師及兒童進⾏適⾜之CRPD兒少權之教育。
回應結論性意⾒第29點/國家報告第62、63點
兒少最佳利益落實機制
38. 國家報告未回應立法部⾨對於兒少最佳利益之落實機制，實務上現⾏立法
院公聽會、立法院所屬法制局研究，仍未制度化的確保「結論性意⾒」與
「GC14/para 31.回應《結論性意⾒》32 (3,4)」之要求。25
回應結論性意⾒第29點/公約第3條第1項
司法程序中兒少最佳利益
39. 進入司法程序之兒少，應以其最佳利益為考量，然⽬前僅有散落的法規規
範。26相關第⼀線⼯作者實踐有諸多缺漏外，亦無專業操作之建議。27《釋字
805號》28更以兒少最佳利益為名，強調案件中未成年雙⽅當事⼈未經細膩專
業過程，應直接跳入和解程序。
25 《國家報告》(6)為⾏政程序，非立法部⾨之機制。
26 ⽬前我國相關法令中包括《少年事件處理法》第1條、《少年法院與相關⾏政機關處理少年事件聯繫辦
法》第5條及第46條、《少年偏差⾏為預防及輔導辦法》第6條等等，都觸及在司法程序中，應以兒童最
佳利益來連結各種可能資源，
27 表意主體、落實⽅法、何時可參與等。
28 司法院⼤法官釋字第805號 https://law.moj.gov.tw/News/NewsDetail.aspx?msgid=164077 。
12
40. 苗栗地院法官周靜妮這類當庭要求觸法少年⾃摑掌事件發⽣，29是將司法
官個⼈議題置於保障兒少最佳利益原則之上。
41. 我們建議：
(1) 兒少案件處裡過程之相關⼈均應定期接受基本公約教育，進⽽了解所有未
成年兒少當事⼈皆為受害者之基本概念。
(2) 政府應繪製「兒少司法程序流程圖」（相關援⽤法令），標⽰兒童最佳利
益應特別注意的階段，並提供「如何實際操作的指引⼿冊」。
回應結論性意⾒第29點
受監禁或死刑判決之受刑⼈未成年兒女
42. 我國兒少之家長遭起訴、被判處死刑等司法程序規範中，政府對於被告之
未成年⼦女之相關權益，無任何評估措施或配套機制，亦無提供任何必要之⼼
理和其他⽀持。對於此類兒少無確切之數據掌握，遑論精準之兒少⼈數、樣
態、分佈等重要資訊收集。這些兒少成為國家執⾏死刑下的「隱形被害⼈」。
43. 2020年死刑定讞之沈⽂賓、2018年遭法務部槍決的李宏基，皆育有未成年
⼦女，然法院於兩案判決書中皆載明：「裁量死刑無須考量這些兒少的最佳利
益。」法務部更對李宏基執⾏死刑時宣稱：「此死刑之執⾏符合《公⺠與政治
權利國際公約》及《兒童權利公約》。」
29 新聞連結: https://www.cna.com.tw/news/asoc/202103220263.aspx。
13
44. 我們建議：30
(1) 應對家長遭檢察官起訴或被法院判處死刑之兒少權益影響，進⾏⾏政、立
法、司法和政策全⾯評估。
(2) 法院在裁量兒少之家長死刑時，應肯認兒少的存在，並評估他們的最佳利
益。
(3) 檢察官則應避免求處死刑，並考量此些兒童之最佳利益。
(4) 政府更應為家長被判死刑的兒童提供⼼理和其他必要⽀持資源。
《少事法》
45. 《少事法》於2019年修法後將少年主體錯置為客體對象，31實務上多聽從
司法和警政體系⼈員的看法，⽽在觸法前即與該兒少有互動、或後追、安置的
社⼯等意⾒，卻在鑑別程序和處遇決定中不受重視。且不同的縣市也有各⾃慣
常的合作系統和運作模式。
46. 在2021年疫情三級警戒期間，監所全⾯封閉對外接觸，並改採「通訊⼼理
諮商」，然卻與衛福部頒訂的《⼼理師執⾏通訊⼼理諮商業務核准作業參考原
則》 第四點第三項：「未滿18歲不得進⾏通訊⼼理諮商」規定抵觸，導致矯正
學校兒少求助無⾨。
30 See Committee on the Rights of the Child, Concluding Observations on the Second Periodic
Report of Kuwait, U.N. Doc. CRC/C/KWT/CO/2(29 October 2013), para. 31-32; Committee on the
Rights of the Child, Concluding Observations on the Second Periodic Report of the United Arab
Emirates, U.N. Doc. CRC/C/ARE/CO/2(30 October 2015), para. 52; Committee on the Rights of
the Child, Concluding Observations: Singapore, U.N. Doc. CRC/C/SGP/CO/4-5(28 June 2019),
para. 34; Committee on the Rights of the Child, Concluding Observations: Qatar, U.N. Doc. CRC/C/
QAT/CO/3-4 (22 June 2017), para. 28; Committee on the Rights of the Child, Concluding
Observations: Bahrain, U.N. Doc. CRC/C/BHR/CO/4-6 (27 February 2019), para. 35.
31 在觸法少年開始與司法交逢開始，從調查、鑑別、處遇決定、執⾏、離開等流程，各有不同的機關／機
構（如警政、少輔會、社福、法院、少年矯正機關、安置機構、⼀般學校、職業單位等）、各種⾓⾊（如
警察、社⼯、⼼理師、輔導老師、少年矯正機關管理員、少年保護官、少年調查官、法官、監護⼈、法定
代理⼈、責付對象等）在不同階段進場參與，法規皆非以觸法少年為主題之脈絡為第⼀考量。
14
47. 我們建議：
(1) 調整《⼼理師執⾏通訊⼼理諮商業務核准作業參考原則》等相關法規，使
矯正機關內外之兒少皆有適宜之通訊諮商權。
(2) 司法院、法務部、衛福部應共同制訂⼯作指引，並載明各訴訟程序之參與
者及其權限，⼜因各處遇模式發展不同，規定進場之時間與參與者等，俾
使第⼀線⼯作者明確且有意義地在實作中發展出流暢專業的司法訴訟程
序。
回應國家報告第65點
兒少溺⽔事故傷害
48. 近五年（2016-2020）因⽔域事故死亡⼈數總計1,667⼈，其中10-14歲兒
童於⽔域事故中死亡的比率達24.03%，⽽5-9歲兒童甚⾄⾼達24.79%，遠⾼
於成⼈。32然我國「兒童及少年安全實施⽅案」33⾃2007年頒定⾄今，逾六年
來未曾依執⾏績效滾動修正，此期間溺⽔案件仍持續發⽣⽽未⾒改善，3435顯
⾒當前防制作為並無積極成效，訂定之指標亦無益於防制。36
49. 我們建議：
(1) 應盡速修正「兒童及少年安全實施⽅案」：落實每年滾動調整，修正各項
執⾏績效指標的訂定，始能回應事故傷害現況；其中「⽔域安全績效指
32 國家報告附件3-5。
33 https://www.sfaa.gov.tw/SFAA/Pages/Detail.aspx?nodeid=268&pid=4967。
34 https://news.ltn.com.tw/news/society/breakingnews/3107889、http://www.ibaby.org.tw/
content/21548、https://today.line.me/tw/v2/article/rNWJ0X。
35 https://infogram.com/109and110-1h7j4dvol1en94n。
36 ⽬前「兒童及少年安全實施⽅案」中⽤以評估⽔域安全執⾏績效之指標為：「每年針對直轄市、縣
（市）政府⽔域遊憩活動管理機關、遊客、經營者，辦理2場⽔域遊憩活動安全及法令宣導研習會」及「每
年督導直轄市、縣（市）政府查核游泳池設施設備及救⽣員配置，查核比率達90%以上」，依據衛⽣福
利部彙整各部會2020年1-12⽉之⽅案執⾏績效所⽰：農委會共辦理50場校園宣導，⼈數2,000⼈次，績
效達標；教育部體育署列應查核游泳池業者445家，實際查核445家業者，查核率100%亦達標。
15
標」的訂定應考慮戲⽔罹難兒少及陪同者⽋缺⽔域安全相關知能等特
性，37使防制策略能確實減少溺⽔事故的發⽣。
(2) 應針對各類⽔域遊憩活動進⾏預警、教育及宣導，落實⽔域安全教育。⼜
為避免以⿎勵性質的融入課程，受其他學科排擠教學時間，制定跨部會整
體推動策略，要求每年最低或特定的教學時數，俾能確保安全教育落實於
課綱設計中。
跌墜事故傷害
50. 靖娟基⾦會統計近⼗五（2006-2020）年0-14歲兒童跌倒墜落場域，以居
家墜樓占比最⾼（83.77%），多發⽣於⾃家窗陽台。最常⾒原因是兒少處於獨
處，其次是兒童冒險好奇探索之特性。38我國雖於2013年公布實施《公寓⼤廈
管理條例》第八條修正案，39家有12歲以下兒童「得」設置不妨礙逃⽣且不突
出外牆⾯之防墜設施，然此條款並無強制⼒，實務上有⼤樓管委會拒絕配合⽽
衍伸官司糾紛，兒童⾃住家陽台墜樓之案件仍持續發⽣。40此外，內政部營建
37 從教育部體育署2015-2019年的統計發現，我國學⽣最容易發⽣⽔域事故致死亡的場域為溪河流
（41.46%）及海洋（36.59%），兩類場域合計近八成；在⽔域事故死亡的學⽣中有⾼達六成五是在「戲
⽔」時發⽣事故，⽽當時有「朋友或同學」陪同的比率⾼，約占53.66%，其次為「獨處」（23.17%）及
「家⼈陪同」（19.51%），因此在進⾏⽔域活動時，除了避免獨處外，增進⾃⾝、同儕及家⼈的⽔域安
全知能也相當重要，當事故發⽣時才得以互相提供適當的援助。
38 靖娟兒童安全基⾦會，(2019)。終⽌孩⼦墜樓記者會新聞稿。
臺灣兒科醫學會，(2015)。兒童防墜：臺灣兒科醫學會聲明稿。
39 「公寓⼤廈有⼗⼆歲以下兒童或六⼗五歲以上老⼈之住⼾，外牆開⼝部或陽臺得設置不妨礙逃⽣且不
突出外牆⾯之防墜設施。防墜設施設置後，設置理由消失且不符前項限制者，區分所有權⼈應予改善或回
復原狀。」
40 https://news.ltn.com.tw/news/society/breakingnews/3811566 、 https://news.tvbs.com.tw/
local/1655130 。
16
署雖於2007年修正《建築技術規則》4142規定不得設計⽔平橫條，避免兒少因
踩踏、攀爬⽽墜樓，但各縣市⼯務局卻存在認定差異，⼗多年來持續出現家中
兒童攀爬牆⾯突出物或空洞，導致墜樓事故發⽣。43
51. 我們建議：
(1) 應盡速修正⽬前《建築技術規則建築設計施⼯編》第三⼗八條「不得設有
可供攀爬之⽔平橫條」之⽂字，解決「⽔平橫條」定義模糊，導致各縣市
政府規範不⼀問題。
(2) 應加強宣導及執法，落實《公寓⼤廈管理條例》第八條之規定，全⾯要求
各社區規約將「防墜條款」納入。
回應國家報告第65、68與69點
兒少事故傷害防制機制
52.「事故傷害」長年為我國0-17歲兒少的⾸要死因與傷害主因。44⾏政院發布
《兒童及少年安全實施⽅案》存在跨單位合作困境、⼈⼒經費缺乏、傷害監測
不⾜，以及政策執⾏未能落實、管考制度流於形式等難題，使兒少事故傷害狀
況無法改善。因⽬前依法執⾏之「⽅案」，45⽋缺傷害數據監測項⽬與對應的
41 建築技術規則建築設計施⼯編第三⼗八條：
設置於露臺、陽臺、室外走廊、室外樓梯、平屋頂及室內天井部分等之欄桿扶⼿⾼度，不得⼩於⼀‧⼀○
公尺；⼗層以上者，不得⼩於⼀‧⼆○公尺。
建築物使⽤⽤途為 A-1、A-2、B-2、D-2、D-3、F-3、G-2、H-2 組者，前項欄桿不得設有可供直徑
⼗公分物體穿越之鏤空或可供攀爬之⽔平橫條。
42 建築技術規則建築設計施⼯編第三⼗八條第⼆項建築物使⽤⽤途說明：A-1集會表演、A-2運輸場所、
B-2商場百貨、D-2⽂教設施、D-3國⼩校舍、F-3兒童福利、G-2辦公場所、H-2住宅。
43 https://news.ltn.com.tw/news/society/breakingnews/3767234。
44 衛⽣福利部109年度死因統計結果「事故傷害」死亡⼈數為184⼈，是0-17歲兒少的⾸要死因。另衛⽣
福利部108年度全⺠健康保險醫療統計年報19歲以下兒少因「傷害、中毒與其它外因造成的特定影響」
(Injury, poisoning and certain other consequences of external causes)⽽⾨、住診(包含急診)的⼈數，
總計有1,043,747⼈。
45 《兒少權法》第10條及第28條明定地⽅與中央應邀集相關⼈⼠，協調、研究、審議、諮詢、督導、考
核及辦理兒少相關政策事項。其中包含召開兒少事故傷害防制協調會議，⽽兒少安全實施⽅案亦屬本條所
明定之政策事項。
17
績效考核指標，缺乏實質改善⼿段。46
53. 我們建議：
(1) 應盡速於「兒童及少年安全實施⽅案」中，針對不同類型之傷害，訂定具
體明確之⽬標與防制策略。
(2) ⾏政院應提⾼⽅案主辦機關層級或獨立設置專責單位，以解決當前不受地
⽅政府重視及部會間橫向溝通不順之問題。
(3) 應編列專責經費與⼈⼒，建置國家級事故傷害監測平台，包括：傷害監測
與防制策略、成效指標研擬⼯作等，以落實各項政策推動。
回應國家報告第68點
死因回溯分析機制47
54. 兒少死因回溯分析為試執⾏階段，由中央及地⽅衛⽣主管機關負責協調各
部會與局處分⼯，確立中央與地⽅之職責。48入法⾄今49多數地⽅政府仍未配
合辦理，亦未設計有制度化的執⾏作法，各地推動狀況不⼀（參下表⼀）。此
外，多數國家死亡原因回溯分析多有涵蓋⼗八歲以下之兒少，台灣卻僅規定6
46 ⽅案所涵蓋9⼤安全⾯向總計69項的具體措施，約有⼀半(32項)為教育宣導。且⽬前全國僅2縣市政府
辦理事故傷害防制業務之跨局處協調會議進⾏跨單位合作，難以掌握⽅案執⾏的防制效果。
47 推動兒童死因回顧的理由有⼆：⼀是有相當多兒童死亡是可預防的，根據國外研究，⼤約有五分之⼀到
三分之⼀的兒童死亡事件是可預防的；⼆是現有死因統計所能提供的資訊有限，無法提供防治（制）計畫
擬定具體參考（江伯倫，2020）。
48 為了讓各縣市不同局處參與兒童死亡原因回溯分析業務，⾏政院兒童及少年福利與權益推動⼩組於110
年4⽉20⽇決議「請內政部、教育部、法務部、衛福部及各地⽅政府所轄機關（單位）全⼒配合提供兒童
死因回溯分析業務所需資料及參與會議討論」。衛⽣福利部亦於110年8⽉10⽇函請相關部會，轉知所屬機
關及所轄業務之地⽅政府相關局處配合及協助衛⽣局推動CDR並提供所需個案紀錄資料（國立成功⼤學兒
童死亡原因回溯分析專案辦公室，2021）。
49 2019年新修《兒少權法》第13條，明定政府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。
18
歲以下兒童個案回朔，致使死因難以兼顧多元因素，也未能完整反映我國兒少
主要死因及可預防性。50
表⼀：各試辦縣市之執⾏⽅式比較表
縣市 執⾏依據
新北市 「兒童及少年福利政策諮詢委員會」下成立「兒童死因回溯分析
⼯作⼩組」，由副市長擔任⼩組召集⼈、衛⽣局統籌辦理
桃園市 由兒童死因回溯分析⼯作團隊執⾏，並以衛⽣局擔任聯繫窗⼝
臺中市 「台中市兒童及少年福利與權益保障促進委員會」之衛⽣與福利
組下設置「兒童死亡原因回溯分析⼩組」，並依訂定之「臺中市
CDR實施計畫」推動相關事宜
臺南市 由市府專簽同意依「臺南市政府兒童死因回溯分析⼯作⼩組任務
編組原則」辦理
嘉義市 以任務編制，由衛⽣局主責並以會報⽅式進⾏
臺東縣 健康城市及永續發展委員會下設置提升臺東平均餘命跨單位⼯作
⼩組
⾼雄市 依訂定之「⾼雄市政府兒童死因回溯諮詢會設置要點」辦理
屏東縣 依訂定之「屏東縣政府六歲以下兒童死亡原因回溯諮詢會設置要
點」辦理
資料來源：《縣市推動兒童死亡原因回溯分析⼯作⼿冊》
50 參考英美等長期積極推動兒童死因複審之國家經驗發現，對於複審個案之選擇，通常考量年紀、死
因、居住地、調查或訴訟與否等因素。據此建議我國進⾏檢討的優先順序，可依可預防性之程度進⾏排
序，如以交通事故死亡個案優先，其次依序為其他意外事故外因、故意傷害外因(如⾃殺、兒虐和他殺)、
不明死因、感染、周產期相關、先天畸形等（呂宗學，2016）。
19
55. 我們建議：
(1) 中央主管機關應訂定實施辦法，定期召開死因回溯分析諮詢會議，並授權地
⽅政府推動執⾏，以使死亡原因回溯分析之業務能持續，亦能顧及地⽅差異與
跨局處間之協調。
(2) 應將死因回溯分析年齡範圍擴⼤51以符合國際趨勢與實務現況（參表⼆、
三）。並考量死因統計登錄、篩選、調查及分析等程序所需時間，應明確訂定
回溯分析結果定期公開之時程。
表⼆：各國死亡原因回溯 特⾊比較表
國家 英國 美國 澳洲 印度
法源依據 V V V V
前瞻式即時回應 V V X V
回溯分析組織 V V V V
回溯分析範圍 0-18歲 0-18歲 0-17歲 0-5歲
嚴重個案回溯 V V X V
操作指引 V V X V
家庭參與 V X X X
分析成果回報系統 V V V V
資料來源：衛福部《強化兒童死因回溯分析醫療紀錄與資訊蒐集》
51 部分地⽅政府指出增加六歲以上兒少死因回溯，將會造成巨量⼯作⽽抗拒，然⽽從以下附表三顯⾒，⾄
未滿⼗八歲的增加個案數約為三成。
20
表三：兒童與少年年度死亡⼈數
107年 108年 109年
6歲以下 969 872 752
0-11歲 1,080 971 842
12-17歲 1,375 1,252 1,102
資料來源：內政部⼾政司
回應國家報告第69點
兒童交通安全
56. 國內通學道路與校區之選定無明確法令規範，相關規劃無系統性的架構
，更缺乏適當步⾏設施管理制度。2021年12⽉，⾼雄市⼀名國中老師於執⾏交
通導護⼯作時遭撞，昏迷⽉餘未醒，凸顯學童通學安全的問題懸宕已久。依兒
權公約第6條精神，國家不該將責任僅丟給學校。
57. 我們建議：
(1) 政府應整合相關部會、提出完善的學童交通安全規劃。
(2) 於學校周邊交通風險⾼的道路，由交通機關改善號誌或道路環境、警察機
關加強執法取締違規。
(3) 各相關單位制定通學道路維護管理計畫（含定期或不定期），配合積極宣
導與執法，掌握執⾏績效，並持續檢討改善。
交通安全教育
58. 雖交通部完成編製「交通安全基本能⼒架構」及「教學模組」，惟教育部
21
所稱之校訂課程52或融入課程的規劃運⽤，仍僅屬⿎勵性質，雖有八成以上的
教師肯定學校應實施交通安全教育，53但同時卻顯⽰「教師業務繁忙，宣導、
教學時間不⾜」為落實安全教育之最⼤困境，在升學主義盛⾏的情況下，其他
學科必然排擠交通安全教學時間。54⼜教育部稱「交通安全教育」推廣政策缺
乏社會⼤眾的普遍⽀持，與交通部的調查統計近九成⺠眾⽀持將交通安全教育
納入基本國教之結果完全相反。55
59. 我們建議：
(1) 應制定跨部會的策略，確保交通安全教育反映於課綱，且應將新型態的安
全風險與交通模式納入教學⽬標。
(2) 應分配⾜夠的資源⾄交通安全教育，針對區域與地⽅層級的學校及組織，
編列適當的預算並提供專業的⼈⼒培養與⽀持系統。如在教師養成訓練
中，加入交通安全教育的知識，或加強既有師資的教學能⼒與專業知識，
協助將交通安全教育整合進各⾃學科之中。並應落實執⾏教學。
學童通學環境
60. 政府「規劃通學巷」僅將⼈⾏道納入通學道路，56忽略對於整體兒童安全
更關鍵的⾞道道路規劃、路⼝設計等，致使我國⼗七歲以下兒少，每年平均約
52 以國⼩階段為例，課程規劃架構可分為「部定課程」與「校訂課程」兩類，前者為培養學⽣基本知能
與均衡發展的「領域學習課程」，後者則是「彈性學習課程」的定位，其中包含跨領域統整性主題/專題/
議題探究課程，社團活動與技藝課程，特殊需求領域課程，以及其他類課程，強調探究為本、跨領域及統
整課程設計，⽽不具強制性，僅為⿎勵性質。
53 在⼀年間曾實施交通安全教育的教師中之全台學校老師與⾏政⼈員所做之調查統計。
54 交通部《110年各學習階段交通安全課程模組計畫》期末報告。
87.46%的⺠眾對於「將交通安全教育納入幼童、國⼩、國中及⾼中課程」表⽰⽀持，18-34歲年齡層
55
的⽀持率更⾼達9成以上。 交通部《108年交通安全觀測指標研究》期中報告書p.136-137。
56 內政部於2018年發布的《都市⼈本交通道路規劃設計⼿冊（第⼆版）》，將通學路的定義為「在學區
範圍內，以空間實質規劃設計或是以時段區隔管制來作為學⽣出入校園之安全路徑。」範圍則界定為「以
學區為界定，即以國中、⼩學階段，學⽣居住範圍為通學道設定區域。」然⽽此⼿冊中內⽂卻提及「通學
道設置之內容與精神，與都市⼈⾏環境規劃設計之內涵相比，⼆者之間並無差異」
22
575⼈使⽤慢速運具或步⾏上下學途中傷亡57（詳表四）。此外，⽬前通學道路
與校區之選定並無明確法令規範，使相關規劃未能有系統性的架構及適當步⾏
設施管理制度，⼜⼀般⺠眾缺乏道路使⽤正確規則宣導與執法，步⾏空間常受
侵占，縱有規範制度仍難以具體落實。
表四：17歲以下兒童及少年「上、下學」途中遭遇交通事故傷亡統計_慢速運具與⾏⼈
106年 107年 108年 109年 110年 合計 平均
腳踏⾃⾏⾞ 354 383 368 341 243 1,689 337.8
電動輔助⾃⾏ 7 25 17 16 10 75 15
⾞
電動⾃⾏⾞ 41 59 87 94 92 373 74.6
⾏⼈ 161 148 168 165 96 738 147.6
合計 563 615 640 616 441 2,875 575
資料來源：交通部道路交通安全資料整合與分析平台
61. 各級學校仍未完整掌握學⽣接送狀況，「改善家長接送區」之政策各單位
協調分⼯不佳，58難以規劃及管制措施。再者，接送區之定義與設置準則無明
確統⼀規範，且政府未能提供接送區之統計數據，皆使其改善狀況與進度不
明。
62. 政府「增設⼈⾏空間」政策無提供相關規劃情形之統計數據，且此項政策
受各地⽅政府資源多寡所影響，存在顯著的城鄉差距。59
57 蔡宜臻，2021，〈「通學路」-開⼀條通往宜居城市之路〉。https://opinion.udn.com/opinion/
story/12135/5782057。
58 過去即有教育局要求學校調查國⼩課後輔導接送問題，遭⺠代質疑推卸責任，或被第⼀線教學⼈員認
為是最廢公⽂的狀況發⽣。https://tw.appledaily.com/headline/20111024/
2UJVMRV5WRAJIZRLHVFAQIPFCA/。
59 如「設置步道」、「拓寬路側帶」、「無電線桿化」、「⾃⾏⾞通⾏空間」、「防護柵欄」、「有⾊
鋪⾯」、「確保⼈⾏步道之鋪⾯連續性」、「設置橡膠桿」、「劃設易辨識之道路外側線」、「設置兩段
式穿越道路設施」、「改善路側⽔溝設施」等改善道路區間之作法。⽇本国⼟交通省道路局，2017年，
《通学路・⽣活道路の安全確保に向けた道路管理者による対策実施事例》。https://www.mlit.go.jp/
road/road/tra c/sesaku/pdf/a-jirei.pdf。
23
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63. 我們建議：
(1) 通學道路應將整體道路設計與空間規劃納入考量，並應積極建置⾃⾏⾞道
與⾏⼈庇護島等保障弱勢⽤路⼈設置。
(2) 政府應確實要求相關單位制定「通學道路維護管理計畫」（含定期或不定
期），並配合積極宣導與執法。
(3) 政府應針對通學道路的改善，提出明確的規劃期程與具體的執⾏成果，包
含全台應執⾏之處所、空間實體規劃⽅式、管制措施與設置設施之類別數
量、以及各項⽬之執⾏率與成效評估等調查統計資料。
(4) 地⽅政府主管機關應定期調查各級學校學⽣上放學⽅式與特性，60搭配學
⽣家長之就學交通管理措施意⾒調查，據此提出具體明確的接送管理策略
與局處⾓⾊分⼯，搭配管考以定期檢討與改進。
(5) ⼈⾏空間之增設應以實體設施為主，標線型為輔，且應提出相關統計數據
與具體明確之改善計畫及時程進度。
交通規範及執法
64. 弱勢⽤路⼈的特別保護措施缺乏，相關法規未跟上國際趨勢，如⾞不讓⼈
之違規、裁罰的⾦額與多數國家相比明顯較輕。61
65. 兒童保護裝置之法規⽭盾且落後，如遊覽⾞的安全裝備使⽤規定，雖在近
期修法明⽂要求四歲以上須使⽤安全帶，但針對未滿四歲之幼兒，未有相應的
60 包含如住所離校距離、到校時間、使⽤之交通⼯具、共乘⼈數、放學後活動、活動地點等。
61 根據交通部提供的資料，⽬前很多國家對汽機⾞未禮讓⾏⼈的罰鍰，換算成台幣都比台灣⾼（1200-
3600元），例如法國約4739元、韓國約5523元、美國紐澤⻄州約6174元、⽇本約1萬3689元。（中央通
訊社，2020）https://www.cna.com.tw/news/ rstnews/202009010041.aspx。
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強制性保護裝備規定。⼜國內幼童專⽤⾞之⾞型落後，亦未設計安全帶等安全
保護裝備，與國際事故防制趨勢不符。62
66. 我們建議：
(1) 應盡速修法，明⽂要求所有搭載兒童往返學校或其他活動的校⾞及幼童專
⽤⾞，均須裝設安全帶或適當的保護安全裝置。
(2) 應通盤檢討⽬前法規，針對弱勢⽤路⼈提供完善的保障措施，並賦予駕駛
⼈更⾼的責任，同時亦應配合加強執法與宣導，倡議以⼈為本的交通環境
與⽂化。
數據蒐集
67. 雖政府已建置「健保資料庫」與「道路交通安全資料整合與分析平台」，
但在兒童非致命性傷害數據的收集⽅⾯，仍有監測場域不全⾯、監測項⽬不完
整、資料登錄不完全，以及資料取得之可近性⽋缺等問題。63例如：衛福部之
健保資料庫「外因碼」經常填報未落實，導致傷害地點、機制、活動等資料紀
錄不完整，且因涉及個資隱私，外界無法公開查詢；64交通部主管之「道路交
62 歐洲在臺商務協會於2021年發表之2022⽩⽪書建⾔指出，歐盟⾃2006年起規定，所有長途客⾞和包
括普通校⾞在內的⼩型公共巴⼠，皆須裝設安全帶。歐盟的研究顯⽰，裝設兒童保護裝置，可以⼤幅降低
道路交通事故所造成的傷害程度。世界衛⽣組織則指出，安全帶可以有效防⽌⾞內乘員遭拋出⾞外：
44%未繫安全帶的乘客因被拋出⾞外⽽喪命，遠⾼於有繫安全帶者的5%。由於2008年⼀起八歲孩童未
繫安全帶被拋出娃娃⾞外不治的事件，新加坡在2009年通過強制在娃娃⾞上繫安全帶的立法（歐洲在臺
商務協會，2021）。另外，⽇本⾃動⾞研究所也發表過⼀系列幼童專⽤⾞配備安全帶的研究，認為當幼
童專⽤⾞遇到正⾯碰撞或⾞輛側翻時，兩點式安全帶可以將孩⼦固定在座椅中⽽且具有防⽌或減少對孩⼦
傷害的效果（杉⽥幸樹、林猛⼈等，2019）。並且，也曾透過實驗⽅式，指出幼童經過適當訓練後，安
全帶的使⽤並不會增加他們緊急逃⽣的時間（⽯井充、杉⽥幸樹等，2017）。
美國國家運輸安全委員會 (NTSB) 在2020年建議，各州強制要求校⾞安裝安全帶，⽽美國國家公路交通
安全協會 (NHTSA) 則要求⼩型校⾞（如臺灣使⽤的⼩巴），必須配備腰帶或肩帶。國家公路交通安全協
會認為「由於⼩型校⾞的尺⼨和重量更接近乘⽤⾞和卡⾞，因此這些⾞輛中的安全帶對於提供乘員保護是
必要的」。
63 財團法⼈國家衛⽣研究院兒童醫學及健康研究中⼼(2019，5⽉)。2030 兒童醫療與健康政策建⾔書綱
要，衛⽣福利部。https://reurl.cc/oxeNyv。
64 陳品玲、⽩志偉(2017年11⽉)事故傷害監測資料統計與加值應⽤計畫-105年後續擴充，衛⽣福利部國⺠
健康署。https://reurl.cc/aN16Zl。
25
通安全資料整合分析平台」，資料來源為「道路交通事故調查報告表」，該表
部分項⽬定義過於空泛，也缺乏⼈、⾞、路65與環境資訊。此外，第⼀線⼈員
業務繁忙，缺乏⾜夠設備、專業與時間，致現有資料仍未能完整記錄與呈現、
資料登錄與建檔過程常⾒⼈為錯誤，降低資料的可應⽤性。66
68. 我們建議：
(1) 短期：根據特定傷害監測⽬的，強化數據的收集、落實醫療院所對傷害就
醫案件的外因編碼紀錄、訂定各統計資料的標準化登錄流程、⼀致化統計
分類定義與說明、以及加強資料去識別化的處理，並且開發表單處理系
統，降低⼈⼒負擔與⼈為錯誤，強化資料串接與呈現。
(2) 中期：建議參照WHO出版之《傷害監測指南》，67盤點闕漏之傷害資訊並
研擬建置期程，改善監測場域不⾜的問題。此外，建議既有資料應積極結
合地理資訊系統(Geographic Information System；GIS)，建置視覺化資
料。
(3) 長期：建議應設置⼀級且獨立的事故傷害數據監測機構，專責協調整合各
中央及地⽅機關收集之數據，監督其收集之資料，⾄少達成能實現監測⽬
的之最⼩數據資料集，並設立跨部會資料彙整平台，據以分析、評估、檢
討並提出具實證基礎的兒少事故傷害防制策略、⽅向與⽬標。
回應結論性意⾒第30、62、63點/國家報告第70-72點
政府未能有效預防兒少⾃殺
69. 台灣兒少⾃殺死亡⼈數2016年到2020年成長近⼀倍，68⾃殺通報從2016年
65 如視線受阻情形、乘坐位置、⾞齡等。
66 交通部運輸研究所運輸安全組(2019年，6⽉)。道路交通事故調查報告表檢討修訂及統計運⽤。交通部
運輸研究所。https://www.iot.gov.tw/cp-78-200039-77321-1.html。
67 World Health Organization. (2001). Injury surveillance guidelines (No. WHO/NMH/VIP/01.02).
World Health Organization.
68 國家報告附件3-5。
26
的1152⼈次，激增到2020年的5464⼈次。69同樣遺憾的是，⾼中職以下的學
⽣⾃殺死亡⼈數亦從2016的28⼈增⾄2019的47⼈。70國家報告回應僅重複既有
政策，並無積極策略。
70. 未滿18歲的兒少⾃殺、⾃傷通報原因中，「憂鬱傾向、罹患憂鬱症或其他
精神疾病」從2016年的26.4%提升到47.1%，是近兩年⾸要的原因。其次可能
複合的原因包含家庭成員問題、學⽣適應問題與感情因素。
兒少⼼理諮商法規
71. 按《⼼理師法》第19條第⼆項後段規定：「接受⼼理諮商應取得個案當事⼈
或其法定代理⼈之同意，及告知其應有之權益」，並未明定應得法定代理⼈同
意之確切年齡，或相關注意事項說明。
72. 據實務瞭解，諮商所要求⼼理諮商師取得法定代理⼈同意，⽅得協助未成
年者開案。然⽽，不具彈性且定義不明的法規，可能導致專業諮商介入時間過
晚、忽略兒少⾃主接受醫療之表意與健康權。71
73. 在⼼理諮商相關法規不明的情況下，即便兒少能獨⾃尋求⼼理諮詢之協
助，現⾏⾼昂諮商費⽤也絕非兒少所能⽀應。
69 國家報告附件3-10。
70 國家報告附件3-11。
71 以下列舉部分原因供參考。狀況⼀：法定代理⼈堅持不讓未成年者進⾏⼼理諮商服務，但未成年者⾃⼰
需求⼼理諮商服務。狀況⼆：未成年者須⼼理諮商服務的原因，係因為家庭暴⼒或家庭性侵等因素，不便
由施暴者或性侵者⾏使同意權。狀況三：透露未成年者進⾏⼼理諮商服務的原因，可能導致家庭緊繃狀
況。
27
兒少⾼⾃殺⾃傷率
74. 政府提供之資料源於「通報資訊」⽽非「個案調查」，⼜現⾏法規死因回
溯僅針對6歲以下兒童，六歲以上兒童⾃殺因素仍無法確切了解。
75. 根據國家報告地72點，政府針對已出現⾃殺、⾃傷企圖等⾼關懷對象進⾏
輔導。但對於造成兒童⾝⼼健康負⾯影響之因素如：⾝⼼暴⼒、課業壓⼒過
重、休息不⾜等情形，未有具體有效之阻斷措施。
76. 據實務經驗與新聞專題顯⽰，72在學校之現有專任輔導機制⼈⼒不⾜、專業
參差不⿑、地⽅資源落差與輔導⼈員異動頻繁，⾏政部⾨的「校園學⽣⾃我傷
害三級預防⼯作計畫」並無法解決校園資源匱乏與專業性不⾜的難題。
77. 我們建議：
(1) 政府應建立七⾄⼗八歲兒少死因回溯分析機制，尤其是兒童⾃殺之案件，
應優先進⾏回朔分析並公開報告及政策回應 ; 政策之擬定除輔導⾼關懷兒
少外，應同時注重消除⾃殺因素。
(2) 加強對兒童、青少年與家長的⾝⼼健康議題宣導，以去除⾝⼼議題被污名
化為宣導重點。
(3) 為更深入瞭解未成年者尋求⼼理諮商服務之需求與困境，且提供相應之政
策與法規解釋，應由中央主責機關：A. 邀請相關專業⼈⼠，包含⼼理諮商
師、精神科醫師、青少年實務輔導⼈員、等辦理焦點論壇，就未成年⾃主
尋求諮商協助之議題討論相應措施。B. 就《⼼理師法》第19條第⼆項作統
⼀之年齡規定。C. 由專家會議研擬各式管道使兒少為主體及其關係⼈表達
意⾒，並調查兒少接受⼼理諮商輔導、服務之需求以及困境。
72 聯合報：「憂鬱世代誰殺了台灣青少年」https://udn.com/newmedia/2021/teenage_depression/。
28
回應國家報告第30、86、107點
替代性照顧兒少表意
78.兒少於進入安置體系前、安置過程與安置轉銜等各階段，部分未有充分參與
和表達意⾒之機會。⽬前國內法規僅有《少事法》規範法院相關裁定均需權衡
少年意⾒ ，社政體系的委託安置則使⽤過於簡易的級距評估兒少安置意願，有
關進入安置、安置轉銜（包含轉換安置處所、離院）、處遇計畫等替代性照顧
服務輸送各個階段，皆無法律規範須權衡兒少意⾒。
安置申訴機制
79. 從安置兒少⽣活經驗來看，仍有⼯作⼈員缺乏兒權意識，限制兒少表達意
⾒的權利，如兒少欲在院⽣會議、家庭會議提出討論的提案，會先經⼯作⼈員
檢視篩選，有些提案會被刪除；或被⼯作⼈員提醒：「少點意⾒就少點⿇煩、
意⾒不要那麼多」，使兒少在表意的過程備受挫折，逐漸降低發聲的意願。
80. 替代性照顧內外部申訴機制對兒少⽽⾔不夠友善，且隱私保護不⾜，除兒
少表⽰機構內鮮少有⼈使⽤過陳情信箱外，⼯作者也表⽰申訴專線多是家長投
訴抱怨。過去10年間，主管機關僅收到6次外部申訴，顯⾒申訴管道效率不
彰。
81. 我們建議：
(1) 替代性照顧系統從業⼈員應全⾯受兒權知能相關培訓，並在教養現場建立
督導培⼒制度，促進相關⼈員在⾼壓⼒照顧場域可優先把關兒少的最佳利
益。
(2) 建立替代性照顧中的兒少表意機制，徵詢並權衡兒少意⾒納入替代性照顧
相關法規。
29
(3) 提供表達意⾒⽅⾯有困難之兒少相關協助，如為⾝⼼障礙兒少提供以利其
表達意⾒的⼈員協助或設備、為使⽤非中⽂之兒少提供翻譯⼈員。
結論性意⾒第31、32點/國家報告第73-86點
兒少表意友善環境
82. ⽬前雖廣泛設置學校學⽣組織、公部⾨兒少委員、兒少代表制度等，增加
兒少參與公共事務決策機會，但在發表意⾒時，常遇有成年⼈不友善回
應；73或會議設置仍以成⼈⾓度出發，未能符合兒少需求。74
83. 政府僅注重兒少是否有「參與機會」與其「兒少的⾝份」是否為公約所要
求，卻缺乏CRC第12號意⾒書之落實檢核（充分知情、友善資訊環境、權衡與
回應），也未檢核兒少實質參與成效，難以有效⿎勵兒少持續參與公共政
策。75
84. 雖有與⺠間合作編纂之宣導⼿冊，並藉公彩計畫辦理CRC充權教育訓練課
程，但未強制要求教職員或具有決策⼒之主管理解及遵循，難以產⽣實質權⼒
保障效果。
地⽅兒少代表
85. 台灣雖已修法76確立兒少代表參與地⽅政府兒少委員會由「列席地位」轉為
73 學⽣組織於學校會議，常遭不友善回應；或討論案逕以表決處理。甚⾄學⽣組織要求學校措施應合於法
規時(廢除髮禁、不強迫第八節課、不因違反服儀規定處罰學⽣等)，仍有遭駁斥的狀況，部分私立學校甚
⾄會向學⽣表⽰「學校規定就是這樣，不喜歡可以去讀別間學校」。
74 各縣市兒少權益委員會之會議時間安排、議程規劃、會議進⾏等，仍係以成⼈委員為主設置，常有兒少
⾯臨委員會辦在考試期間、報告時間臨時縮短等不符兒少最佳利益之安排。
75 國家報告附件3-12。
76《兒童權利公約施⾏法》、《兒童及少年福利與權益保障法》。
30
「出席」，惟實務上卻出現修法後機制較修法前不友善之情形。蓋僅為列席
時，多數兒少均可以列席；修法後，部分地⽅政府以「出席⼈數有限」為由，
反僅讓擔任委員的兒少出席會議，⽽排除其他兒少代表參與的機會。
86. 部分地⽅政府限縮兒少代表提案數、撰寫格式、扭曲兒少提案內容，或與
培⼒單位過度涉入兒少提案產出，使兒少代表無法呈現真實意⾒；且教職員常
因不瞭解兒少參與公共事務，不允兒少請公假出席政府會議。
87. 各地⽅政府培⼒兒少代表所編列的經費落差甚鉅，縣市培⼒量能與資源有
極⼤城鄉落差；且各縣市遴選兒少代表年齡不⼀，有逾⼗八歲能可被遴選為兒
少代表之例。
88. 我們建議：
(1) 衛⽣福利部作為主管機關，應訂定兒少代表參與政府會議辦法，作為各縣
市所依循之最低標準，以保障各縣市執⾏上不會侵害兒少參與權，更不會
因縣市差異⽽產⽣落差。
(2) 衛福部需召開定期聯繫會議，協助地⽅政府將公約精神逐步融入兒少代表
制度辦理中，以修正各縣市運作困境；且應提升補助各縣市政府兒少培⼒
充權⽅案之經費，串接培⼒資源與辦理培⼒⼈員訓練，實質改變兒少培⼒
品質。
(3) 衛福部也應導入兒童成效評估機制，與現⾏兒少充權培⼒調查併⾏77，以
增加兒少代表參與效⽤感，以及落實國家政策實質納入兒少意⾒之精神。
77 ⽬前係由衛福部於每年調查各縣市政府兒少充權培⼒之情形，包含兒少代表組成年齡、⾝份別，以及培
⼒課程參與⼈數、於委員會提案數以及類別等形式上之資料，然未制定有效之評估機制調查兒少於培⼒課
程的滿意度、對委員會提案的效⽤感、對兒少代表受重視程度的感受等，以致於兒少代表制度往往停留在
法規層⾯的改善。
31
(4) 教育部應就兒少代表向其學校辦理公假受阻情形研議指引原則，使各級學
校有所依循，並透過辦理教職員CRC教育訓練，增加教職員知能，以確保
兒少參與不會受到阻礙。
32
第四章 公⺠權與⾃由
回應結論性意⾒第27、28點/國家報告第100點
宗教團體入校
89. 《性平法》仍未能徹底落實。許多學校78容許具宗教背景的團體入校，在晨
光時間或課後輔導時間進⾏⽣命教育或品格教育，其中包含宣揚基督教義、倡
導守貞、強化兩性刻板印象、反對同志的內容。79教育部雖於2020年5⽉訂定
「校外⼈⼠協助⾼級中等以下學校教學或活動注意事項」，明定校外⼈⼠協助
教學時教師應在場，且其課程及教材均須經過校⽅審核，80內容亦不得違反課
綱、相關法律或⼈權公約。81但此注意事項未能確實落實，宗教團體入校事件
仍頻傳。82
90. 我們建議：
(1) 雖性平法第15條規定「教職員⼯之職前教育、新進⼈員培訓、在職進修及
教育⾏政主管⼈員之儲訓課程，應納入性別平等教育之內容；其中師資培
育之⼤學之教育專業課程，應有性別平等教育相關課程。」然成效依然待
加強，教育主管機關應更積極對於教師之性平知能程度予以掌握，進⽽落
實法規。
78 以彩虹愛家⽣命教育協會為例，根據基督教論壇報之專訪，其於全台有超過6000位志⼯，進入超過
600所⼩學。蔡明憲（2019年6⽉20⽇），彩虹愛家20週年故事⾞環島企業⼆代下鄉說故事為全台6000
位彩虹媽媽讚聲，基督教論壇報。https://ct.org.tw/html/news/3-3.php?cat=12&article=1344181。
79 由於此類團體之課程及教材並未公開，外界通常難以獲知其確切內容。有家長成立 Facebook 粉絲專
⾴「守護孩⼦ - 校園回歸單純與專業」（https://www.facebook.com/schoolpure/），接受家長的匿名
投訴，並整理部分的授課內容。
80 「校外⼈⼠協助⾼級中等以下學校教學或活動注意事項」第5條。
81 「校外⼈⼠協助⾼級中等以下學校教學或活動注意事項」第6條。
82 陳燕珩（2020年11⽉25⽇），宗教滲透變招 彩虹愛家等團體「換名入校」 偷渡反同教材傳教，上
報。https://www.upmedia.mg/news_info.php?SerialNo=100894。
33
(2) 教育主管機關應督導各校確實落實「校外⼈⼠協助⾼級中等以下學校教學
或活動注意事項」與課程教學計畫之審查機制。
回應結論性意⾒第33點/國家報告第91點
無國籍兒童
91. 以現⾏機制來看，在台灣出⽣之嬰兒，若⽗⺟無合法居留⽂件（如雙⽅皆
為失聯移⼯，或⺟親失聯、⽗親合法），必須專案處理才能辦理健保；83即使
⽗⺟皆為合法移⼯、或專案列管的非本國籍兒少取得居留證明⽂件後，理應即
可參加健保，但因投保程序相對複雜，若無專⼈協助，實務上仍難辦理。
92. 針對無國籍兒少醫療權難以落實⼀事，監察院調查報告84建議：移⺠署應
以兒少為權利主體，考慮核發臨時居留證，不要被⽗⺟的⾝份或⾏蹤所限制。
93. 我們建議：
(1) 針對⽗⺟無合法居留⽂件之兒少，移⺠署應核發臨時居留證；社福中⼼或
各地社會局則可委託移⼯友善單位專案辦理，加強介入兒少健康權，提供
健保⾝分及預防接種等協助。
(2) 針對所有移⼯，健保程序應有多語說明，並讓公司⼈資、仲介或NGO提供
移⼯參考，弭平資訊落差，使其能⾃⾏辦理。
83 包含出⽰正式婚姻⽂件，或是⽗⼦女的親⼦鑑定等。其中親⼦鑑定因費⽤、流程複雜或資訊落差等因
素，⽗親可能無⼒負擔或不知如何進⾏；若⺟親為失聯⽅，則可能因害怕暴露⾝分，⽽不願提出證明。
84 108內調0100調查報告，監察院（2019）。https://www.cy.gov.tw/
CyBsBoxContent.aspx?n=133&s=6871。
34
香港政治難⺠
94. 2019年香港反送中運動以來，政治環境的迫害使許多香港抗爭者或⽀持
者85選擇離開家鄉。由於⽬前台灣政府的政策是以港澳條例第18條作為法源基
礎，先對個案進⾏聯合審查，通過後，再協助個案進入⼀般居留程序的申請。
這樣的作法與世界上⼀般通⾏的難⺠制度決定性的不同是，⼀般難⺠制度在通
過審查後可直接獲得難⺠⾝分，但在台灣政府⽬前的協助系統中，通過審查並
不會獲得居留⾝分，⽽仍必須繼續進⾏⼀般居留的申請，這個倒過來的程序會
讓尋求庇護者融入台灣的⽣活遇上更多困難。
95. 承上點，再加上法律制度的缺乏，⽬前所有協助皆由陸委會臺港服務交流
辦公室的彈性處理下進⾏，如此協助是否能夠持久穩定，有待商榷。此困境在
遇上兒童個案時，將更加難以解決。據悉，⽬前有香港尋求庇護個案在台產下
嬰兒，但⽗⺟因無法返回香港、台灣⼜缺乏法源之下，兒童無法獲得國籍登
記，成為無國籍兒童。
96. 無國籍下所產⽣的新⽣兒疫苗等醫療資源，⽬前只能透過⺠間私募資⾦解
決此⼀需求。其成長過程中，若持續因⾝分問題導致無法獲得健保，也可能嚴
重影響個案兒童的健康權。
97. 另外，此類兒童的就學將因學籍受到影響，無法正式入學。即便個案有辦
法個別拜託到學校接納旁聽，屆時完成學業也無法獲得正式的畢業證書。
85 這批年齡⼤都介於青壯年之間的⼿⾜中，少部分的⼈是攜家帶眷離開香港。
35
回應結論性意⾒第35、36點/國家報告第101、102點
未成年集會結社
98. 2020年末立法院通過⺠法修法，將成年年齡由20歲改為18歲，再對包含⼈
⺠團體法、集會遊⾏法在內的25項法律修法，將各條⽂中原規範的「20歲」規
定修正為「成年」。然⽽此⼀修法唯⼀的改善，只將諸多不合理的集會結社限
制中，對發起⼈的限制年齡降為⼗八歲，其餘仍然維持這兩部法律⾃1987年立
法以來的「精神」，管制包含兒童在內的公⺠表意⾃由。包含對⼈⺠集會結社
採事前許可制、並且在申請過程中有諸多繁瑣限制，以及禁制區、警察在現場
執⾏強制⼒法律標準氾濫等問題長期為⼈詬病，⺠間團體也多次在ICCPR公約
審查中提出平⾏報告，⾄今這兩部法律仍無通過任何改變原先架構的修法。
99. 此外，這兩部法律預設只給「成年」「無前科」「本國」國⺠有權利發起
合法集會，整體立法並沒有設想過兒童或非本國籍⼈參與集會結社之可能。因
此現狀下若兒童、青少年有意⾃⼰發起相關活動，必須找到成年⼈作為⼈頭代
替他進⾏申請。
100. 實務上在校園的學⽣團體因不能立案導致各種問題，使學⽣青年團體的運
作會很⼤程度受制於所在學校的「⼤⼈」的影響⼒，不能⾃主決定團體的地
位。由於學校本⾝的封閉性與老師學⽣之間的權⼒關係，外界難以掌握這類事
件的數據。
101. 2016年內政部所推動的「社會團體法」草案中，已經將年齡的限制拿掉，
在負責⼈的「⾏為能⼒」修改為「限制⾏為能⼒經過法定代理⼈同意」也可以
擔任。86然當時並未順利完成修法，於2020年開始新屆期的立法院中，⾏政院
亦尚未將相關草案送立法院審議。近年兒少、學⽣團體⽇益興起，無法順利依
86 「前項所稱之負責⼈，如為限制⾏為能⼒⼈，經法定代理⼈之同意後，關於其團體事務，有⾏為能
⼒。」
36
法立案，直接導致兒童在結社權的保障受到侵害，無法申請政府單位的補助、
無法以團體的名義租借政府場地等。
102. 我們建議：
(1) 盡速修正集會遊⾏法，讓集會遊⾏不再受不合理限制。
(2) 盡速完成社會團體法立法，保障兒少成立法律上認可團體之權利。
(3) 政府單位提供相關經費補助，應考量如何讓未立案之兒少團體申請。
回應結論性意⾒第37點/國家報告第103-105點
校園中隱私權
103.「老師以不是法律所規定的理由搜查學⽣物品，建議政府採取措施避免學
⽣隱私受侵害」，87國家報告第104點臚列相關法規，並以附件4-3提出因隱私
權受侵害的懲處⼈數，然國家報告所列之法規⾃前次國際審查後未曾修改，受
懲處⼈數五年來僅7⼈，遠低於⺠間團體實際處理之相關案件。
104. 從《教師輔導與管教學⽣辦法》中，國家報告刻意只提該法第30點，卻未
論及第29點，「各級學校得依學⽣住宿管理規則，進⾏學⽣宿舍之定期或不定
期檢查」，此條⽂仍授權學校在「無任何合理懷疑」的前提下，對學⽣宿舍進
⾏檢查，我們曾於2021年底接到屏北⾼中學⽣反映，88該校教官趁學校期末考
時，進入學⽣宿舍不只翻找學⽣個⼈物品，更無視在場學⽣代表提出之異議，
然教育部卻未對該校進⾏任何懲處，顯與國家報告所陳述內容有所出入。
105. 呈上，該法第三⼗點所授權學校檢查之範圍包含「猥褻或暴⼒之書刊、圖
片、影片或其他物品」、「菸、酒、檳榔或其他有礙學⽣健康之物品」，此類
87 參⾒結論性意⾒第37點。
88 屏北⾼中趁期末考搜宿舍 學⽣批：連犯罪嫌疑⼈都不如 https://udn.com/news/story/6898/
5187459。
37
顯非屬急迫危險之物品，學校卻得以⾼強度⼲涉學⽣隱私的搜查⽅式，有違比
例原則及學校輔導管教優先之概念。
106. 此外，現⾏透過「學校訂定教師輔導與管教學⽣辦法注意事項」授權學校
對學⽣⾝體、個⼈物品進⾏檢查，該注意事項法律位階教育部認為僅係「⾏政
指導」，⽋缺任何法律授權，卻以此賦予學校搜查權限，有悖於法律保留原
則。
107. 我們建議：
(1) 對學⽣個⼈物品進⾏搜查，應有法律授權，不得在無合理懷疑的前提下搜
查學⽣個⼈物品。
(2) 應限縮學校搜查學⽣個⼈物品項⽬之範圍，限於違法且具急迫危險之物品
始得搜查。
(3) 搜查過程中應有完整之程序保障，並應告知學⽣申訴及救濟之途徑，若有
違法情事，主管機關也應給予相應之懲處。
38
第五章 保護兒少免受暴⼒侵害
回應結論性意⾒第39點/國家報告第115點
⽬睹家暴兒少
108. 「線上轉知教育主管機關」與「學校評估啟動三級輔導機制」為⽬睹家暴
兒少相關法令89規定，但學校之「評估⼈員」、「評估⼯具」，卻無任何相關
規範，無⼀標準來評估兒少之輔導需求及分級。
109. 依109年各地⽅政府兒少⽬睹家暴個案輔導統計數據，90全國幼兒園⾄⾼
中共計12,722名⽬睹兒少轉知教育主管機關後，經評估由班級導師或認輔老師
關懷比例最⾼（68%），然除「教育訓練」提升老師之⽬睹專業知能，並無⽬
睹兒少受輔導情形後續追蹤及督導機制。此外，班導或認輔老師輔導⽬睹兒少
過程中，如遇困境，亦缺乏相關協助機制。
110.我們建議：
(1) 學校評估啟動三級輔導時，應納入⽬睹專業成員，例如：⽬睹兒少領域之.
社⼯、諮商⼼理師等。
(2) 學校啟動三級輔導後應建立「後續追蹤」及「督導機制」，如定期召開個
案追蹤會議評估個案輔導情形、邀請外部⽬睹專業成員針對輔導困境提供
協助或建議。
89 《家庭暴⼒防治法》第4條、第8條及《⽬睹家庭暴⼒兒童及少年輔導處遇原則》。
90 教育部（2021）。衛⽣福利部家庭暴⼒及性侵害防治推動⼩組第4屆第6次會議⼯作報告。
39
回應結論性意⾒第57點/國家報告第127、128點
家長懲戒權
111. 衛福部統計91顯⽰兒少遭⽗⺟、照顧者等家庭成員施虐死亡之⼈數，並未因
現⾏相關法律的限制⽽減少下降，政府除未以法律明確禁⽌家內體罰(參下
點)，也尚未就「體罰」明確定義。92
112. 我國除⺠法93違反CRC第19條94外，法院判決95亦不禁⽌⽗⺟體罰，顯⾒國
家⿎勵⽗⺟將教養作為體罰藉⼝。96判決認為「徒⼿」以及「使⽤⽪帶」⽅式
毆打兒少的⼿、腳、屁股等⾝體部位，是家長合法的懲戒權，法院對於懲戒權
的解釋，仍包含部分體罰⾏為。
113. 即使未來兒少權法修正，納入禁⽌體罰及辱罵等⾝⼼暴⼒的規定，對兒少
⾝⼼暴⼒的⾏為，仍可因家長懲戒權阻卻違法(含⾏政法)，實質使⽗⺟對兒少
的⾝⼼暴⼒⾏為維持合法。
114. 我們建議：台灣應學習鄰近且受家⽗長制度影響甚深的韓國之前例，最終
透過廢⽌懲戒權，才能對兒童禁⽌暴⼒議題上更進⼀步。
91 https://dep.mohw.gov.tw/dos/cp-2985-14082-113.html。
92 ⽬前僅教師體罰兒童部分，有教師法施⾏細則的定義，此⼀體罰定義未能包含所有⾏為⼈，有另訂法
規定義之必要。且教師法施⾏細則對體罰之定義，將管教為⽬的作為前提，實際適⽤時常遭曲解，比如：
部分教職員以「⾏為有訓練體能的⽬的」企圖避開體罰定義以避免受到懲處，實際處理個案的委員會，也
常認同此類說法。
93 ⺠法第1085條明⽂授予⽗⺟懲戒權。
94 張郁玲（2017）。邁向非暴⼒教養社會—從落實兒童權利公約之禁⽌體罰法制開始。
95 臺灣⾼等法院 107 年度原上訴字第 17 號刑事判決「被告既係潘童之⽣⺟，依法得於必要範圍內懲戒其
⼦女，...其係於潘童亂拿危險物品（玻璃、打火機）不聽管教時，才以徒⼿以及使⽤⽪帶⽅式毆打潘童
⼿、腳、屁股等⾝體部位，此等管教⽅式，尚屬⽗⺟⾏使對未成年⼦女懲戒權之合理範圍，依刑法第21條
第1項規定，⾃屬不罰。」
96 兒福聯盟（2016）。2016年台灣兒少家庭⽣活中暴⼒對待情形調查報告。取⾃：https://
www.children.org.tw/publication_research/research_report/2206。
40
115. ⼜台灣兒少遭家內⾝⼼暴⼒之情形逐年上升，家長以打罵為教養⽅式在台
灣仍為⼤宗。97懲戒權的存在將持續使⽗⺟對兒少⾏使⾝⼼暴⼒時，得到法律
上的理由與⽀持。
116. 我們建議：
(1) 應刪除⺠法1085條家長懲戒權規定，或調整為保護、教養義務。
(2) 應以法律明定禁⽌家內體罰，同時禁⽌所有⼈對兒童為⼀切形式⾝⼼暴
⼒。
(3) 法律應明⽂定義「體罰」，並應避免在⽬的、程度上限縮體罰定義。
回應結論性意⾒第52、53、56、57點/國家報告第130點
政府之兒少校園體罰問卷
117. 政府主導之校園體罰問卷抽測調查，⼤多為學⽣在教室填寫問卷或學校⾃
評。學⽣在校作答，且⼤部分情形下教師在旁。問卷施測場所使學⽣作答中，
有受教師引導之案例，98有害於學⽣之表意⾃由。學校⾃評僅屬⾏政上聊備形
式的舉動，作答者填寫之內容即使與事實相悖，亦無相關責任。若政府採⽤偏
離現實之調查數據，將不利於擬定兒少免受⼀切形式暴⼒的國家政策。
118.我們建議：
(1) 政府於調查敏感議題數據時，應確保信效度。
(2) 確保兒少充分理解相關資訊，並處於安全友善之作答環境。
97 ⺠法第1085條使⽗⺟得於「合理必要範圍」內，懲戒⼦女。導致⽗⺟懲戒權與兒少不受暴⼒對待的權
利相衝突。依第⼆次國家報告附件5-2中，體罰以及不當管教之⼈數統計數據顯⽰，有逐年攀升的現象。
⽗⺟仍然習慣以打罵⽅式來教養⼦女。
98 在實際體罰的個案中，曾有受害兒童表⽰老師會告訴他們「罰跑操場不算體罰」、「要你⾃⼰打⾃⼰
不算體罰，因為我沒有動⼿」，導致兒童在教師監督下施作問卷，可能產⽣包含體罰定義的誤導。
41
回應結論性意⾒第52、53、56、57點/國家報告第129、130點
校園中對兒童⾝⼼暴⼒
119. 校園中兒少遭⾝⼼暴⼒對待之案件仍頻繁發⽣。99實際協助兒少個案發
現：因處理兒少在校遭受⾝⼼暴⼒的機制中，有決定權的委員會，仍以「加害
者之同校同事」為主要成員，100在此⾝分衝突的狀況，合於「體罰」定義的⾏
為，有被從輕描述為「不當管教」，101因不當管教的⾏為最輕只需被處以⼝頭
訓誡。
120. 政府收集之個案數據中，「體罰」案數可能被挪移到「不當管教」，因⽽
將誤判嚴重暴⼒⾏為正在減少，亦影響「終⽌兒少遭⾝⼼暴⼒對待的國家⾏動
計畫」，未掌握兒少保障及處理程序之規範不周、兒少仍遭受⾝⼼暴⼒對待之
現狀，僅延續舊有政策，未能發揮實效。
121. 我們建議：
(1) 政府應確實掌握兒少在校遭暴⼒對待情形。
(2) 針對施暴成因，尤其是現⾏制度處理個案中處理單位⾝分衝突102問題，即
國家報告附表5-24中之數據，並未依懲處程度、懲處原因劃分，政府應
提出具體對策。
99 主管機關因前⼀點次所描述的偏誤，對實際情形有所誤解。
100 依《⾼級中等以下學校教師解聘不續聘停聘或資遣辦法》第4條規定，5⼈成員皆由校長「選聘」，且
其中三⼈為同校⼈員；依《⾼級中等以下學校教師評審委員會設置辦法》5⾄19位委員中，僅有家長代表1
⼈非同校⼈員；在處理對兒少⾝⼼暴⼒對待時，雖增聘外部委員⾄「未兼⾏政或董事之教師代表」少於⼆
分之⼀，但加上校內⾏政⼈員後，同校⼈員⼈數仍然會實質過半。
101 參監察院調查屬實糾正報告（⽬前仍未⾒改善）。https://www.cy.gov.tw/
CyBsBoxContent.aspx?n=134&s=6238。
102 ⼈本基⾦會協助個案經驗，⼤多數兒少遭⾝⼼暴⼒之情形僅受到輕微⾏政處分。此外，在性侵、嚴重
性騷擾事件非以性平會為主軸處理（校內⼈員難以主導程序進⾏）後，解聘⼈數從每年個位數，增加每年
百位數，亦可看出，校內⼈員護短的狀況，是有必要處理的體制問題。
42
回應結論性意⾒第57點/國家報告第129、130點
學前不當管教
122. 雖有多項法令103禁⽌教師體罰或違法處罰學⽣，但學前教育階段仍因規範
與裁處機制不明確，如未能適當淘汰不適任⼈員、未完整登錄與揭露裁處資訊
等，致⽬前不當管教爭議事件頻繁。以《兒少權法》49條所稱之「⾝⼼虐待」
定義為例，適⽤不明確，104致主管機關難據此裁罰。⼜教保服務⼈員若涉及不
當管教，未有相應之罰責，105致相關爭議案件之裁處，難有具體⼀致之作法。
123. 據靖娟基⾦會的調查，近五年(105-109)因爭議⽽曝光的新聞案件計有162
件。相關案件司法判決書的統計，居家托育保⺟共有62筆、托嬰中⼼19筆，幼
兒園22筆。對照政府的統計資料，僅掌握「非教保服務⼈員」的不當管教案件
數量(參照第⼆次國家報告附件5-27)，教保服務⼈員案件數量則付之闕如。
124. 我們建議：
(1) 建立明確的違法認定與資訊揭露評估指標。
(2) 應以法規訂定「教保服務⼈員不得對幼兒施加之⾏為」樣態與裁罰標準。
(3) 應完善「不適任⼈員」與「機構業者」的監督管理機制，並公開資訊內
容，包含：退場機制、違法樣態、累犯與園所名稱變更情形、負責⼈歷
程、更新頻率等。
103 《兒少權法》第49條、《幼照法》第23、25、46條、《教保服務⼈員條例》第12條、《教保服務⼈
員條例施⾏細則》第5條、《幼照服務實施準則》第3條、以及《幼照法施⾏細則》第14條，皆有明定相
關⼈員資格與禁⽌不當管教規範；另也訂定《直轄市及縣（市）主管機關處理教保服務機構疑似不當對待
幼兒案件注意事項》，規範處理流程與注意事項。
104 針對虐待之定義，我國⾃2019年刑法第10條7款增訂後，實務⾒解已普遍肯認「凌虐」⾏為不以長期
性、持續性或多次性為必要。「衛部護字第1101460013號」函⽂也指出，「針對第49條第1項第2款及第15
款之適⽤，容易陷於考量受虐情節是否嚴重、施暴⾏為是否反覆實施、造成兒少⾝⼼傷害程度等，致實務
評估裁處時常未予處罰，與外界期待產⽣嚴重落差。」「應依《兒權公約》及「⼀般性意⾒書」之意旨，
在認定適⽤上從寬解釋。」但該如何從寬解釋，並未具體說明。
105 監察院108內調0092號調查報告指出，國內相關兒少法規，並無違法性程度較輕微之「不當管教」規
定。
43
回應結論性意⾒第56、57點
校內體育訓練對兒少之暴⼒
125. 2021年4⽉21⽇台中柔道教練虐待7歲兒童致死的嚴重案件106後，國家報
告竟未對體育訓練中教練以「訓練」、「管教」為名，向兒少施以嚴重⾝⼼暴
⼒之情形，提出任何意⾒或政策回應。
126. ⺠間團體受委託之案件中，上⼀點次之問題於校內外體育訓練場合皆普遍
存在。然在校園內，⽬前只有「專任」運動教練受法律規範，其他兼任運動教
練、社團指導老師、家長後援會為校隊聘請之教練等，皆未受規範。
127. 校外部分，政府雖於上述事件後頒布《技擊運動訓練館設置及輔導要
點》，但無強制措施規範⼈員資格、解聘程序、不適任程序、兒少申訴管道；
亦無明確規範場館107及主管機關監督責任。
128. 我們建議政府應建立ㄧ公開透明「對兒少進⾏體育訓練相關⼈員」之證照
制度，包含：
(1) 「不適任及註記制度」，使運動場館於其聘任之教練侵害學員權益時，除
能證明已善盡⼀切選任、監督責任外，則僱⽤⼈、運動館場負責⼈或負責
單位，應受裁罰。
(2) 可執⾏且公開透明之「教練不適任制度規範」。
106 事件中教練在受害兒童多次拒絕繼續訓練，哭泣求饒的狀況下，仍繼續重摔兒童，導致重傷，受害兒
童最終不治死亡。https://www.cna.com.tw/news/ rstnews/202106040099.aspx。
107 當經營道館或是⼀個被學校找來當教練訓練學校的球隊、訓練道館的孩⼦們，就有責任。李昀修
(2021)．柔道事件後，臺灣準備好痛定思痛了嗎?──專訪林佳和教授．⼈本教育札記，19-24。https://
hef.org.tw/journal384-3/。
44
fi
回應國家報告第126點
兒少遭性暴⼒之事件調查機制
129. ⼈本基⾦會於多個校園性侵、性騷擾事件中，歸納校內師對⽣性暴⼒事
件，常有跨多年、多屆之複數被害⼈，同時性暴⼒受害者多有隱忍之情形。⼜
校⽅、地⽅政府常為避免⿇煩⽽拒絕擴⼤調查，且抗拒對學⽣、畢業⽣及其家
長通知、說明。⽬前由⺠間⾃⾏擴⼤調查之案件，⼤多可找出更多受害者，108
但能量實在有限。
130. 呈上，顯⾒政府於「機構內兒少性侵案件」未以兒童為中⼼來處理。我們
建議政府：
(1) 應對於此類案件進⾏合理的擴⼤調查，避免因怠於調查造成受害兒少無處
傾訴，獨⾃⾯對痛苦之情狀。109
(2) 擴⼤調查之機制，除應落實在法規、政策及實際⾏動中，亦應建立案件系
統性回溯分析機制。
(3) 學校、政府提供安⼼環境以保證「受害者有權選擇是否保密及追究」並
「主動向受害者提供訴說機會及⼼理⽀持」，加強對其協助復原，以及加
害者的責任追究。
108 例如台南市那拔國⼩、新市國⼩性侵案，學校及政府處理時無系統性調查，導致忽視其他受害者，後
經本會追蹤調查，同⼀加害者侵害多達31未兒少。本案經監察調查屬實https://www.cy.gov.tw/
CyBsBoxContent.aspx?s=17268。
109 ⾏政院PDIS⼩組、衛福部、教育部、內政部及法務部共同編撰（2020/01/05）。「⾯對兒童性侵害
- 政府應全⾯調查我國各級學校與兒少機構內兒童性犯罪及處理狀況」-議題⼿冊。⾏政院PDIS⼩組。
https://issuu.com/pdis.tw/docs/________---_______________________________________。
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回應國家報告第133點
安置機構不當對待兒少
131. 部分安置機構存在「⼯作者與院⽣」或「院⽣與院⽣」間的不當對待、性
騷擾或性侵之問題。2020年台北市某育幼院遭爆⼀名⽣輔員對院童施以暴⼒、
逼吃餿⽔、抄課⽂⾄深夜，以及拍攝男院童裸照等不當對待與性騷擾。110同年
臺灣兒童權益聯盟（CRAT）辦理被安置兒少培⼒活動，有兒少⽬睹其他院童
遭罰提⽔桶半蹲，或因⽣輔員覺得⼩⼆院童太吵，以使⽤過的尿布塞住兒少嘴
巴。⽬前對於安置機構不當對待、性騷擾與性侵等並無公開統計數據，機構評
鑑制度也不⾜以瞭解院⽣在機構內的⽇常⽣活，造成安置機構內不當對待事件
存在無法深究的⿊數。
132. 我們建議：
(1) 完善機構評鑑制度，蒐集離院兒少對機構之意⾒，以利瞭解機構⽇常經
營。
(2) 建立易於兒少觸及與使⽤，且完整保障兒少隱私的申訴機制。
回應國家報告第15、129、134點
師對⽣之精神暴⼒
133. 我國霸凌機制規範原限於未成年之「學⽣對學⽣」111之霸凌，然現⾏實務
卻將「教師對學⽣」之霸凌納入同⼀機制。然此兩類霸凌情形完全不同：師⽣
間存在年齡、權⼒不對等，致使師對⽣之精神暴⼒，為違反專業倫理，則應有
導正其倫理紀律之措施，⽽非僅以霸凌事件之未成年兩造當事⼈之照顧、輔
導、教育為主。
110 參考鏡周刊（2021年1⽉25⽇），【恐怖育幼院】育幼院當斂財⾦雞⺟ 北市兒福機構遭爆虐童性騷。
https://www.mirrormedia.mg/story/20210124soc007/。
111 核⼼⽬的在使兒少雙⽅都受到⾜夠的照顧，霸凌者獲得⾜夠的輔導與教育，其中也包含適度導入修復
式正義概念。
46
134. 政府在霸凌定義上既未涵蓋師對⽣精神暴⼒的類型，⼜將兩類暴⼒樣態112
使⽤相同之專家資料庫、調查處理流程，師對⽣之精神暴⼒只加上處理完成後
送交教評會或考核會處理，有失訂定法規細膩性及案件處理之適妥性。113
135. 我們建議政府：
(1) 應將「教師對學⽣」精神暴⼒⾏為，以違反倫理，暴⼒對待兒童看待，並
施以紀律處分，非將之視為相處問題，處理程序應與霸凌防治程序不同。
(2) 應強化調查⼈員、教師及其他接觸兒童相關⼈之精神暴⼒之知識，並將專
業倫理課程納入禁⽌對兒少精神暴⼒專章。
回應結論性意⾒第54點/國家報告第15、134⾄136點
校園霸凌防制政策與LGBT學⽣
136. 儘管已有立法，114多元性別兒少在校園遭受霸凌並無改善，仍難以求助。
《2020台灣同志（LGBTQ+）學⽣校園經驗調查》，1151226位在2019年9⽉⾄
2020年7⽉之學年度曾就讀國⾼中職的LGBT學⽣中，62.1%曾遭受⾔語騷擾、
17.8%曾遭受肢體騷擾、4.3%曾遭受肢體攻擊、10.6%曾被刻意盜取或破壞個
⼈物品；其中，12.6%、3.5%的LGBT學⽣表⽰⾃⼰「很頻繁」或「時常」因
性別氣質⽽遭遇⾔語騷擾、肢體騷擾。另⼀研究亦指出：40%的LGBT學⽣曾
遭受性別暴⼒，其中73%發⽣在⾼中職前，以⾔語和關係霸凌最多。116
112 學⽣對學⽣之霸凌，與師長對學⽣之霸凌兩種樣態。
113 ⼈本基⾦會處理的案件中，有台北市某國⼩低年級罕病兒童遭教師長期要全班同學⼀起說受害者
「笨」、「未來不會有成就」，並造成兒童焦慮及⾏為退化，在有錄⾳證據情形下，霸凌仍不成立之狀
況。
114 現⾏法規已定義校園霸凌及性霸凌，並將性霸凌納入校園性平事件通報選項中。
115 台灣同志諮詢熱線協會（2021）。《2020台灣同志（LGBTQ+）學⽣校園經驗調查報告》。https://
hotline.org.tw/news/3136。
116 2019年勵馨之網路調查：https://www.goh.org.tw/mobile/
news_detail.asp?PKey=aBIPaB31aBMTaB35aBTHaB39aBRMaB34&Class1=aBSTaB33。
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137. 第⼀份調查中，遭受騷擾攻擊的LGBT學⽣，超過⼀半（55.2%）完全不
曾向教職員求助通報，主因為：不認為教職員可以有效處理（53.4%）、和教
職員談論事件會造成情緒上的負擔（48.8%）、不想對教職員或家⼈出櫃
（48.6%）；且有16.8%的LGBT學⽣表⽰不敢求助，是因教職員本⼈恐同／恐
跨。第⼆份調查指出：多數受害學⽣重複經歷暴⼒及霸凌，平均求助次數卻不
到1次，未求助原因則以「求助了也沒有幫助」為主。
138. 根據國家報告，2016⾄2020年校園霸凌通報數，每年皆以肢體霸凌最多
（40%），⾔語霸凌次之（32%），兩者共占全部通報量的72%；⼜根據教育
部「疑似校園性侵害、性騷擾及性霸凌通報件數統計」117顯⽰，性霸凌⾃2013
年修法後，通報數量平均1年79件，遠低於「性侵害」平均1年1,505件及「性騷
擾」平均1年3,634件。從撰寫團體之服務經驗及統計數據的落差亦發現，
LGBT學⽣遭受性別暴⼒的經驗多在⾼中職前，雖重複發⽣卻鮮少求助，118即使
求助也無得到友善對待（例如害怕被出櫃）；119⼜校園霸凌通報數據以「肢體
霸凌」為⼤宗，與前述兩項調查主要遭受的「⾔語及關係霸凌」有所落差，顯
⽰LGBTs學⽣即使跨越重重障礙在受暴後求助，仍會因為暴⼒樣態⽽難以進入
正式系統。
139. 政府除未意識到LGBT學⽣與霸凌⾏為間的⾼度相關，⼜現⾏校園霸凌防
制政策未能積極有效解決LGBT學⽣的校園真實困境與需求。我們建議：
117 詳⾒統計處「教育環境」之性別統計：https://depart.moe.edu.tw/ED4500/
cp.aspx?n=0A95D1021CCA80AE。
118 兒福聯盟發現超過半數兒少曾遭受性霸凌，遭受校園霸凌者近半不會告訴家長，並有三成兒少認為學
校不關⼼霸凌議題。參⾒兒福聯盟（2006）。2006年兒童校園「性霸凌」現況調查報告。https://
www.children.org.tw/research/detail/69/231；兒福聯盟（2018）。2018台灣校園霸凌防制現況調
查。https://www.children.org.tw/research/detail/69/1458。
119 鍾道詮指出校園以異性戀思維處理性霸凌議題，導致同志學⽣擔⼼⼆度傷害⽽不願求助。參⾒鍾道詮
（2011）。同志⾯對的暴⼒與傷害情境。婦研縱橫，94，2-15。
48
(1) 針對⾼中職以下學校的各校校園霸凌（含性霸凌）規定，應於規定中明⽂
列舉霸凌樣態，包含：針對性別、性傾向、性別氣質與性別認同等學⽣個
⼈特質之暴⼒。
(2) 教育部應針對性霸凌樣態進⾏深度調查，了解LGBT學⽣在校園所遭受的
霸凌樣態及求助困境，再建立指引，提供第⼀線教職⼈員教育訓練。
(3) 改善現有校園霸凌（含性霸凌）的通報與調查機制，針對LGBT學⽣，需
以兒少最佳利益120為最⼤考量。
回覆國家報告第162⾄165點
視障兒少於校園受霸凌
140. 經中華⺠國視障者家長協會訪談、調查多位曾受⾔語或肢體霸凌的視障
⽣，⼤多⼈表⽰學校並未妥善處理，尤因視障之緣故，既無法清楚指認施暴同
學，學校⼜無相關的輔導處理機制，⽽最後不了了之。或是對學校處理機制感
到不信任，⽽選擇默默隱忍。
141. 現⾏規範除「視障⽣受霸凌事件處理守則」，亦缺乏因霸凌⼀⽅為視障⽣
⽽啟動學校輔導處理機制之統計數據。
142. 我們建議：
(1) 應邀請視障家長或相關專業團體代表參與研議「視障⽣霸凌輔導處理機
制」。
(2) 主管機關應定期檢視「學校霸凌輔導機制」對視障學⽣之適切性。
(3) 應將各年度校園霸凌輔導案件依照詳細年齡、性別、⾝份（含不同障別之
⾝障⽣）加以分類，及其後續處理結果之資料收集並公布。121
120 包含是否通知未成年學⽣之監護⼈。
121 以兒少去識別化之⽅式。
49
第六章 家庭環境與替代性照顧
回應結論性意⾒第33點/國家報告第151點
移⼯⼦女⾝分權
143. 失依孩童依法122處理其國籍、⾝分之辦理、收出養及成長、就學等事宜，
以越南移⼯123為例，其接洽移⼯事宜的商業辦事處回應：「若⺟親為失聯移
⼯，需與⽣⽗證明有婚姻關係使取得⾝分，並以DNA⾝分認定後⽅能收養。」
另外，失聯移⼯即使進入收容所，也可能因無法順利辦理旅⾏⽂件或護照，屆
滿100天必須離開收容所，使部分非本國籍孩童無法順利返國。
144. 我們建議：
(1) 由於我國地位存在國際認定的問題，僅能透過各國商業辦事處處理跨國移
⼯與兒少權益問題。請政府提出優化聯繫系統、督促友善溝通，確保移⼯
⼦女⾝份取得及保障外籍兒童權益之具體對策。
(2) 我國《勞基法》適⽤本勞、外勞，但未納入「家庭類看護⼯」，此類移⼯
以女性為⼤宗，為懷孕、⽣產及失聯的主要群體，因其權益不被國家保障
（例如：懷孕後即被雇主辭退，無法在勞動市場找到其他⼯作），往往只
能鋌⽽走險。政府應將移⼯勞動權制定《勞動基準法》專章，以有效解決
勞⼯失聯問題，保障移⼯孩童被照顧權利，進⽽降低無國籍兒童產⽣。
(3) 移⼯之嬰孩⾃通報出⽣到⾝分取得須2週，124移⼯媽媽早已離開醫院，造
成後續兒童⾝分登記的困難，影響兒童權益。政府應優化通報流程、管理
制度，⽅能確實保障移⼯孩童的基本權益。
122 無依兒童及少年安置處理辦法第6條及第7條。
123 越南為我國⼤宗外籍移⼯來源國。
七⽇內由醫院通報國健署，再由國健署轉介給移⺠署，接著由移⺠署旗下22縣市的專勤隊到院訪視、
124
辦妥申辦作業。
50
回應結論性意⾒第39點/國家報告第142點
親職教育假
145. 兒少受教權包含親師維持良好夥伴關係，125其中最重要為「家長⽇」活
動。學校多有於平⽇舉辦之年度活動「家長⽇」改⾄假⽇或晚間，以利家長參
與，然基層教師反映，許多「須維持家庭經濟、從事輪班⼯作之家長」無法出
席，如此影響親師關係，亦無法落實法定之家長教育參與權，126法規形同具
⽂。
146. 我們建議：政府制定有薪之「親職教育假」，⿎勵所有家長參與⼦女教育
事務，強化學校與家庭的連結以增進兒少福祉。
回應國家報告第146點
準公共化幼兒園
147. 為補⾜公立和非營利幼兒園之不⾜，政府推出準公共化幼兒園政策，與政
府簽訂合作契約的私幼，即可獲得經費補助，意在減輕家長負擔，且依相關規
定，簽約期間不得調漲學費，但教育部卻在2021年8⽉修改規定，同意準公幼
調漲收費標準。上述問題證明此現⾦補助政策毫無公共性，家長表⾯上看似⽀
出減少，但卻透過公部⾨經費進入私立業者⼝袋。且公部⾨的經費投入後，不
125 羅興發、林淑碧 「建立家長正向參與校務與活動機制 提升學校教育效能」臺灣教育評論⽉刊，2015.5
⽉。
126 《教育基本法》第8條第3項：「國⺠教育階段內，家長負有輔導⼦女之責任，並得為其⼦女之最佳福
祉，依法律選擇受教育之⽅式、內容及參與學校教育事務之權利。」第20-2條第1項：「國⺠教育階段
內，家長為維護其⼦女之權益，應相對承擔輔導⼦女及參與家長會之責任，並為保障學⽣學習權及⼈格
權，有參與教育事務之權利；其參與⽅式、內容、程序及其他相關事項之辦法由中央主管機關定之。」另
外，《國⺠教育階段家長參與學校教育事務辦法》第4條第1項亦提及，「家長為維護⼦女之學習權益及協
助其正常成長，應負起相關責任，其中第3款：配合學校教學活動，督導並協助⼦女學習、第4款：與教
師及學校保持良好互動，增進親師合作、第5款：積極參與教育講習及活動、第6款：積極參與學校所設
家長會。」
51
僅在硬體建物、教育資源等無督導機制，私立業者也不具公共責任，完全悖離
教育公共化之精神。
148. 我們建議：
(1) 政府應立刻停⽌放寬準公幼收費的標準，更應該逐年調降準公共補助。
(2) 將經費投入真正的公共化幼兒園、有效增加公幼數量。
回應國家報告第151點
不分國籍兒童之健康權與安置
149. ⾄2021年10⽉⽌，關愛之家收容共計6名由社會局轉介合法移⼯⼦女，皆
無法獲得任何政府補助。據內政部移⺠署報告，127移⼯婦女懷孕僅以宣導衛教
督責應對。⼜勞動部表⽰：就業安定基⾦僅補助「失聯移⼯」產下⼦女之安置
費⽤，「合法移⼯」⼦女之安置未符合基⾦之使⽤⽬的，並無法使⽤於安置補
助。128
150. 我們建議：政府應考慮移⼯之⾝份與現實處境，補⿑有安置需求之「合法
移⼯」之⼦女補助相關法令，並確保收容移⼯⼦女之安置機構獲得⾜夠⽀持與
協助。
127 內政部移⺠署《內政部移⺠署及新住⺠發展基⾦110年度預算評估報告》(2020年10⽉)https://
www.ly.gov.tw/File/Attach/207059/File_293446.pdf。⾴13。
128 勞動部《勞動發管字第1100515201號函》（2020.9.29）表⽰，就業安定基⾦使⽤⽬的係作為加強辦
理有關促進國⺠就業、提升勞⼯福祉及處理有關外國⼈聘僱管理事務之⽤。本案補助移⼯⼦女托育費⽤，
未符合就業安定基⾦使⽤⽬的。現⾏就業安定基⾦並未補助本國勞⼯托育費⽤，如合法移⼯缺乏⼦女托育
及照顧的⽀持系統，實務層⾯可能導致移⼯⽗⺟轉入非法勞動市場以尋求更多的托育⽀持（如無證保
姆）。
52
回應結論性意⾒第43點/國家報告第159點
親屬安置法規
151. ⾃2014年⾄2018年親屬安置兒少從175⼈上升⾄280⼈，129實務⼯作者對
於親屬安置之親屬照護者選取、發放安置費⽤⽅式、照顧專業訓練標準等存在
疑慮，130且缺乏完善的法規制度，無法保障兒少進入安置後之權利。
152.《兒少法施⾏細則》第10條兒少安置之順序，適當之親屬排第⼀位。然許
多縣市親屬安置之規範仍準⽤寄養家庭規定，亦無提供安置兒少前之親屬親職
教育訓練，有關親屬安置後之⽀持服務，僅有政府委辦「社團法⼈台灣兒童暨
家庭扶助基⾦會」於9個縣市進⾏親屬安置服務⽅案。
153. 我們建議：各地⽅政府應訂定兒少親屬安置辦法，確立親屬安置之範疇、
親屬親職教育訓練與⽀持服務等事項。
129 參考趙善如、胡中宜、彭淑華（2021年2⽉），家外安置需求推估及現⾏安置模式執⾏成效評估計劃
期末成果報告。衛⽣福利部社會及家庭署、社團法⼈台灣福利厚⽣學會。⾴8。
130 參考吳書昀、蕭琮琦、劉美芝、邱仕杰、徐宜瑩、賴宏維（2015），親屬安置的困境與爭議性議題之
探究：實務⼯作者的觀點，社會政策與社會⼯作學刊，19(2) ，31-74。
53
回應結論性意⾒第42、45點/國家報告第160點
安置機構權威化教養
154. 部分公私立安置機構因⼈⼒短缺，131機構化教養⽅法下，忽略兒少個別差
異、侵犯兒少隱私、連坐處罰等情事層出不窮，影響安置兒少被妥適照顧之權
益與福祉。132133
155. 我們建議：
(1) 機構設置法規和評鑑辦法須保障住⺠平等且⾃由參與與⾃⾝權益相關之決
策過程。134
(2) 政府應制定政策積極⿎勵機構之教養⽅式以「充權」取代「權威管理」模
式。135
(3) 政府應積極改善機構普遍存在⼈⼒不⾜的問題。136
131 安置機構⼈⼒短缺為我國實務之常態。
132 例如：兒少須集體⾏動，不能隨年齡有各⾃多元的⽣活安排選擇；機構安排太多必須集體參與的活
動，壓縮兒少個⼈時間；機構因擔⼼個別兒少使⽤⼿機會製造⿇煩，全⾯禁⽌使⽤⼿機、上社群網站等、
為了防範風險查閱兒少⼿機，有違兒少隱私權；個別孩⼦犯錯，其他⼈遭到連坐。
133 中華育幼機構兒童關懷協會（CCSA）2019年CRC兒少培⼒團體- 結論性意⾒後續⾏動表建議報告、
2020年CRC兒少培⼒團體--安置兒少試擬兒少報告；陳旺德（2017年11⽉15⽇），我在育幼院的13年：
體驗多年貧窮、恥感和標籤之後 https://www.twreporter.org/a/opinion-childrens-home-years
；黨⼀馨（2020年3⽉10⽇），安置機構參訪成年院⽣告⽩：我的家不像家，只是包裝過的表演。
https://npost.tw/archives/54372；林昱瑄、陳旺德、陳伯偉（2021年4⽉20⽇），「感恩惜福」錯了
嗎？育幼院教養⽂化如何⽣產院⽣的階級恥感，https://reurl.cc/zW1bzy。
134 不僅在「形式上」設計參與的機制（如家庭會議），還得讓兒少有機會為⾃⼰想過的⽣活提意⾒、獲
回應及做決定。機構應讓服務使⽤者充分參與跟⾃⾝權益有關的決策過程，不能以「教養」之名⾏「幼稚
化」之實，或是為了便於管理，犧牲兒少的基本⼈權。（引⾃陳旺德、陳伯偉、林昱瑄 〈培⼒還是侷限？
—兒少安置機構、慣習型塑與階級效應〉。臺⼤社會⼯作學刊，42，1-55。⾴46。）
135 安置機構應培育服務使⽤者獲得掌控與⾃⾝相關事務的⼒量，以提升個⼈⾝⼼健康與組織⽣活品質。
（引⾃陳旺德、陳伯偉、林昱瑄 〈培⼒還是侷限？—兒少安置機構、慣習型塑與階級效應〉。臺⼤社會
⼯作學刊，42，1-55。⾴46。）
136 兒少安置機構之所以會發展出全控管理的教養模式，和其緊縮的⼈⼒資源有關。政府應透過調查研
究，瞭解實際⼈⼒需求，修改相關法規，同時調⾼保育／⽣輔員薪資。（引⾃陳旺德、陳伯偉、林昱瑄
〈培⼒還是侷限？—兒少安置機構、慣習型塑與階級效應〉。臺⼤社會⼯作學刊，42，1-55。⾴46。）
54
回應結論性意⾒第42點/國家報告第163點
安置機構的查核、評鑑制度
156. 兒少安置機構⽇常查核由地⽅政府依法執⾏，137只要符合相關作業規定，
查無違法即為「合格」。然相關法規衍伸之評鑑指標與實地評鑑單⼀，138以
「主觀認定⽅式」評分，難以全⾯了解服務品質、服務輸出狀況及實際服務成
效。
157. 監察院2017年的調查報告指出，評鑑制度使機構淪為「⽂件比賽的機
器」，⼜評鑑後只對「丙等以下」機構強制介入改善，其餘等第並無持續性積
極介入措施。有評鑑為丙等的機構，經6年輔導卻惡化為丁等之例，139且丁等
機構竟「無」退場機制。140
158. 呈上，此單⼀評鑑指標未能顧及「多重困境兒少」照護難題，政府亦無相
應資源⽀持，照顧該等兒少之機構常因意外事件⽽被迫關閉，使照顧難度較
⾼、有特殊照顧需求之兒少被孤立，為社會福利場域的⼈球。141
137 依據《兒童及少年福利與權益保障法》第84條第2項、《私立兒童及少年福利機構設立許可及管理辦
法》第19條，主管機關得施⾏查核⼯作。
138 多為⽂書呈現，輔以評鑑委員實地訪察。
139 參考王婉諭（2020），專欄／兒少安置機構評鑑失效⼒，孩⼦也需要「吹哨者保護」。https://
rightplus.org/2020/06/02/wang-wan-yu-1/。
140參考⾼鳳仙（2018），監察院調查報告（字號：107內調0001）。https://www.cy.gov.tw/
CyBsBoxContent.aspx?n=133&s=5945。
141 參考⾼鳳仙（2018），監察院調查報告（字號：107內調0001）。https://www.cy.gov.tw/
CyBsBoxContent.aspx?n=133&s=5945。
55
159. 我們建議：
(1) 應針對評鑑制度設置中立機關，142繼⽽會同公私立社福機構全⾯修改機構
評鑑辦法與指標，並納入安置兒少或離院⾃立青年參與評鑑機制，⽅能有
效改善評核不彰之問題。
(2) 主管機關針對提升機構整體照顧品質，應有積極性的輔導機制和策略。
(3) 政府應依不同需求之兒少，建構「專精化照顧」福利服務輸送體系，同時
為此編列預算、培育專業⼈⼒、定期開展研究、規劃試辦機構等措施，使
安置機構全⾯具備照顧多重困境兒少的知能。
回應結論性意⾒第42點/國家報告第164點
私立安置機構安置費及專業⼈⼒
160. 依2019「安置盟」統計，會員團體⼩型兒少安置機構143照顧成本每⽉約
7.1萬⾄7.7萬元，公立⼤型機構照顧成本約為每⽉4.7萬⾄5.3萬元，但⽬前政府
核發的兒少安置費⽤約為每⼈每⽉2.1萬元（低於2019年度基本⼯資2.3萬
元）。
161. 呈上，機構專業⼈事費、設施設備費、⽅案相關費⽤皆為「補助制」，主
管機關依各機構服務提供狀況決定補助額度，其中專業⼈事費⽤補助非全額，
且在照顧⼈⼒配置計算上為法規最低標準，難以因應實務現場之需求，亦無關
142 參考林沛君（2017），兒少「表意權」實質意涵的初探－以被安置兒少發聲的權利為中⼼。台灣⼈權
學刊，4(1)，73-96。
143 依據107年度兒童及少年安置及教養機構聯合評鑑作業計畫（2022）定義，⼩型機構是指安置數在25
⼈以下者。
56
注現場照顧者的合理勞動狀態。上述現象為照顧⼈⼒流動率⾼主因之⼀，影響
安置兒少被照顧權益。144
162. 我們建議：
(1) 中央主管機關應主導並積極研究、規劃、擬定符合實務需求的國家替代性
照顧政策。
(2) 兒少安置及專業⼈事費⽤應納入主軸預算，提供⺠間單位合理的經費⽀
持。
回應結論性意⾒第43、44點/國家報告第162、201點
臨界特殊需求兒少
163. 2014-2018年間，約半數縣市具⾝⼼障礙⾝份的家外安置兒少⼈數有增加
趨勢，其中具障礙⾝份證明者成長14.25%；1452020年⺠間單位勵馨兒少安置
家園服務⼈數中，特殊需求兒少比例占43%，常合併多重議題，146且並非全數
領有⼿冊。147對此變化，現⾏法制的⼈⼒照顧比148卻未改變，致機構難維持專
業服務品質。
144 參考⾼鳳仙（110年5⽉27⽇），監察院調查報告（字號：107內調0001）。https://www.cy.gov.tw/
CyBsBoxContent.aspx?n=133&s=5945。葉靜倫（2020年8⽉24⽇），衛福部帶頭罔顧兒童權益
（上）：以「補助」之名合理化「超低價委託」，嚴重損及未來世代⾝⼼健康。https://rightplus.org/
2020/08/24/placement-agency-1/。衛福部帶頭罔顧兒童權益（下）：中央⾃辦全臺最⼤型安置機
構，卻要求⺠間減收、讓⾝⼼障礙孩⼦無處可去。https://rightplus.org/2020/08/24/placement-
agency-2/ , 2017.4.21。有床位沒有⽣輔員，兒少何處去／安置機構的照顧⼈⼒在哪裡？https://
rightplus.org/2017/04/21/placement-1/。低薪、勞動強度⾼，有錢也找不到的⽣輔員／安置機構的照
顧⼈⼒在哪裡？https://rightplus.org/2017/04/21/placement-2/。夜間待命「陪孩⼦睡覺」，究竟算
不算⼯時？／安置機構的照顧⼈⼒在哪裡？https://rightplus.org/2017/04/21/placement-3/。勞資無
法團結，性侵、暴⼒與過勞何時⽌息／安置機構的照顧⼈⼒在哪裡？https://rightplus.org/2017/04/21/
placement-4/。
145 另有少數兒少安置於⾝⼼障礙機構、醫院、護理之家等處所。
146 例如性創傷合併智能障礙、精神障礙等；另外情緒障礙、憂鬱、過動、亞斯等都是常⾒情形。
147 「臨界⼼智障礙青少年」在經過國際健康功能與⾝⼼障礙分類系統（International Classi
cation of
Functioning，ICF）評估後，未達「第⼀類－神經系統構造及精神、⼼智功能」的障礙標準，無法領取⾝
⼼障礙證明，但在學習和⽣活能⼒等⽅⾯，卻⼜較常⼈低落。
148 參⾒《兒童及少年福利機構設置標準》第22-1、22-2、22-3條。
57
fi
164. 我們建議：
(1) 政府應對於「專精化團隊」服務介入或機構運作，投入相應的資源協助，
提升服務品質。
(2) 針對「臨界⼼智障礙149」兒少應設立相關照顧措施規定與照顧⼈⼒比。
(3) 針對特殊需求兒少依照其⽣理、⼼理情緒與照顧環境等三⾯向進⾏分類，
並依分類標準補助特殊需求個案，也透過分級分類制度媒合合適機構。
回應結論性意⾒第48點/國家報告第160、165點
安置轉換率
165. 我國在院的安置兒少確實存在⾼安置轉換的現象，根據2019年調查，
57.35%的安置孩⼦⾄少有1次以上轉換安置的經驗，150與專家指出應避免頻繁
轉換以培養兒少穩定健全依附關係相悖。151
166. 兒少轉換安置機構是原機構無法滿⾜該兒少的照顧需求，152可能肇因於公
部⾨或機構本⾝。153⽬前機構遭遇此困境，皆須機構⾃⾏處理，少有官⽅正式
的協助介入。是故當照顧能量無法負荷兒少需求時，常以轉換照顧機構為最後
之消極⼿段，或以結案處理，在在影響兒少的⾃我認同、⼈際關係及未來⽣涯
發展。154
149 Borderline mental retardation.
150 引⾃趙善如、胡中宜、彭淑華（2021年2⽉），家外安置需求推估及現⾏安置模式執⾏成效評估計劃
期末成果報告。衛⽣福利部社會及家庭署、社團法⼈台灣福利厚⽣學會。⾴96。
151 引⾃趙善如、胡中宜、彭淑華（2021年2⽉），家外安置需求推估及現⾏安置模式執⾏成效評估計劃期
末成果報告。衛⽣福利部社會及家庭署、社團法⼈台灣福利厚⽣學會。⾴22。
152 包含：兒少不適狀況出現、特殊議題（如性議題、⾃傷傷⼈議題）、極端⾏為或因教育、醫療、其他
照顧需求無法滿⾜等原因導致須轉換安置機構。
153 國家替代性照顧政策資源布建、機構本⾝服務能量、機構照顧團體動⼒及資源網絡協調使⽤能⼒等。
154參考黨⼀馨（2017），「不乖，就不值得被愛嗎？」那些年被安置，⼜被拋開的少女們。https://
npost.tw/archives/36816。
58
167. 我們建議：
(1) 政府應盤點各地⽅安置資源，確保安置資源能滿⾜在地安置兒少的多元需
求。
(2) 編列預算、廣開處理多重困境議題的專業知能培訓課程，提升安置機構⼯
作⼈員服務質量。
(3) 釐清轉換安置問題根源，降低轉換安置所帶來的負向影響。
(4) 轉換安置的過程都應全⾯落實尊重兒少的表意權與知情權。
回應結論性意⾒第58、59點/國家報告第193、194、195點
特殊需求兒少受教權
168. 各學校對安置機構兒少接受度不同，就學歧視，包含被迫跨區就讀、未入
學先開會、動輒要求帶回機構等難以避免。儘管監察院曾糾正部分地⽅教育
處，但因特教或⼀般教育預算並未因跨區安置⽽移轉⾄所跨地區，155校⽅仍常
以輔導資源缺乏、特教⼈⼒不夠、教師能⼒不⾜等理由拒絕安置機構兒少。
169. 我們建議： 教育部對地⽅教育事務156應依法負監督責任，督促、協助地
⽅主管機關提⾼對弱勢與特殊需求兒少教育的知能與資源預算。
155 例如兒少被跨區安置⾄苗栗縣，苗栗縣政府並不會收到該安置兒少的教育預算。⼜依衛福部設置標
準，跨區⾄偏鄉的比例只會漸⾼，因此學校、機構與地⽅政府，其實都是既有制度下的「被害⼈」。
156 參考《教育基本法》第9條。
59
回應結論性意⾒第49點/國家報告第168、169點
安置後⾃立服務
170. 政府雖已依⺠間團體倡議與離院青少需求編列預算辦理《提升少年⾃立⽣
活適應協助服務量能計畫》（下稱⾃立⽅案），然制度仍將安置服務與⾃立服
務切割，並委由不同單位提供服務，不僅未能滿⾜替代性照顧體系兒少⾃立轉
銜準備需求，157國家預算編列、專業⼈⼒配置等⾯向明顯匱乏，恐阻礙離開安
置處所的青少年接受⾃立服務之權益。158
171. 我們建議：
(1) 替代性照顧場域應提前開啟⾃立服務評估機制，重視關係創傷議題的服務
設計，以階段性共案合作模式取代分段式服務。159
(2) 國家應修改法規、挹注資源，⽀持原安置處所充分落實離院後續追蹤及⾃
立服務，協助離院青年正向⾃立、穩定復歸社會，甚或翻轉⽣涯。160
(3) ⾃立⽅案和⾃立宿舍均應補助⾜額的專業⼈⼒，才能促進⺠間單位提供更
完善且具實質效能的⾃立服務。
(4) ⾃立⽅案應依⺠間單位的服務經驗，每年滾動式調整⽅案補助總額、⾃立
少年⽣活需求補助項⽬及補助額度。
157 據勵馨基⾦會2020年安置兒少結案原因及狀態統計，30%兒少需要返家、26%則有⾃立⽣活之需求。
卻可能發現家庭⼯作並未完整進⾏重建或修復、⾃立資源不⾜或需要⾯臨不同社⼯，導致個案常感到焦
慮、不安。
158 以中華育幼機構兒童關懷協會（CCSA）承辦全國多區⾃立服務業務為例，發現政策制度存在若⼲問
題，包括：政府補助專業⼈⼒員額不⾜、直接提供⾃立少年的補助款明顯不⾜、政府補助⾃立少年⽣活需
求的核可項⽬無法滿⾜現狀、⾃立宿舍建置資源補助不⾜、⾃立⽅案整案補助⾦額鮮少隨⼈事費⽤提升⽽
調整，影響⾃立少年的被服務品質與被補助款項。
159 國內研究已證明重視創傷議題的⾃立⽅案確實對孩⼦有正向影響（陳怡芳、胡中宜、邱郁茹、李淑
沛，2013；張茜雲、胡中宜，2018；胡中宜，2020）。
160 國內外學者均指出離開家外安置青年確實⾯臨較⾼的社會排除風險（Stein, 2012: 156），尤其低教育
表現、⾼失業率、職業準備能⼒不⾜、成為遊蕩者或年輕⽗⺟的機率⾼、依賴政府補助度⽇、⾼寂寞感、
⾝⼼健康差、接受精神診療服務、酒精與藥物濫⽤或是犯罪⾏為等風險（Dixon & Stein, 2003,
2005;Mendes & Moslehuddin, 2004; Stein, 2004, 2012; Stein & Munro, 2008；胡中宜，2020），實
需完善的⾃立服務⽀持青年創傷復原並穩定健康賦歸社會。
60
(5) 國家應⾄少每3年推出⾃立服務需求與成效評估報告，以利調整⾃立⽅案
政策，並作為公私立單位合作推動⾃立服務的對話基礎。
回應結論性意⾒第50點/國家報告第172點
特殊需求兒少收養家庭的福利⽀持
172. 國內各項福利對收養特需兒不夠友善161為國內收養⼈無法接受特需兒的主
因之⼀。162⼀般收養家庭需許多後續⽀持，更遑論特需兒童收養家庭，163164因
社會福利的⽀持不⾜，導致特需兒難以媒合國內收養，只能尋求跨國收養。
173. 我們建議：
(1) 育兒相關之勞政、社政福利中，收養家庭的計算標準不應與⼀般家庭相
同，應採更細膩之規定。例如從「出⽣開始計算⾄3歲」，改成「從被收
養或先⾏共同⽣活期開始計算2⾄3年」。165
(2) 針對特需兒甚⾄整體收養家庭，政府應提供更充⾜的全⾯性後續⽀持，包
括經濟、醫療、教育、諮商等各⽅⾯協助。
161 例如收養2歲以上兒童，在先⾏共同⽣活期間無法申請「育兒津貼」，僅能請領「育嬰假」及「留職停
薪津貼」；⾄於對⾝⼼障礙兒少的⽀持福利，更是嚴重不⾜。
162 雖然政府往「⿎勵機構深化特需兒及收養後家庭⽀持服務」⽅向發展並設立補助計畫，但⺠間單位勵
馨調查國內收養⼈無法接受特需兒之原因，仍以「社會福利環境不友善」及「傳統⽂化觀念影響」為主，
⽽這並非光靠收出養媒合服務機構就可以改善的。
163 台北、⾼雄兩市調查發現：收養家庭需要許多後續相關⽀持，主要兩項為⼦女教育與經濟扶助，諮詢
輔導也占超過三分之⼀；其中更發現，照顧特需兒的家庭，因為被收養兒的不同，在許多⽅⾯的需求皆⾼
於⼀般收養家庭。
164 參考臺北市兒童及少年收出養服務資源中⼼（2013）。臺北市被收養⼈⽣活狀況及收養家庭福利與服
務需求調查報告。⾼雄市兒童及少年收出養服務資源中⼼（2014）。⾼雄市被收養⼈⽣活狀況及收養家
庭福利與服務需求調查報告。李佳欣、邱靖惠、⽩麗芳（2017）。北⾼兩市被收養兒童⽣活適應及福利
需求分析。社區發展季刊，159，278-290。
165 參考賴⽉蜜（2018）。兒童及少年跨國境出養原因及因應策略探討研究。衛⽣福利部社會及家庭署委
託研究。
61
回應結論性意⾒第50點
政府監看國內與跨國收出養
174. 收出養法令規定須符合⼦女最佳利益、國內收養優先及各項評估指標，166
但未明訂實際操作標準，167導致實務上仍從「收出養雙⽅」立場出發，有與兒
童最佳利益衝突之嫌。168
175. 我們建議：
(1) 政府並應重新檢視兒少保護整體性規劃，加強⼀般家庭⽀持⽅案、國家安
置照顧之品質、以及出養⼈與出養家庭協助，以協助家庭重整，進⽽增加
留養可能、減少收養可能。
(2) 政府應以更積極有效的媒體通路或模式宣導「收出養的正確觀念」，並定
期調查宣導成效，以改變傳統收養觀念。
(3) 同結論性意⾒第50點次之建議，政府應對國內收養家庭提供更全⾯性的⽀
持。
166 例如：出養必要性、收養適任性等。
167 例如：出養必養性的評估，是從兒少還是出養⼈的⾓度出發？
168 ⺠間單位於服務轉介出養兒少中，了解本⼈是不願意被出養。
62
第七章 ⾝⼼障礙、基本健康與福利
回應國家報告第187、246點
COVID-19疫情下的替代性照顧
補助與協助
176. 政府雖以「防疫停課間每⼈每⽉發給1,500元照顧加給」補助機構，169但
換算每天每童僅補助50元，170相當不⾜。⼜寄養家庭除與⼀般家庭無異之防疫
照顧假外，無其它協助。
177. 學校停⽌到校上課，安置單位在未得到任何指引下，與被安置兒少⼀起進
入停課不停學的線上學習環境，且機構多⾯臨硬體設施設備不⾜，特殊需求兒
少所需之專業輔助器材與專業⼈員更是難取得。171
補助請領審核機制
178. 政府雖提供兒童家庭防疫補貼，然因請領補貼對「請領家長」⾝份無審核
機制，只需「家長⾝分證件字號」與「兒童健保卡卡號」即可登記領取，致不
負實際照顧兒少責任之被安置兒少家長或監護⼈將補助領走，如前次「振興三
倍券」發放經驗，「未曾關⼼過兒少的家長」在領完三倍券後消失，補助難以
確實⽤於兒少。⽽真正照顧兒少之安置單位成本增加，卻無法領取相關補貼。
169 參考衛福部「家外安置兒少嚴重特殊傳染性肺炎防疫停課期間照顧加給補助作業規定」。
170 參考安置盟（2021年7⽉17⽇），⼀天⼀童僅補助50元 安置盟喊⼀⼈⼀信給總統「不要犧牲安置兒
少！」，https://tw.appledaily.com/life/20210717/DTRVSSE465H6NPQT6LFGUBILGQ/。
171 參考臺灣兒童權益聯盟（2021年6⽉23⽇），疫情嚴峻，莫讓替代性照顧中的兒少在夏⽇⾯對權益寒
冬聲明稿。https://www.facebook.com/crat999/posts/1719506401577362。
63
政策及配套措施
179. 疫情中機構⼯作⼈員業務量遽增，⼈⼒配置緊張；172兒少全⽇⽣活在安置
機構內也凸顯活動空間不⾜；另外，離開安置體系的「⾃立青少年」同樣⾯臨
⽀持網絡薄弱的困境，因⼤多從事服務業⼯作，受疫情影響⾯臨被減班甚⾄被
解雇，造成就業與經濟安全問題，影響⼼理健康，同時各級學校遠距教學，在
資源不⾜的狀態下，⾃立青少年難以獲得有品質的線上教育。173
180. 我們建議：
(1) 各國疫情比台灣早⼀年爆發，政府應早有借鏡以規劃完善的疫情紓困⽅
案，提供委託安置單位及⾃立青少年補助或資源，協助維持兒少⽣活品質
與受教權利。
(2) 疫情期間政府應重視兒少⼼理狀況，提供被安置兒少及⾃立青少年⼼理諮
詢資源。
回應國家報告第192點
特教⽣鑑定制度
181. 各縣市依法174培訓鑑定安置系統與⼼評⼈員，然其內容不⼀致，品質與鑑定系統
亦參差不⿑，亦有部分縣市開放「非」⼼理評鑑相關科系之⼈員從事⼼理衡鑑⼯作之
情狀。 ⼜特教育學校依法得「⾃⾏」招⽣，部分家長選擇不進入縣市政府的鑑定安置
流程，讓孩⼦就讀特殊教育學校，入學後才發現特教學校未能符合兒童學習需求。
182. 我們建議：
(1) 建立「全國統⼀鑑定安置系統」與「⼈員培訓內容」。
172 因應三級警戒分艙分流政策調整⼯作流程。
173 參考陳旺德（2021年6⽉22⽇），【抗疫群象－⾃立青少年篇】課業、⾝⼼、收入、居所都岌岌可危，
⾃立⽣活難⾃立。https://reurl.cc/52vrxq。
174 《教育部特殊教育學⽣鑑定及就學輔導會組織及運作辦法》。
64
(2) 應確保從兩歲開始之幼兒⾄各教育階段之學⽣皆經「特殊教育學⽣鑑定及
就學輔導會」專業評估及安置於適合之場所。
特殊⽣之⼼評⼈員
183. 特教⼼評⼈員屬特殊教育團隊之專業⼈員，現⾏特殊⽣鑑定之⼼理評量⼯
作卻由「特教教師」兼任。特教教師專業應回歸教育，⽽非兼職⼼理評量⼈
員，此實務做法使特教⽣之受教權與健康權雙雙受損。
回應結論性意⾒第75點/國家報告第192、193與194點
視障兒少之特殊教育⽀持
184. 經⺠間團體訪談調查視障家長及視障⽣之意⾒，他們多指出視障⽣在就讀
普通學校，常遇特教資源或⼈⼒不⾜的問題。175
185. 我們建議：
(1) 應依相關規定，176朝社區化、融合式之⽅向發展。
(2) 對於就讀普通學校之視障⽣（含全盲⽣與低視⼒⽣），應補助各級學校提
供充⾜之「點字」或「⼤字版教學資料」，及提供充⾜之「教師助理⼈
員」，協助視障⽣能融入⼀般學校場域與教學環境。
回應國家報告第193點
融合教育特教⽣
175 主要包括有補充教材、考試卷（含⼩考）或學習單，未必全部都能提供點字版或⼤字版。在課堂⼈⼒
協助⽅⾯，也常遇有教師助理員時數不⾜，需額外⼈⼒⽀持的課程，如體育課、美勞課或實驗課等，無法
每堂課都能有助理員協助等。
176《特殊教育法》第18條、第27條、以及第33條規定。
65
186. 數據上就讀特殊教育學校學⽣比率下降，然實際上進入融合教育之⾝⼼障
礙學⽣所得之資源不⾜，既便⽬前特殊教育團隊的專業⼈員種類眾多，177但特
教⽣可申請的時數普遍不⾜；⼜「特教助理員」為協助普通學校實施特殊教育
之重要⼈員，但多以基本⼯資招聘且為⼀年⼀聘，導致⼈員流動率⾼，不利學
⽣適應普通學校的⽣活與學習。
⾝⼼障礙兒少跨區就學
187. ⽬前融合教育就學狀況未能完全落實，連續性安置178依然是⾝⼼障礙學⽣接受教
育的型態。對於需要安置的特教班兒少，若所屬⾏政區當中未設置特教班，學⽣便需
跨區就讀，或有特定學校之特殊教育辦理情形名聲良好，部分⾝⼼障礙兒少被迫從⼩
住宿於外縣市，在非⾃願的情況下進⾏「機構式」團體⽣活。
回應結論性意⾒第56、57點/國家報告第193、194點
不當對待特教⽣
188. 特教教師與相關教職員不當對待特教⽣之事件屢屢發⽣，如新⽵市建功國
⼩特教班教師使⽤辣椒⽔訓練特教⽣吐⽔，179 新⽵縣東興國⼩附幼教師為制⽌
5歲特教⽣搶玩具，將學童壓制在地。 180且遭不當對待之特殊⽣家長於事件發
⽣後常無法獲得適當之⽀持服務。
189. 我們建議：
(1) 應加強特教教師與相關教職員對特教⽣之互動與教導專業知能。
177 包含職能治療師、諮商⼼理師、語⾔治療師、聽⼒師……等。
178 指普通班接受資源班服務、集中式特教班、特殊教育學校。
179 ⼈本教育基⾦會。那個把辣椒⽔當作教具的特教老師。https://hef.org.tw/epilogue-5/。
180 靠北惡質幼兒園。
https://m.facebook.com/story.php?story_fbid=699485397301391&id=201226800460589。
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(2) 應提供⽗⺟或實際照顧者遇不當對待事件之⾏政、法律與⼼理⽀持等服務
與協助。
回應結論性意⾒第58點
特殊教材轉譯經費
190. 政府應提供就讀普通班之特教⽣「適性教材」之教科書，然實務上教師須
⾃⾏準備補充教材。⼜補充教材進⾏加⼯轉譯以利特教⽣使⽤，各縣市政府對
其再加⼯製作費補助標準不⼀，部份縣市甚⾄完全沒有。
191. 我們建議：政府應實際了解教材實際需求與使⽤狀況，並相對應增列「補
充教材」之經費預算。
回應結論性意⾒第58點(1)
⾝⼼障礙兒少學前受教權
192.特殊教育法規定⾝⼼障礙兒童特殊教育之實施應⾃⼆歲開始181，實際上各
縣市做法不⼀。182且地⽅學前特殊教育資源不⾜，新⽵縣學前階段⾝⼼障礙學
⽣⼈數為589⼈，全縣只有3班集中式特教班與14班不分類巡迴輔導班183，公立
幼兒園名額明顯不⾜，無法安置所有想就學的學齡前特殊需求學⽣。
193. 我們建議：
(1) 政府應盤點各縣市施⾏狀況
(2) 增加學齡前2歲專班鑑定安置名額，保障⾝⼼障礙兒少受教權。
181 《特殊教育法》第⼆⼗三條第⼆項：為推展⾝⼼障礙兒童之早期療育，其特殊教育之實施，應⾃⼆歲
開始。
182 以新⽵縣為例，學前特殊教育鑑定與公幼優先安置的資格為三歲。新⽵縣110學年度學前特殊教育鑑定
暨公幼優先安置期程說明簡章。https://serc.hcc.edu.tw/var/ le/145/1145/img/157153255.jpg
183 新⽵縣政府(2020，9⽉)。新⽵縣108學年度特殊教育統計年報。https://serc.hcc.edu.tw/var/ le/
145/1145/img/1572/349079661.pdf
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fi
fi
回應國家報告第200點
⾝⼼障礙兒少⽂化參與權
194.由⽂化部主辦之古蹟歷史建築紀念建築管理維護評鑑，審查指標並未納入
無障礙設施。⼜國內⼤多數古蹟及歷史建築，並未積極建設無障礙環境設施設
備，或有園區範圍內包含無障礙設施設備，建築物主體、導覽...等卻不符合
「無障礙」之可及性、通⽤設計、合理調整等原則。除造成⾝障成年⼈無法順
利參與⽂化活動外184，此情形也會因⾝障兒少被拒參觀⽽造成同儕間的⽂化落
差。
195.我們建議：政府應規劃如何逐步改善古蹟、歷史建築的無障礙環境，促進
⾝⼼障礙兒少的⽂化參與權利，具體做法包含：修法、參考成功經驗、完整可
⾏性評估、建置替代措施以及執⾏，並將BOT契約與評鑑納入無障礙/可及性指
標。185
回應結論性意⾒第59點
視障幼兒學齡前融合教育
196.視障幼兒欲進入⼀般幼兒園接受融合教育多受阻礙。經訪談視障幼兒之家
長，家長表⽰曾申請進入⼀般幼兒園遭園⽅歧視直接拒絕，或以無⾜夠師資、
助理⼈員或資源可教導視障幼兒拒絕幼兒入學，甚⾄向家長提出全程陪同幼兒
上課等要求，使視障幼兒無法就近就讀社區幼兒園，最後只能選擇進入特教學
校體系之幼兒部。186
184 國內更曾發⽣創作者的作品展覽於場館內，卻因無障礙環境不完善以⾄於創作者本⼈無法參觀⾃⼰作
品的展覽情形。
185 可修訂之法令規範如「既有公共建築物無障礙設施替代改善計畫作業程序及認定原則」、《促進⺠間
參與公共建設法》。
186 查教育部特殊教育通報網，109年視障幼兒接受學前特教服務共42⼈，其中30⼈於⼀般幼兒園分別接
受巡迴輔導或普通班特教⽅案，剩餘12⼈就讀集中式特教班，顯⽰接受學前特教服務之視障幼兒有28.6%
無法順利進入⼀般幼兒園就學。
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197.我們建議為使公私立⼀般幼兒園，能招收視障幼兒就讀，教育主管機關
應：
(1) 針對幼教師資持續辦理特教相關訓練，提⾼幼教師資特教相關知能。
(2) 補助幼兒園增聘教師助理⼈員，協助視障幼兒融入班級課程。
(3) 透過視障教育巡迴輔導老師，針對視障幼兒提供點字教學，協助視障幼兒
銜接國⼩教育。
長期安置住宿型機構之特殊兒少
198. 經常長期安置住宿型機構且⾃主⽣活功能較低之⾝⼼障礙兒少，此類機構
因⼈⼒短缺導致教養品質不佳、缺乏個別化適應性教育。私⼈安養機構更有將
兒少長期四肢約束在床上之例。
199. 我們建議：
(1) 政府應提供資源⽀持相關機構的專業知能。
(2) 要求相關機構發展對應特殊兒少需求與照顧策略。
回應CRC公約第五條
司法⾏政程序中⾝⼼障礙兒少知情表意權
200. ⾝⼼障礙兒少於司法或⾏政程序中，未有如同性侵害案件中專業中介者之
「司法詢問員」187協助兒少，損害兒少知情與表意權。⼈本基⾦會於特教學校
兒虐案法庭觀察中發現，特殊兒少的需求被忽略。例如：詢問過程中檢察官⽤
詞艱澀、問句過長，詢問時間長達2⼩時，還須接受加害老師的詢問。雖有社
⼯陪伴兒少，但社⼯無相關專業能⼒轉譯資訊以協助兒少接收、瞭解以及回
187 《性侵害犯罪防治法》第15-1條，兒童或⼼智障礙之性侵害被害⼈於偵查或審判階段，經司法警察、
司法警察官、檢察事務官、檢察官或法官認有必要時，應由具相關專業⼈⼠在場協助詢（訊）問。.....當
事⼈、代理⼈或辯護⼈詰問兒童或⼼智障礙之性侵害被害⼈時，準⽤前⼆項之規定。
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應。188⾝⼼障礙兒少難以在法庭上⾏使表意權，也因無專業中介者使兒少在法
庭上再次受到傷害。
201.我們建議：
(1) 於司法、⾏政程序中，應提供不同專業之中介者，以協助⾝⼼障礙兒少與
處理⼈員互動。189
(2) 對⾝⼼障礙兒少進⾏學⽣申訴、⾏政救濟等程序，教育部應研擬知情與表
意協助之制度。
(3) 法務部應於⾝⼼障礙兒少進⾏告訴、告發、訴訟或非訟等程序，研擬知情
與表意協助之制度，且矯正學校校內相關程序，也應⼀併考量。
回應公約第2、6、24條
參與體育活動的性別落差
202. 13-17歲之青少女「規律運動比率」遠低於同齡青少男，差異達16.8個百
分點。190主管機關已意識到因運動場域中對陽剛氣質的崇拜、性別刻板印象與
性別歧視，為阻卻女性參與運動主要原因之⼀，191但仍未有實質應對作為。此
外，以培育專業運動競技員為⽬標的體育班，女性學⽣占比，更是隨教育階段
上升⽽減少。192
188 財團法⼈⼈本教育⽂教基⾦會(2021)，特教學校兒虐案法庭觀察。https://hef.org.tw/
2021_work_1_4/
189 締約國有義務確保在表達意⾒⽅⾯有困難的兒童及其權利得到落實。例如:應為⾝⼼障礙兒童⽽有各種
機制，使其能夠利⽤任何必要的交流模式，以便於其表達意⾒。(CRC/C/GC/12 para. 21)
190 2019年13-17歲女性有規律運動習慣者占39.7%，13-17歲男性有規律有運動習慣者占56.5%，相差
16.8個百分點。⾏政院性別平等處（2021年1⽉）。2021年性別圖像。
191 教育部體育署（2019）。推廣女性參與體育運動⽩⽪書。
192 依據教育部體育署《108學年度學校體育統計年報》（2021），108學年度國⼩體育班女性學⽣比例為
37.62%，國中為29.6%，⾼中職為26.74%。
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203.我們建議：
(1) 體育課程內容應包含多元類型之運動、休閒項⽬。
(2) 應積極提升體育教師、運動競技裁判、教練等⼈員之性別平等意識，提供
性別友善運動學習環境。
回應結論性意⾒第60-63點/國家報告第70-72點
兒少⼼理諮商權
204. 兒少⾃我傷害通報案量未⾒明顯改善，193經主管機關調查研究，家庭議題
已為國內兒少⾃傷或⾃殺之三⼤主因之⼀，194故兒少向外尋求資源時，政府應
肯認兒少具備充分理解與判斷之能⼒，不應再將同意權給予「事件相對
⼈」。195並應以兒少最佳利益、⽣長與⽣存權以及隱私權為考量，⽽非粗糙立
法，賦予法定代理⼈同意權，決定是否給予兒少⼼理諮商服務。
205. 我們建議：
(1) 不應將取得法定代理⼈同意視為是否提供⼼理諮商服務之必要條件；且應
更著重於⼼理諮商師之專業判斷，在個案中依據兒少最佳利益、兒少⽣長
⽣存權，與兒少⾃主決定權，裁量是否提供服務。
193 根據⾃殺防治學會與⾃殺防治中⼼於2016⾄2018年所做之『家暴及兒少事件中相對⼈及被害⼈⾃殺通
報件數及百分比』統計，2018年有1277名兒少相對⼈及1829名兒少被害⼈登記⾃殺通報在案。此外，根
據諮商⼼理師公會全國聯合會於疫情期間針對會內⼼理師抽樣調查，結果顯⽰進入全國三級警戒以後，
278名⼼理師負責的個案中，因疫情⽽中斷諮商的⼈數達5753位，⽽在⽬前執業⼼理師約有2900位的情
況下，推估中斷諮商的總⼈數，約末在6萬上下；⽽全聯會當中約有6成會員在各級學校⼯作，推估受疫
情影響⽽中斷諮商的學⽣超過有3萬⼈。
194 根據教育部『107⾄108校園學⽣⾃我傷害事件之分析及防治策略報告』，學⽣⾃殺難以單⼀歸因，通
常被通報為多重原因，最常⾒的可能原因為（1）精神疾病（41.9%）、（2）家庭關係（33%）、（3）
感情問題（24.6%）。
195 雖然《⺠法》第77條但書規定，限制⾏為能⼒⼈依其年齡及⾝份，為⽇常⽣活所必需之為意思表⽰不
須經法定代理⼈同意；然《⼼理師法》第19條為⺠法之特別法，依特別法優於普通法之原則，限制⾏為能
⼒⼈所為之諮商⾏為，應得其法定代理⼈同意始得為之。
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(2) 通訊⼼理諮商服務規範應精緻修法，將年齡限制下修，給予⼼理諮商師視
情況彈性調整之空間。196
回應結論性意⾒第63點/國家報告第219點
LGBTs兒少預防性⼼理⽀持資源
206.於台灣同志諮詢熱線協會LGBTs兒少⽀持團體中，常有兒少受家庭排斥、
處於充滿敵意校園、處在缺乏⽀持的環境，對⼼理健康造成負⾯影響。197有關
兒少「⼼理健康」與「⾃殺」之數據，未針對兒少性別、性傾向、性別認同等
個⼈特質進⾏分類，致無法全⾯瞭解LGBTs兒少⼼理健康狀況。根據熱線協會
調查，校內「性平議題學⽣社團」可作為提供LGBTs學⽣同儕⽀持的⼼理健康
資源，但調查中僅有8.1%LGBTs兒少表⽰所屬學校設有該類學⽣社團。198
207. 我們建議：
(1) 政府收集兒少⼼理健康與⾃殺之數據時，應針對兒少性別、性傾向、性別
認同等個⼈特質進⾏分類，以利瞭解需要⽀持之族群。
(2) 教育主管機關應提出具體政策與措施提供LGBTs兒少⼼理⽀持資源，在⽀
持系統未建置完成前，應積極保障學⽣在⾼中職以下學校校內，成立討論
性別平等議題的學⽣社團，作為積極預防性的LGBTs學⽣⼼理健康政策。
回應結論性意⾒第67點/國家報告第226點(b)
性教育課程與LGBT兒少性健康權
196 《⼼理師執⾏通訊⼼理諮商業務核准作業參考原則》第五點規定，執⾏通訊⼼裡諮商之對象，應為⼗
八歲以上且排除精神官能症、精神病或腦部⼼智功能不全患者。
197 LGBT遭遇性別暴⼒之⽣命階段，以國中階段最多（67.1%）、其次⾼中職階段（46.9%）、第三國⼩
階段（50.4%）。施暴者則以學校學⽣66%最多、第⼆是家⼈44.8%、第三學校師長30%。造成的傷害
或影響，最⾼兩者便是⼼理健康層⾯：⼼理86.6%、⾃我（價值／認同／⾃尊）81%。勵馨社會福利事業
基⾦會（2019）。多元性別族群之性別暴⼒網路調查。https://www.goh.org.tw/tc/p2-
news_detail.asp?PKey=aBVMaB31aBYWaB33aBHIaB37aBSLaB39
198台灣同志諮詢熱線協會（2020）。2020台灣同志（LGBTQ+）學⽣校園經驗調查報告。https://
hotline.org.tw/news/3136
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208. 熱線LGBT兒少⽀持團體中的兒少表⽰，學校的性教育課程忽略、排除多
元性別教育，課程內容完全以異性戀為常規。199在缺乏正確性健康資訊管道的
情況下，服務個案中有多名LGBT兒少因不安全性⾏為⽽感染性病或愛滋。
209. 我們建議：教育主管機關應將多元性健康議題納入《108課綱》教學領
域，發展可供教師使⽤的教材資源與教案⽰例；並針對性教育領域教師進⾏
LGBT學⽣性健康議題的進修訓練，推動包含LGBT的全⾯性性教育內涵。
回應結論性意⾒第65-67點/國家報告第226點(b)
兒少受教權（性教育）
210. 有教師在確認學⽣的需求，並取得家長同意後，於課堂中講授保險套與安
全性⾏為的課程，卻遭校外保守團體⼈⼠提告「公然猥褻」；200亦有學校因舉
辦以「性教育」為主題的家長親職教育講座，遭保守團體⾄校⾨⼝舉布條抗
議。此類現象造成教師實施性教育與性別平等教育時承受壓⼒，教學因⽽趨向
保守，在課堂上避談保險套、同志等主題，影響兒少受教權。
211. 我們建議：
(1) 教育主管機關應建立指引⽅針、提供教師培訓，以確保學校課程可為學⽣
提供以學⽣為主體的性教育。
(2) 國內就性教育及性別平等教育的衝突，教育主管機關應積極進⾏社會溝
通，澄清錯誤資訊。
199 台灣同志諮詢熱線協會（2020）。2020台灣同志（LGBTQ+）學⽣校園經驗調查報告。https://
hotline.org.tw/news/3136
200 吳中傑（2019年1⽉17⽇），在課堂推性教育，卻被保守團體「獵殺」...這場性平運動，國⼩老師劉育
豪為南部孩⼦堅持走下去。商業週刊。https://www.businessweekly.com.tw/careers/indep/37648
73
回應國家報告第227、228點
兒少性主體性與性⾃主權
212. 衛福部架設之衛教網站，內容資訊將兒少性議題⾼度問題化，此保護主義
更弱化兒少性⾃主權與主體性。201政府未提供教師有關性教育之完整的系統性
培訓，202導致教育現場授課內容被限縮，或充斥教師「個⼈價值觀」，造成性
教育課綱內涵未能被落實、兒少性⾃主權被忽視。
213. 我們建議：
(1) 政府在性教育課綱之落實與師資之培訓，應具備賦權觀點。203
(2) 應制定性教育施⾏評估機制，確保性教育授課內容及態度能回應學⽣需
求、達到賦權。
(3) 為完備性平法之缺失，須進修對象建議納入「家長」。政府撥經費督各校
辦理「家長場性教育課程」，營造友善氣氛使教師專業被重視、學⽣權益
受保障。
回應國家報告第229點
未成年懷孕女孩受教權與年輕家長之⼦女⽣存權
214. 台灣每年約有2000多名女性未成年⽣育，《性平法》雖明⽂保障懷孕學
⽣之受教權，但仍有許多女學⽣因懷孕、中⽌懷孕遭霸凌與⾝⼼困境，或⽣育
201 例如暗⽰同性關係等等只是「尋求刺激與挑戰，失去性⾏為真正的意涵與愛的基礎」。參⾒https://
health99.hpa.gov.tw/article/18395
202 學⽣和教師都認為性教育授課時間嚴重不⾜，未受良好培訓、缺乏教材更為老師認為的困境前兩名。
郭麗安、陳宇平、王⼤維、劉安真、張歆祐（2017）。青少年性教育與情感教育內涵之探究：教師、學
⽣與家長觀點之比較。學⽣事務與輔導，56，28-49。
203 ⽅剛（2013）。賦權型性教育：理論、內容與⽅法初探。性學研究，卷4。
74
後無⾜夠托育資源⽽休學，204現有學校設施與社會福利設計無法接應年輕⽗⺟
兼顧學業與托育之需求。年輕⽗⺟缺乏照顧⼦女的知識與能⼒，同時⾯對不堪
負荷的托育、居住、經濟、教育……等壓⼒，造成虐待兒童甚⾄攜⼦⾃殺等多
重危害兒童⽣存權的事件。205
215.我們建議：
(1) 落實性教育與情感關係教育：性教育除了⽣理發育、避孕知識，應加強性
⾏為與權⼒關係、情感關係等⾯向。
(2) 制訂年輕⽗⺟就學與⼦女照顧計畫：整合家庭親職教育、托育、衛教、社
福等中長期制度，將年輕⽗⺟留在學校系統中，利於掌握其⼦女安全。計
畫應以完成學業，能求職⾃立照顧⼦女為⽬標。
回應結論性意⾒第68點
氣候變遷
216. 現⾏課綱雖已有環境、海洋、能源與防災教育等課程規劃，但尚非強制必
修，且未整合成「氣候變遷」與「調適教育」，無以使兒少明瞭⾃⾝⾯對的危
機。此外，台灣的溫室氣體減量⽬標，僅達2050國際淨零⽬標的⼀半，在逐漸
常態化的極端天氣下，農業、健康、交通，甚⾄能源安全都受到衝擊，206⼜因
204 根據教育部統計，107學年度（2018年-2019年）接獲通報的懷孕學⽣有3927⼈，其中2737⼈休學，
佔懷孕學⽣近70%。⼤學階段的年輕⺟親有可能⽣產時未成年，因育兒⽽休學時已成年，較難定義全數
為「未成年⺟親」，教育部也沒有進⾏更細緻的統計。但是CEDAW第三次國家報告結論性意⾒（49）建
議政府採取措施來減輕懷孕學⽣和年輕⺟親之負擔（如提供重考選項、滿⾜育兒童照顧需求、增加獎學⾦
或其他適當協助），因此以「年輕⽗⺟」⽽非「未成年」⽗⺟界定此⼀特殊階段。
205 衛⽣福利部「105年度重⼤兒童及少年虐待事件分析研究」發現「年輕⽗⺟」、「就業不穩定」、「對
於兒童發展缺乏認知」等因素與施虐有明顯關聯性。
206 以去（⺠110）年為例，春季⾯臨嚴峻乾旱，中部實施「供5停2」分區供⽔長達61天，創全台歷年實
施時間最長紀錄。8⽉因輕颱盧碧夾帶豪雨，部分中南部地區嚴重淹⽔，也導致台灣⾼鐵通⾞14年以來⾸
次因邊坡坍⽅嚴重影響⾏⾞安全。
75
升溫速度逐年加快，207政府未積極宣導防災（旱/澇/地震）意識，將置兒童於
氣候風險及越加嚴峻的⽣存環境中。
217. 我們建議：
(1) 應盡速修法，使排放溫室氣體的企業/設施付出相應的成本。
(2) 資訊知情與受教育的權利：應提供完整氣候變遷與調適教育，融入各專業
領域知識並走入⽣活，使兒少能充分理解氣候危機，減緩暖化並熟悉氣候
災難的應對⽅式。
(3) 實質監督與表意的權利：兒少在氣候問題中應有督促公共事務的實質權
⼒。
207 近25年來，台灣氣溫上升約0.68℃，相當於全球升溫速率的 3.5 倍之多。受海平⾯逐年上升⽽影響經
濟與⼈⼝密集的沿海居住範圍。推估2039年滿18歲的兒少，居住⾯積將較今⽇減少數百平⽅公⾥，且以
彰化以南的沿海地區為甚。
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第八章 教育休閒與⽂化活動
回應國家報告第243點
過⾼的⾼中⽣師比
218. 108課綱實施後，⾼中因彈性學習、多元選修、適性分組、實習分組等課
程的增加，更顯教師員額不⾜。應調降現⾏⾼中職每班35⼈的班級⼈數，合理
化教學⼈⼒。
回應國家報告第246點
疫情期⾝⼼障礙⽣的受教權
219. 依規定208為因應特教⽣需求，其教育階段、年級安排、教育場所及實施⽅
式，應保持彈性。特殊教育與相關服務措施之提供及設施之設置，應符合適性
化、個別化、社區化、無障礙及融合之精神。然實務上，因⾝障者家長與其本
⾝勞動參與率不⾼，209⾝障者家庭網路普及率相對低，且部分類別的固著特
性，210導致學⽣常無法完整參與線上教育。211
220. 我們建議：
(1) 應盤點教學資源是否順利投入受影響之⾝障學⽣，並檢視學習成效是否受到
影響。
(2) 應盡可能抹除數位落差，以利於資訊接收及線上教學權利的平等。
(3) 盡可能保留部分學⽣到校上課的權利，維持家庭、學校的「正常功能」。
208 《特殊教育法》第12條及第18條。
209 108年5⽉之⼗五歲以上⾝⼼障礙者勞動⼒參與率為20.7%、失業率為8.1%。取⾃：https://
statdb.mol.gov.tw/html/svy08/0841menu.htm
210 如⾃閉症或亞斯伯格症候群的學⽣，因受教場所不在學校⽽認為不是正式上課。
211 經台少盟「疫情下之兒少調查報告」顯⽰：⾝障學⽣在家就學過程無法使⽤數位產品進⾏線上教學與
繳交作業之比例遠⾼於⼀般⽣。
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回應國家報告第247點
青少女懷孕及墮胎
221. 衛福部有青少女⽣育率統計，教育部有學⽣懷孕事件統計，但政府卻無明
確的「青少女懷孕及墮胎統計數據」資料。據監察院調查，衛福部及教育部均
未能確實掌握未成年少女懷孕⼈數情形，監察院建議建立⼀統整平台，從學校
到衛⽣福利部做精確統計，以制定後續配套措施。212
222. 我們建議：
(1) 應提供正確之青少女懷孕及墮胎官⽅統計數據。
(2) 應進⾏實證研究，調查青少女懷孕之態樣與成因。
回應結論性意⾒第70點/國家報告第249-252點
公私立學校就學負擔
223. 政府對⾼級中等教育推動有條件的免學費政策，213但教育部依法214訂定
「私立⾼級中等學校評鑑績優放寬辦學限制辦法」，該辦法經修正後，215卻變
相增加學⽣經濟壓⼒，拉⼤公私立學校間的就學費⽤落差。
212 監察院（2017）。106內調0070調查報告。https://www.cy.gov.tw/
CyBsBoxContent.aspx?n=133&s=5846
213 就讀專業群科、五專前3年者，不分公私立學校全⾯免納學費；就讀公私立⾼中者，家庭年所得總額為
148萬以下者，免納學費，惟超過家庭年所得總額148萬者，公立⾼中不補助，私立⾼中則考量家庭經濟
負擔給予定額補助。
214 《私立學校法》第57條第2項: 私立學校經學校主管機關評鑑辦理完善，績效卓著者，除依法予以獎勵
外，其辦理下列事項，報經主管機關同意後，得不受本法及相關法令規定之限制：
⼀、增設系、所、學程、科、組、班。
⼆、招⽣之系、所、學程、科、組、班及⼈數；入學⽅式及其名額之分配。
三、遴聘校長、專任教師之年齡。
四、向學⽣收取費⽤之項⽬、⽤途及數額。但以學校具有完善之助學機制者為限。
五、辦理學校型態之實驗教育或學校內之教育實驗。
215 該辦法於2019年11⽉公告修正後，讓私立⾼中職雖免收學費，但部分學校可不受私校法第47條第1項及
⾼級中等教育法第56條第4項所定向學⽣收取費⽤之相關法令，最多可漲兩成雜費及⼀成代收代辦費。
78
224. 我們建議：
(1) 檢討⿎勵績優學校辦學之辦法⽬的。
(2) 應思考透過政府補助獎勵績優私校，⽽非轉嫁學⽣。
回應結論性意⾒第72與73點/國家報告第243點
⾼幼兒園⽣師比
225.《幼教法》於1981年制定之幼兒園⽣師比為15：1。然近年出⽣⼈⼝已由41
萬減⾄18萬。國中⼩班級⼈數已從45名調降為國⼩29名，國中30名。然幼兒
園師⽣比仍維持40年前之標準，每班30名，216幼兒在校受傷狀況無改善，⽣師
比過⾼是主因之⼀。217
226. 我們建議：降低⽣師比有效提升教保機構之托育品質並減少教保⼈員⾎汗
過勞，更有助於降低流動率。政府應：
(1) 提出降低幼教師⽣比的的具體時程規劃，應先⾏降低⾄1:12。
(2) 給予願意降低⽣師比的縣市⽀援，補助增班經費或外加⼈⼒之成本。
回應結論性意⾒第74點
偏鄉地區教育分配
227. 偏鄉地區兒童的托教資源不⾜，且有城鄉資源分配不均的問題。以⼆到六
歲兒童的公共化教保服務來說，公立幼兒園有五成四(54.71%)分佈在六都，非
營利幼兒園亦超過六成五(65.52%)設置在六都，城鄉的差距相當⼤。
216 2016年幼托整合修訂《幼兒教育及照顧法》，將2-3歲的⽣師比下降到1:8，但3-6歲卻依舊
為1：15。
217 常欣怡，《幼兒園中幼兒安全之調查研究》，靜宜⼤學青少年兒童與福利學系碩⼠論⽂，
1999。
79
228. 如果再以教育部所設定的各縣市「偏鄉地區」來看，公共化教保服務覆蓋
率不到六成的偏遠鄉鎮共有20個，六成⾄九成的有50個。這100個偏遠地區，
也有64個鄉鎮市完全沒有私立幼兒園。
229. 除了⼆到六歲的兒童，社區（部落）互助式教保服務中⼼（下稱：教保中
⼼）實務上發現，雖中⼼招⽣為⼆到六歲的幼童，但在偏鄉地區零到⼆歲的嬰
孩更是缺乏照護資源，教保中⼼曾受家長委託，提供「臨時托嬰」服務，顯⽰
偏鄉與部落有零到⼆歲托嬰需求，但中央主管機關衛福部卻仍在「評估階
段」。218⺠間團體為此亦與地⽅政府申請，希望能利⽤部落的公共空間，成立
公共托育家園，滿⾜零到⼆歲的托嬰需求，卻遭因成本過⾼⽽拒絕。
230. 我們建議：主管機關應儘速修法回應結論性意⾒中對於偏鄉幼兒受教權之
保障，調查偏鄉地區零⾄六歲的托教需求，並應挹注⾜額經費，提供平價、近
便、優質的公共托育服務。
回應結論性意⾒第78點/國家報告第259-264點
中輟兒少
231. 實務上中輟⽣服務以中介教育資源介入為主，且對於中輟之定義較為狹
隘。⽬前仍有部分縣市未設中介教育資源219，故即便遇有中輟也未必有資源能
即時介入，且存在城鄉分配差異。220
218 衛福部近期研議兒童托育法草案中之互助式專章，也想參考教保中⼼的辦法，⾄教保中⼼屏東平和部
落和美園部落參訪，考慮在部落設置公共家園。
219 如合作式中途班或資源式中途班。
220 教育部國⺠及學前教育署109年度單位決算(審定版) https://www.k12ea.gov.tw/Tw/PublickInfo/
InfoopenDetail? lter=6587798C-6F9E-4221-B5D2-880F9890F002&id=d170e5b9-0883-4637-
b5c7-c993dccce244。復查108學年度國中⼩中輟⼈數為3086⼈，109年度教育部國⺠及學前教育署補
助共核定「資源式中途班」、「合作式中途班」與「慈輝班」共1324個名額⼂89班。https://
www.k12ea.gov.tw/err.html?aspxerrorpath=/Tw/PublickInfo/EdufundDetail lter=588AEF47-226C-
4164-95A8-EE5EA941567F&id=7f349e8b-d68a-4a64-b08e-7989cfab6b2d
80
fi
fi
232. 學校為配合「降低中輟率之政策」採取消極策略，使許多兒少遊走中輟通
報邊緣；221這類兒少多對現⾏體制缺乏學習意願或受其他因素影響，長期不穩
定就學，⼜未符合多數服務資源使⽤之⾝分，輔導措施或資源挹注缺乏。
233. 我們建議：應針對長期缺課兒少建立預警機制，進⾏追蹤輔導，並訂定具
體輔導措施，引進不同網絡資源，共同協助其穩定。
中離⽣服務系統
234. 現⾏中離輔導仍以「復學」為重，儘管⽬前政府有相應的資源可供少年參
考或選擇，但服務皆為系統分⼯，缺乏主要追蹤輔導及資源管理⾓⾊，常使少
年因多重原因⽽結案或終⽌服務，無從得知後續狀況。
235. 我們建議：
(1) 應建立中離服務的個管單位，提供少年依其需求諮詢或服務轉介，並追蹤
之，以確保其接受妥當協助或⽀持。
(2) 應⾃國中端及早宣傳讓少年知悉資源的使⽤或選擇。
221 學校依據「教育部國⺠及學前教育署補助辦理中輟⽣預防追蹤與復學輔導⼯作原則」與「國⺠⼩學與
國⺠中學未入學或中途輟學學⽣通報及復學輔導辦法」等規範，須進⾏通報，但為了配合政策，常⾒請學
⽣⼀周兩天到學校報到，即便不入班，待在輔導室也⾏，或是讓學⽣補請假等迴避通報等的策略辦法。
〈教育部稱中輟⽣復學率越來越⾼ 兒少團體戳謊⾔揭真相〉，取⾃：https://udn.com/news/story/
6885/5104010
81
回應結論性意⾒第79點/國家報告第275點
校規服儀規定
236. ⺠間團體於2021年辦理「全台禦寒衣物⼤調查」，222結果指出，⾼中職
仍有 72.5 % 的學校不符規定，國中更有 95.6 % 依然違法，尤以私校嚴重，
且統計顯⽰不分公私立，皆無視教育部公⽂，223繼續違法限制學⽣穿著。
237. 我們建議：
(1) 應確實督導違法學校改善。
(2) 應健全校內服儀委員會運作。
(3) 應盤點全國服儀新法落實狀況，並就涉有違法怠失的學校確實做出對應懲
戒。
回應結論性意⾒第82點/國家報告第29、31與276點
矯正學校申訴機制
238. 矯正學校申訴制度與成⼈監所模式幾無⼆樣，無獨立、保密、安全的申訴
通報機制，且矯正學校的申訴委員會，或法務部再申訴委員會，均未明載未成
年收容⼈擁有陳述意⾒的機會。六所少年矯正機關（誠正、明陽、桃少輔、彰
少輔、北少觀、南少觀）總申訴案件皆以無理由結案224，⽽2020七⽉⾄2021
六⽉，該六機關總申訴案件為零。監察院發布之糾舉報告（110年糾字第1
222 兩週內共蒐集全臺灣 2,856 位學⽣回報，共計有 425 所⾼中職、181 所國中的同學參與調查。結果顯
⽰，學校限制學⽣穿著⼿段不乏「限制學⽣帽T帽⼦不能外露」、「禁⽌學⽣配戴圍⼱、⽑帽」、「限制
學⽣禦寒衣物及配件的顏⾊」、「女⽣冬季制服只有裙裝」、「直接沒收學⽣禦寒衣物及配件」。調查中
以私立學校限制情形更為嚴重，私校辯稱「學校不歸教育部管」、「學⽣不喜歡學校規定請轉學」等。許
多學⽣也在問卷中表⽰，「只是希望在學校能穿暖上課，竟然是那麼困難的事情」。髮式規定充斥模糊或
空泛敘述，如補染、不燙、不怪異、整⿑美觀、樸素、符合學⽣⾝份等辭彙，意圖混淆視聽，製造違法界
定扞格。
223 教育部訂有「⾼級中等學校訂定學⽣服裝儀容規定之原則」、「國⺠中學訂定學⽣服裝儀容規定之原
則」、以及「國⺠⼩學訂定學⽣服裝儀容規定之原則」等⾏政指導原則。
法務部矯正署（2021年7⽉23⽇最後更新）。「本署及各機關申訴事件收結情形」。取⾃：https://
224
www.mjac.moj.gov.tw/4786/4848/4873/988908/post
82
號）、調查報告（110司調0027）調查桃少輔⾾毆、聚賭、搖房等事件，竟是
經受害者家屬對外申訴後才披露。
239. 我們建議：
(1) 應主動提供各種申訴管道予矯正學校同學，包括新成立之各監所外部視察
⼩組等。
(2) 矯正署雖認定矯正學校非⼀般學校，無法適⽤⼀般學校申訴評議委員會模
式，然⾄少應融入包括：
A. 申訴⼈或受申訴⼈中包含有特教⽣，在申訴委員會中應有此專長的委員；
B. 在申訴過程中，應保障申訴⼈蒞會表達意⾒並接受申訴委員詢問的機會；
C. 應朝納入學⽣代表⽅向前進，產⽣⽅式可另再以辦法定之，惟藉由選舉學⽣
代表的過程，亦是⼀次重要的公⺠教育，在少年矯正機關尤屬難得且必要。
回應結論性意⾒第80點，以及國家報告第277點
軍訓教官與替代⼈⼒
240. 教育部政策於2017年起停⽌進⽤新進軍訓教官，2023年規劃「教官全⾯
退出校園」，按國教署所頒定《推動⾼級中等學校學務創新⼈⼒要點》，⾼中
每退出⼀名教官，就要改聘⼀名學務創新⼈⼒。然⽽，學務創新⼈⼒於實務運
作上產⽣諸多爭議，台北市建國中學於2018年，即發⽣學務創新⼈⼒與過去教
官執⾏校規之標準不⼀，引發學⽣與學校間之衝突，學⽣發起連署希望學務創
新⼈⼒能撤離校園。225
241. 學務創新⼈⼒與舊有教官職務區隔、是否其可執⾏過去教官所有之職權，
能否懲處學⽣等皆無明⽂，我們建議：
225 https://tw.appledaily.com/life/20180914/SOHMH3JH3PEMIKON72U4FQF6WI/
83
(1) 應加強推廣學務創新⼈⼒之徵才政策，以避免現⾏實務上之⽤⼈瓶頸，即
應徵者來源多為少數任職教育體系之相關⼈員轉介⽽來。
(2) 應在法規中明訂學務創新⼈⼒之資格及職權，重新釐清學務創新⼈⼒之⼯
作內涵，⽽非僅讓教官退出校園後，以學務創新⼈⼒之名義重返校園。
回應結論性意⾒第83-85點/國家報告第291點
學⽣在校時間
242. 教育部2016年修法規定學校應開放兩天早⾃習，由學⽣⾃由選擇參與，
然這項修法僅限於「教育部主管之國、私立⾼中」，各縣市未必有跟進教育部
兩天八點到校的規定的義務。226此外，以不准下課來處罰學⽣的狀況頻繁、⾃
殺兒童以遺書陳指課業壓⼒227仍時有所聞，雖有法規要求學校應保障學⽣充分
休息之權利，但法規層級過低致缺乏強制⼒，部分學校改善情況仍不佳。⼜學
校違反法規時，相關調查處置未能公開致難以問責。228
243. 我們建議：
(1) 教育部應提供所有學⽣⾃主決定是否參與早⾃習的權利。
(2) 教育部應落實法規，承擔教育主關機關的責任與功能，⽽非長期依賴⺠間
團體進⾏調查。
226 因應公共政策網路論壇「國、⾼中上課時間改為 9:30 到 17:00」通過提案⾨檻，教育部召開⾸場線上
公聽會時，與會⼯作者問及「學校的第八節輔導課有無違法上進度的情形」學⽣紛紛留⾔「+1」，可認早
⾃習、課業輔導規定，許多學校仍然違法是事實，儼然是公開的秘密。許多學⽣指出⾃⼰學校違法的情
況，希望教育部能拿出魄⼒，確實督導違法學校改善，以免這些立意良善的政策，仍有許多學⽣「看的
到、⽤不到」。
227 北⼀女⾃殺案，新聞參⾒：https://news.ltn.com.tw/news/society/paper/1133231
228 政府於2006年「研商落實教學正常化－國中課業輔導與留校⾃習協調會議」前，就已開始勸導學校不
得強迫參課業輔導或晚⾃習，勸導期已超過15年，仍無以對學校的紀律措施保障學⽣充分休息的權利。另
強迫增加學習時間的狀況改善幅度有限，就監察院調查，完全改善的狀況仍有平均58.78%的未完全合格
率，顯⽰現⾏政策未能遏⽌學校侵害學⽣休息權的情形。
84
回應結論性意⾒第85點
藝術教育之低青年滿意度
244. 接觸藝術培⼒課程之青少年，在劇場藝術藝⽂活動參與意願、從事藝⽂⼯
作、藝⽂相關之休閒分配時間比例，在⺠間團體問卷調查中顯⽰皆⾼於均
值。 229 ⼜對於青少年藝術教育政策調查上，只有10%的⼈對於現狀感到滿
意，230顯⾒現⾏體制之匱乏。
青少年藝術教育
245. 青少年戲劇藝術培⼒團體所需之資源，來⾃政府部⾨之補助相對偏低。提
升國⺠⽂化素養及藝術⼈才培育，由⺠間團體研究報告提醒應從兒少時期開
始。231
246. 我們建議：
(1) 推動與擬定藝術教育相關政策之主管機關，除教育專業機關外應包含⽂化
藝術專業機關共管之。
(2) 教育及⽂化主管機關應增設「青年藝術培⼒」、「扎根計畫與推廣」之補
助相關項⽬。
229 2021青少年表演藝術聯盟之「青藝盟戲劇教育推動永續發展影響⼒報告」。
230 2021青少年表演藝術聯盟之「青藝盟戲劇教育推動永續發展影響⼒報告」。
231 2021青少年表演藝術聯盟之「青藝盟戲劇教育推動永續發展影響⼒報告」。
85
回應結論性意⾒第85點/國家報告第199與296點
兒童遊戲場安全管理
247. 雖衛福部針對兒童遊戲場訂有相關規範，232仍有因場域多元、涉及多部會致
管理權責不清233的問題。⼜⽋缺專業檢驗之⼈⼒與經費，致⽬前兒童遊戲場整體完成
備查率僅33%234無法落實改善計畫，更缺乏完整量化數據資料作為整體政策規劃的參
考依據。235
248. 我們建議：
(1) 應落實醫療院所對於遊戲場常⾒傷害236之就醫案件的外因編碼紀錄，與該
資料的去識別化應⽤。
(2) 應積極建立並落實「兒童遊戲場設施基本資料表」的填報程序與承辦⼈員
專業知能。並將既有資料結合地理資訊系統(Geographic Information
System；GIS)，建置視覺化資料。
(3) 應積極研擬檢驗機構進退場機制、審查資格考訓與認證制度，輔導並⿎勵
⺠間投入遊戲場檢驗業務，落實監督管理之責。
232 「兒童遊戲場安全管理規範」、「內政部主管活動場所無障礙設施設備設計標準」及相關國家標準如
CNS12642、12643、15912、15913等。
233 常⾒因承辦⼈員更替致不清楚所轄遊戲場數量及相關管理規範。
234 取⾃「110年第2次事故傷害防制協調會議資料」 ，多數場域未能落實備查⽽禁⽌開放，影響兒童遊戲
權利。
235 政府未能掌握如GPS定位、遊具類型、遊戲場規模與性質、傷害監測數據等遊戲場數據資料，缺乏整
體明確且兼具風險效益評估的遊戲規劃政策，難以顧及不同年齡、族群與地區的兒童遊戲需求。
236 如跌墜、穿刺傷、骨折等。
86
回應結論性意⾒第85點/國家報告第200與295點237
非都市區域的兒少(含⾝⼼障礙兒少)休閒資源
249. 非都會區兒少休閒場域有限，資源城鄉差異分配不均，相關公設設施多設
在市中⼼，無法顧及偏鄉兒少之需要，238另針對⾝障兒少亦無發展相關休閒資
源。239
回應國家報告第267、323點次
僑⽣專班
250. 建教合作外籍⽣⼈數逐年上升，2406年成長5倍。在中央與地⽅建教合作的審議
現場，引進僑⽣以避免私校因招⽣不良⾯臨倒閉，是為ㄧ公開事實241。甚⾄，連國家
政策242都視僑⽣為補充台灣缺⼯政策之解藥，對於未成年外籍⽣的受教權、⽣活輔導
等完全忽視。243遑論政府無法稽查建教合作中，是否配備合格、僑⽣⺟國語⾔的輔導
教師與課程教師，以協助未成年的外籍學⽣。
237 國家報告附件7-14與8-27。
238 如新北市平均服務兒少數1,193⼈、台北市平均服務兒少數1,444⼈、南投縣平均服務兒少數則⾼達
13,455⼈
239 國家報告⼆稿附件170⾴。https://crc.sfaa.gov.tw/Document/Detail?documentId=190168FD-
DBE4-4092-B9AD-AC8C4FA2F322。衛⽣福利部兒童及少年福利與權益推動⼩組109年第2次會議資
料25⾴。
240 從103學年281⼈增⾄109學年1726⼈。
241 聯合報：私校連番倒靠僑⽣救？建教專班招⽣倍增 陸⽣也想來： https://udn.com/news/story/
6929/3793757
242 新南向政策，設立「3+4產學攜⼿合作僑⽣專班」。
243 報導者：訓練外勞還是教育學⽣──當東南亞⾼職僑⽣與新⼿教師相遇 https://
www.twreporter.org/a/opinion-southeast-asia-overseas-chinese-students-in-taiwan-
vocational-high-school
摘錄部分報導內容：校⽅將中⽂能⼒不同的學⽣被混編⼀起，學⽣難以真正學習；遇學⽣動能不⾜或偶有
反抗，就命令在操場曬太陽唱軍歌，每天放學進⾏原地踏步練習⋯⋯和本地學⽣⼀樣，被「訓練」成為好
⽤的實習⽣。企業也聽聞有聽話、便宜的學⽣，更願意與學校洽談建教合作了。
87
教育職業之訊息傳播
251. 我國建教⽣勞動權益如確保勞動權益不受損害等集中於消極⾯，並未更積極地評
估與學校合作之廠商的訓練成效。依《⾼級中等學校建教合作實施及建教⽣權益保障
法》規定，學校應提供建教⽣基礎或職前訓練，取得職業科別基本技能。但在建教⽣
權益調查報告中，未呈現「建教⽣獲得合理訓練」的調查評估，如建教⽣考取技能檢
定證照之有無，以及考取比例等資料。
252.從2016-2020年的陳情案件統計來看，總共120件陳情案件，有20件與建教合作
職業技能訓練有關，顯⾒政府應加強對於建教合作的建教⽣之權益保障之檢視與檢討
⽅法。
回應國家報告第300點
風箏計畫
253. 青藝盟於2014年開始⾃主發起風箏計畫，2017利⽤中介教育社團時間導
入藝術培⼒，輟學率逐年拉低，然常⾯臨無法永續、課程結束原⾼關懷兒少即
回到原狀。244因藝術教育於主流教育不被重視，245且藝術陪伴並無⼀長期、有
規劃之政策與執⾏⽅法。
254. 我們建議：
(1) 政府應肯認藝術陪伴教育並主動提供培⼒教師之補助。
(2) 應重新研議中介學校之課程安排，將永續風箏計畫置入⽇間教學課程。
244 青藝盟報告中將學校分成五個等級，⼀是關懷據點課輔班，⼆中介學校，三安置機構，四少觀所，五
矯正學校。聯盟早期耕耘三⾄五級，⽬前重點於第⼆級，陪伴時候效果都很好，但當學員學期結束，很容
易就被原來的⼈⽣拉回去。
245 陳育祥「以素養導向觀點探討中等學校 藝術師資培育教材教法課程現況與實踐」，教育科學研究期
刊，第六⼗三卷第四期（2018年），63（4），89-117 doi:10.6209/JORIES.201812_63(4).0004。
88
第九章 特別保護
回應國家報告第56、283、314點
共創部落式幼兒園246
255. 以部落在地青年及耆老作為師資、結合在地⽂化，發展完整的部落⽣活與
倫理247培養兒少在部落獨立⽣活的能⼒，透過社區（部落）互助式教保服務中
⼼（下稱教保中⼼）實踐，證實此⽅法為傳承部落⽂化的有效教育⽅式。教保
中⼼不應如《幼兒教育及照顧法》所⽰248只是⼀種「社區⾃願發起的幼托中
⼼」，政府應更積極主動推動培⼒政策，從制定推廣、培⼒⽅法到完善制度，
幫助部落傳承原住⺠族⽂化。
256. 教保中⼼資⾦由中央「計畫補助」249佔總成本六⾄七成，其餘由社區⾃
籌約⼆到三成。尤其是教保中⼼設立較多的的屏東縣，皆是「社區發展協會」
來承接計畫。然社區發展協會非為專業非營利或非政府組織，並無⾜夠財源或
籌款能⼒。250因此，社區發展協會在經費使⽤上非常吃緊，甚⾄需要犧牲教保
員的勞動權益（加班費、代班費等），來補貼中⼼經營不⾜的部分。
246 法律與實務上並無這樣的名稱，正式名稱為社區（部落）互助式教保服務中⼼。
247 教保中⼼的教保員⾃⾏設計課程內容，包含從附近的⼟地開始，瞭解四季變化、部落⽂化重要的節⽇
等完整⼀系列的⽣活學習。
248《幼兒教育及照顧法》第⼗條。
249 由原⺠會與教育部各負擔⼀半，教保中⼼的⼈事費相關業務費（教師、廚師、活動辦理跟餐點、設施
設備等）。餐費每個⽉補助800/⼈，換算下來⼀個孩⼦每天午餐與點⼼只補助新台幣36元。
250 社區協會由⽂建會主責，希望推廣社區營造的⼯作由社區組成的團體來承擔。除非有計劃補助⾦援，
不然社區協會員⼯皆為無給職。
89
原⺠幼兒補助
257. 教保中⼼提倡原⺠部落精神資源共享，統籌使⽤中⼼之原⺠⾝份兒少補
助251補⾜中⼼營運之不⾜。教育部去年八⽉實施新的托育補助政策「0-6歲國
家⼀起養」，由於教育部在該政策下的育兒津貼（共21,000元）優於原⺠幼兒
補助（共10,000元），原⺠會發⽂給各地⽅政府，說明將中⽌原⺠幼兒補助。
然各教保中⼼於新學期開始後，才發現原⺠⾝份並未包含在教育部新制育兒津
貼補助範圍內。針對此點，教育部僅回覆：「由於教保中⼼已有中央計畫補助
降低幼兒就學費⽤，故教保中⼼並未包含在『0-6歲國家⼀起養』政策中」。
原⺠幼兒因⾝份之補助因此消失，造成承辦教保中⼼的社區發展協會，財務周
轉更加困難。
共創式部落幼兒園教材經費
258. 原⺠會要求教保中⼼教學內容中百分之五⼗需要與部落⽂化結合，但卻無
提供任何教材或是⾜夠的資源挹注。教材研發都必須由老師另寫計畫、錄製⾳
樂帶、繪本，以及聘請族語老師以及請部落耆老來上課。這些缺乏的費⽤，都
需另外撰寫計畫，尋找、申請非常態性經費補助。
共創式部落幼兒園師資
259. 教保中⼼並無配置⾏政老師，252⽽相關⾏政⼯作與公立幼兒園並無不
同，然在師⽣比⼀比八中，老師還需另兼⾏政職。且平⾏參照非營利幼兒園及
沈浸式幼兒園，教保中⼼之教保員的薪資低於前兩者。教保中⼼服務⼈員薪資
251 「原⺠幼兒補助」由教保中⼼向縣市政府申請，由原⺠會補助中⼼裡3歲以上未滿5歲的原住⺠幼兒，
每名幼兒每學期最⾼補助10,000元。
252 公立幼稚園配置有⾏政專責老師以及相對應之⼈事經費等。
90
以學歷與族語認證為基準，但⼤部分擔任教保中⼼的教保員都是部落的婦女，
不⼀定有⾜夠的經濟條件或時間可負擔進修，且許多部落位於⼭區，距離進修
場地遙遠，交通費也是龐⼤的成本。
260. 我們建議：
(1) 政府應每年定期進⾏零⾄六歲托教資源和需求的調查，調查範圍應具體到
各鄉鎮市區，甚⾄更細緻到村⾥、社區或部落，尤其應強調鄉村地區、偏
鄉及原住⺠族部落的托教需求，並依據結果設定設置公共化托教機構的政
策⽬標，逐年減緩城鄉資源落差。
(2) 政府應正視教保中⼼滿⾜部落家長教育及照顧需求，並傳承原住⺠族⽂化
的實際成效，視教保中⼼為公共化照顧的⼀環，擬定具體的政策⽬標，並
編列⾜額經費，以穩定教保中⼼的經營。
(3) 關於教保中⼼之教材研發，政府應提⾼現⾏的計畫補助，，⿎勵教保中⼼
發展在地化的教材及課程。
(4) 政府應提升教保中⼼服務⼈員的薪資待遇，提⾼薪資的補助額度，並且不
以學歷或族語認證作為唯⼀的敘薪標準，⽽能彈性採納多元的認定⽅式，
尊重不同族群看待教學及照顧能⼒的視⾓。
少數族群教育之斷層與⽂化歧視
261. 教保中⼼之幼兒進入國⼩後原⺠教育無法銜接，常因鄰近的國⼩不是原⺠
⼩學、或有教保中⼼的兒童於國⼩階段被定位為學業能⼒不⾜，因⽽產⽣不適
應。比較嚴重的案例中發現：國⼩校⽅⽤統⼀的教學標準，以學業成就衡量兒
童的能⼒。常有兒童⾄三四年級就跟不上，進⽽被學校放棄。學校相對於部落
來說是特化的場域，即便是部落的傳統⽂化知識，也被學校化地抽離原本部落
的⽣活脈絡，⽽讓部落⽂化難以傳承。
91
262. 更有家長為避免上⼀點次之問題，只能選擇將⼤班階段原就讀於教保中⼼
的孩⼦轉學⾄國幼班，已達成完美銜接國⼩教育之⽬的。為有效阻⽌教育制度
與政策造成的歧視與⽂化斷層，我們建議教育部應提供系統化且有效的培⼒國
中⼩學校教師，對於學習教材、鑑定學⽣能⼒的制度、框架以及族語、原⺠⽂
化課程等基本認識外，更有對於不同族群兒少的彈性與尊重，以避免向因對原
住⺠⽂化不了解產⽣族群間歧視問題造成原住⺠兒少⾃殺253的憾事。
回應結論性意⾒第89點/國家報告第318-322點
未滿15歲童⼯數據與權益
263. 政府依舊完全未能掌握「未滿15歲童⼯」之勞動實況。勞基法規範未滿15
歲⼯作必須特別申請，然國家提出合法申請數字每年僅約1,000⼈254（當中
90%以上為演藝廣告類）。但根據衛福部2018年「兒童及少年⽣活狀況調查報
告」255推估，12歲⾄未滿15歲國中⽣有打⼯經驗者即⾼達為73,778⼈，遠⾼
於申請數。此外，根據同份調查，少年打⼯地點以在餐飲業打⼯者占40.5%最
⾼，其他還包含⼯廠等，與合法申請中類別差距甚⼤。
264. 未滿15歲非法之⼯作勞動條件堪慮，缺乏法規保障與勞動保險。在⾸都台
北2020年仍有經濟剝削的案例傳出，256且實務⼯作上未滿15歲童⼯所遭遇勞
253被罵「死原住⺠」國⼀學⽣跳樓輕⽣。Ettoday News( 2022.03.27) https://www.ettoday.net/
news/20220326/2216496.htm。
254 參⾒國家報告條約專要⽂件【附件】附件9-6（⾴174）。
255 衛福部統計處，2018，(1) 107年調查分析-兒童篇：https://www.mohw.gov.tw/dl-70442-
d0dc910a-407a-4fc0-a112-5155f1932ed7.html；(2) 107年調查分析-少年篇：https://
www.mohw.gov.tw/dl-70441-6400564b-96a3-4005-a153-c1f5b9598d07.html。
256 2020年台北市連鎖雞排店以每⼩時60元（當時法定最低時薪為160元）違法僱⽤數名國中⽣。
結 https://tw.appledaily.com/life/20200518/HOJWTWL5DWSGOCLLPCLVTRLJ4I/ 。
92
動剝削案例，更在多名非都會地區社⼯之分享與《進修部學⽣校外勞動調
查》257中被呈現。
265. ⽬前台灣政府只於2019進⾏「⼀次性」、對象為16-18歲進修部學⽣之⼯
作調查，258未符合結論性意⾒與⼀般性執⾏措施之兒少重要議題之「常態性」
與具有意義的數據與資料調查搜集。
266. 承上點，針對公約所特別關注的族群亦無相關調查和數據，⽬前僅有區分
原住⺠族與非原住⺠族，其他包括新移⺠⼦女、LGBTI、⾼風險家庭等付之闕
如，實務⼯作顯⽰往往愈是弱勢者愈是沒有勞保。
未成年勞動權益與職業安全
267. 就落實現⾏法規⾯向，仍無法有效保障未滿18歲兒少的⼯作權益與安全。
在⼯時部分，僅規範15-16歲兒少的⼯時，根據台少盟《進修部學⽣校外勞動
調查》及國家主計總處的調查皆顯⽰：15-19歲青少年有超過⼀半的比例每周
⼯時超過40⼩時，與成⼈無異。259台少盟同份調查指出：35%學⽣每周⼯作
5天以上，兒少長時間的⼯作造成⾝⼼的壓⼒，更影響其受教權益；此外，仍
有25%⼀天⼯作超過8⼩時、15%連續⼯作7天，約12%深夜或凌晨⼯作。
268. 根據勞動部統計：約有12萬15-18歲之兒少投入職場，260但未有準確分齡
的統計，⼜國家報告附件9-5僅有2萬1千多名之15-18歲青少年勞保數。根據台
少盟與⺠間團體的調查，2015-2020年未成年勞⼯平均約40-50%青少年缺乏
257 請參閱註腳5。
258 由台灣少年權益與福利促進聯盟執⾏〈2019 ⾼級中等學校進修部18歲以下學⽣校外勞動實況調查與研
究報告〉（簡稱：進修部學⽣校外勞動調查） www.youthrights.org.tw/news/1484
259 https://www.stat.gov.tw/ct.asp?xItem=46590&ctNode=3579&mp=4 參⾒表22
260 參照2020⾏政院主計總處「⼈⼒資源運⽤調查」統計表22 https://www.stat.gov.tw/
ct.asp?xItem=37200&ctNode=517&mp=4
93
勞保保障，未投保就業保險的⿊數將更⾼，261少年勞⼯在⾯臨失業及育嬰留職
停薪等風險時，將無社會保險之保障。
269. 承上點，近5年來台灣發⽣兩起嚴重未成年少年在職場遭受虐待的案件造
成⼀死⼀重傷。兩案皆為弱勢境遇少年，因經濟壓⼒找不到⼯作⽽尋求非法⼈
⼒仲介之管道，在職場中毫無保障與⽀持。其中2020年17歲少年遭到囚禁虐
待，需要截肢治療262；2018年台印新移⺠⼆代15歲少年則遭到虐打致死263。
兩案皆顯⽰雇主對於兒少僱⽤相關法規認知缺乏，政府對於弱勢境遇兒少勞動
權益的保障嚴重不⾜。
270. 青少年勞動權益與其利害關係⼈宣導⼯作流於形式，缺乏成效評估。針對
特殊境遇或是有⾼強度⼯作需求的青少年之個別化⽀持與服務也無相關強化作
為。
271. 我們建議：
(1) 即刻委託學術與⺠間單位針對「未滿15歲童⼯之勞動現況」進⾏完整的調
查與研究。
(2) 進⾏有意義的勞動調查與數據彙整，包含勞動條件、原因與⽀持體系運⽤
現況等。避免政府政策制定之基礎缺乏完整實際資料之⽀持，且相關資源
運⽤呈現則是未明，也未⾒滾動檢討。
(3) 政府應針對未成年⼈在勞動權益保障、申訴、⽀持等相關法規加速制定。
261 值得注意的是2021年度針對covind-19的勞⼯津貼，即是以就業保險作為重要認定發放依據。
262 「彰化少年桃園當鐵⼯ 遭雇主凌虐拘禁3個⽉」2020/05/06 https://news.pts.org.tw/article/477681 。
263 「⺟離家⽗不知去向！15歲台印少年打⼯養⾃⼰ 被同事凌虐致死」2018/10/03 https://news.ebc.net.tw/
news/society/133100
94
回應結論性意⾒第90-91點/國家報告第324-331點次
青少年藥物濫⽤
272. 政府對於青少年藥物濫⽤策略不清，在實務現場多數採取防堵、檢舉、通
報為主，將使⽤藥物成癮兒少罪刑化與負⾯問題化，並非依據公約將其視為需
要協助與輔導的⾝⼼健康問題。
273. ⽤藥兒少在警政、社政與校園安全及輔導協助的機制散落不同規範，實務
現場並無明確指引。在校園中春暉專案以學務⼈員為主，國中為學務處、⾼中
為教官（教官退出校園後轉為校安⼈員），從校園安全與管理責任為出發，與
輔導處室多有⽭盾。實務個案有受醫院服務團體治療的少年，在校園內遭警察
調查，侵害其隱私，使其被標籤化，此⼀作法也讓其他有此困擾的兒少更加不
敢現⾝求助。或有因藥物案件遭保護管束的少年，申請⾼中職遭拒，影響其受
教權。
274. 2021年修訂《教育部防制學⽣藥物濫⽤實施計畫》透過獎懲規定，結合警
政機關建立即時通報，同時訂定個案情資溯源通報比例與個案輔導完成率等皆
須達80%，使校園⾯臨追查藥頭犯罪與輔導個案並⾏產⽣潛在⽭盾。追查藥頭
的導向在實務上會引導輔導策略，造成個案輔導難落實。
275.承上點，⼜如《⾼級中等以下學校提列特定⼈員獎懲原則》訂定之宗旨為
校園毒品預防措施，並以提列「特定⼈員⼈數」比例⾼低為獎勵績效，扭曲校
園輔導實務運作。
95
回應國家報告第333點
受性剝削及性虐待兒少
276. 兒少性剝削受害者於偵訊時，實務上第⼀線警務⼈員較缺乏對該議題的理
解，容易對兒少有刻板印象，或於執⾏相關程序時，其訊問⽅式、⽤語等，易
未視兒少權益需求調整。尤有甚者，部分警務⼈員不清楚兒少性剝削程序，傳
遞錯誤資訊予兒少、使其誤解或⾄於混亂狀態。
277. 我們建議：
(1) 國家報告第85點次中之教育訓練範圍，檢察官、檢察事務官、司法警察
（官）及社會⼯作⼈員外，也應納入警察⼈員參與訓練。
(2) 應加強警務⼈員《CRC》教育訓練，使其於辦理兒少性剝削程序時，能落
實保障兒少於司法程序中的權益。
回應國家報告第337點
收容少年之研究
278. 矯正學校與少年觀護所均為帶有剝奪⼈⾝⾃由之司法處遇之「全控機構」
(total institution)，應更積極提出依據兒童最佳利益與表意被聆聽權原則，進
⾏不同研究個案的審酌與安排，⽽非套⽤單⼀標準流程。
279. 我們建議：
(1) 研究前置作業如確認法定代理⼈同意，應重新檢視。實務上常有少年觸法
源於家庭關係，代理⼈的同意將毫無意義；
(2) 確保兒少有安全的發⾔空間，不會受到後續影響；
(3) 確保流程中不會帶來新的創傷。
96
回應結論性意⾒第95-97點/國家報告第338-354點
觸法之兒少
校園內輔導資源
280. 學校需要輔導的特殊學⽣或⾼關懷學⽣樣態繁多，24班以上的⼩學皆設
有輔導處，惟近年來少⼦化趨勢嚴重，多數國⼩早已未達24班未設立輔導處，
導致現有的輔導⼈⼒不⾜。以南部六縣市為例，僅有⾼雄市⼀律設置輔導處，
嘉義市、屏東縣設置輔導組，然雲林縣、嘉義縣、台南市就有未設置輔導主任
或組長的情形。國⼩校園輔導⼈⼒編制現況呈現「⼀國多制」，若放⼤⾄全
國，未到位的校園輔導⼈⼒更加嚴重，讓城鄉差距將更明顯。
281. 承上，⾯對最需要協助的不到校學⽣，反⽽無法有時間探視或提供協助。
即使在校進入輔導機制的學⽣，亦可能在其無法穩定參與班級課程、現場教師
無法兼顧其需求的狀況下，反得離開教室現場，集中於輔導室管控，⼜成了隔
離特殊化。
282. 《少年偏差⾏為預防及輔導辦法》作為少年事件處理法之預防及輔導之整
合辦法遭⺠間批評「空有形式連結」，264缺乏對於現⾏機制的實質資源盤整與
重新評估，無法有效回應教育部⾨能量有限與城鄉資源落差等問題。265
283. 承上點，在辦法中還將「長期使⽤3C產品」等⼗餘種⾏為樣態標⽰為偏
差；《輔導辦法》作為《少事法》的延伸，以「刑事程序法」規範擴⼤涵蓋
264 六個⺠間團體與立法委員舉辦記者會(2020.10.27): https://news.ltn.com.tw/news/Taipei/
breakingnews/3333587
265 教育資源⽅⾯，根據《兒童權利公約》第⼀次國家審查結論性意⾒的第74點，審查委員便注意到⽬前
教育資源分配⽅式不⾜以確保偏鄉兒少的教育品質。從監察院調查報告中也可發現，各地區間特殊需求學
⽣校園輔導⼈⼒不⾜的狀況。若連服務已在體制內的特殊需求兒少的資源都已經不⾜，未來在⾯對這群曝
險、偏差議題學⽣時，資源只會更加窘迫。
97
《兒少權法》中應受保護的非觸法⾏為，對於輔導先⾏與去司法標籤化的公約
精神，是完全相互背離的。266
回應結論性意⾒第29點/國家報告第344點
司法案件兒少隱私權
284.曾有少年事件的被害⼈及加害⼈，經媒體報導後被網友「⾁搜」出來，並
於網路上發動公審，《兒少權法》第69條明訂了不得公開兒少事件中，兒童及
少年⾜以識別之資訊，但在實務案例中，多有媒體於報導中直接揭露兒童或少
年之姓⽒、學籍、⽣活區域等⾜以識別之資訊，缺乏明確處理機制，⺠間團體
雖曾多次向各家媒體之⾃律委員會等申訴，惟效果多半不彰。
285.建議：
(1) 應建立⼀套針對兒少隱私受侵害的救濟機制，並應由單⼀主管機關負責。
(2) 對於在兒少事件中洩漏兒少資訊之媒體、個⼈等，應有相對應的裁罰機
制。
回應國家報告第345、346點
轉向措施專業⼈⼒來源與⽀持培⼒系統
286.「地⽅法院少年及兒童保護事件審理終結情形」，267在交付保護處分、移
送檢察署之外的其他處遇（包括責付）並未有顯著變化。
依《少事法》第86條立法理由第3點，立法委員有意將《輔導辦法》的「偏差⾏為」類型限縮在《少
266
事法》第3條第1項第2款所列之3種曝險⾏為樣態。⽽政院在《輔導辦法》中增列《少事法》中沒有的14
種偏差⾏為，是否逾越了《少事法》的授權範圍不無疑問。其次，⾏政院雖再三聲明「偏差⾏為」學理上
「並無標籤特定兒少的意思」。但《輔導辦法》將諸如「超過合理時間使⽤電⼦產品」等《兒少權法》之
規定，作為「刑事程序法⼦法」中的「偏差⾏為」類型加以處置，不僅與《兒少權法》中「保障權利」意
旨不符；同時，將此類⾏為列為有「觸法風險」的偏差⾏為，更可能造成⾏為被過度評價，⽽「事實上出
現標籤效應」。
267 參⾒「司法院地⽅法院少年及兒童事件審理終結統計」，出處：https://www.judicial.gov.tw/tw/dl-
86550-541f0e41899f4dcbb0e097609d7e05bb.html
98
287. 轉向措施多樣化處置並未落實，根據國家報告附件9-21、22，少年觸犯
刑罰法律、曝險⾏為事件之總和，進入開始審理的⼈數均過半，不付審理（含
轉介輔導及交付管教、告誡等）逐年並未有顯著增加。感化教育的比例也維持
在3-4%同樣無顯著變化。
回應國家報告第348點
少輔院改制
288. 實務發現地⽅政府主責⼈員指出：政策的執⾏壓⼒造成專業⼈⼒多有聘⽤
資歷尚淺、無少年矯正機關實務經驗者。政府的培⼒⽀持計畫亟待補⾜。
289. 承上點，實務上專業⼈⼒多為員額外之約聘僱（之前為勞務承攬）或由外
部⺠間組織與專業者承接。這類型⼈⼒在進入矯正學校時，從進入許可、實際
輔導時間等均多有限制，亦有專業品質不⼀等問題，造成輔導效益受到打折。
290. 《兒童及少年受安置輔導或感化教育之學籍轉銜及復學辦法》，實施時間
過於倉促，多為期滿前⼀個⽉或是停⽌執⾏當⽉，造成效益不彰。
291. 承上點，實務經常遇有⼀般學校常以其他家長反對或管教困難等理由，直
接拒絕或婉拒接受安置輔導或感化教育兒少，造成少年無處可去，或需⾄距離
較遠等其他願意接納的學校。
292. 我們建議，應從安置、後追轉銜之個案連續性提供少年完整服務，並：
(1) 儘早啟動轉銜計畫與貫穿式照護與輔導，由同⼀組的會議⼈員來訂定少年
的處遇計畫，並據此檢視其執⾏成效隨時調整。
(2) 協助資深與專業⼯作者與新進⼈員搭配，並保障其入校執⾏的專業空間。
99
回應國家報告第349點
少年矯正機關收容處遇實施條例草案
293. 現⾏草案版本是以成⼈之《監獄⾏刑法》與《羈押法》為範本，與未成年
⼈所適⽤之兒童權利公約、哈瓦那原則等有極⼤落差，以「教育」為基底的條
例被戒護管理思維所掩蓋。
回應國家報告350點
少觀所鑑別流程
294. 既有的戒護優先、秩序⾄上主導少觀所的運作，在管理⼈⼒吃緊的現況
下，⽇班老師皆不固定，更無法對每位接受觀察的少年有深入了解，在⼀個⽉
內就需完成鑑別打好分數，實屬虛應故事。
295. 承上點，2021年11⽉底發⽣台北少年觀護所鬧房事件，268事發原因表⾯
看似兩派同學衝突，實則是管理員為了對抗新任主管所下達「不准使⽤胡椒
⽔」之指令，刻意不作為。
296. 我們建議，應改善少觀所⼯作⼈員的勞動條件、⽀持多元專業⼈⼒進駐與
培⼒，降低戒護⼈員對環境的過度警戒，並改善⾯對收容少年的彈性不⾜。
268 〈驚傳收容少年吃不飽鬧房 觀護所：年輕⼈互嗆叫囂非餓肚⼦〉，2021-11-28：https://
www.ettoday.net/news/20211128/2133730.htm
100
回應國家報告第351-353點
轉銜及復學機制
297. 以⽬前《家外安置兒少替代性照顧資源強化計畫》以及《兒少安置服務品
質精進計畫》所揭⽰之服務成果，尚無法從現有資料中獲知司法少年照顧量能
提升之實際成效。
298. 實務上仍有司法少年因安置機構無法收案、最終裁定令入感化教育處所
案。269兒少安置機構無法收容該案之成因相當多元，包括：專業⼈員的照顧量
能（數量與質量）、照顧經費、社區⽀持性資源、社區⽂化的接納程度等，皆
會影響兒少機構照顧司法少年的機會，⽽這些⼯作不應該是單⼀兒少機構獨⼒
承擔，有賴相關單位協⼒處理。
299. 無法從現有資料中獲知離院（校）轉銜之服務覆蓋率及服務成效。⽽針對
離院（校）之司法少年無論是結案後追蹤或是⾃立⽣活服務皆有許多實務困
境270，除司法少年本⾝議題有其服務難度之外，在社⼯⼈員服務、機構層⾯與
外部（政策環境）層⾯皆有許多困境仍待解決。
300. 我們建議：
(1) 社區服務佈建，政府應加強社政單位之外的功能，積極與其他部⾨（如警
政、勞動、司法）、社⼯共同協助少年個案。
(2) 司法少年的政策資源與配置應積極與⺠間兒少機構串連，定期檢視，提出
具有成效的評估檢討，避免與實務脫節或流於形式的數據。
269 「司法少年經聯繫安置輔導機構12家，無機構願收，最終裁定令入感化教育處所」案，監察院通過調
查報告，促請司法院、衛⽣福利部檢討改進，2019-08-14，監察院報告：https://www.cy.gov.tw/
News_Content.aspx?n=124&sms=8912&s=14169
270 胡中宜、黃上豪(2019) 。結束感化教育後續追蹤輔導服務之現況與挑戰，犯罪與刑事司法研究，31，
⾴71-100。
101
(3) 建構司法少年之專業處遇模式，提升相關⼯作者久任之意願，避免經驗與
關係的斷裂。
司法少年就業準備與轉銜服務
301. 政府對於特殊境遇少年的就業服務仍以成年⼈的資源輸送為範本，有需求
少年的運⽤比例極低，現有附表9-25、26僅能呈現特別⽅案的參訓⼈數，且
從均為兩位數的參訓和就業服務轉介，在各縣市即使平均下都會只剩下個位
數，實務上愈是偏鄉愈是無法使⽤。
302. 承上點，司法議題兒少，因社會刻板印象回歸社區尋職困難。政府並無提
供雇主⾜夠的誘因協助⽀持，個別⽅案的計畫服務缺乏系統與結構的⽀持，例
如雇主獎勵等，僅能靠⺠間機構⾃⼒救濟。
303. 我們建議：
(1) 針對司法少年的特殊性與需求提供個別化服務與⽀持。不應只以就業率為
⽬標，更應思考就業意願、能⼒等，協助排除就業障礙。
(2) 在呈現就業服務執⾏及參訓情形等統計數據時，應加入縣市／城鄉的項
⽬，以監控提供之資源可運⽤情況。
(3) 具體的獎勵雇主措施，完善友善少年店家的機制建構，建制媒合平台，串
連更多元單位協助少年的社會⾃立。
(4) 加強運⽤⼤眾傳媒等多元宣傳管道，消除社會⼤眾與公司⾏號對於司法少
年之刻板印象，提供就業機會。
102
回應國家報告第355-362點
觸法之兒少/被剝奪⾃由之兒少（包含任何⽅式的居留、監禁或羈押）
304. 僅⾒國家報告法規介紹，附件271所⽰：交付安置機構平均安置時間，在
2020年時間最長，達734⽇（超過2年），在2019年則是630⽇，相差超過100
天。少年矯正學校平均收容⽇數下降，少觀所則無顯著變化。另在課程部分雖
提及盡量配合108課綱，卻未說明108課綱的特⾊是「彈性」，如何實現在課程
安排上。
305. 學⽣入校時間不⼀，各⾃的觸法樣態多元，原⽣家庭的狀況和⽀持亦相去
甚遠，應針對個別學⽣制訂的處遇計畫書卻付之闕如。
306. 少觀所的輔導課程現況，⼼理師與社⼯⼈⼒都不⾜，例如⽬前收容⼈數最
多的北少觀來說，只有⼼理⼈⼒⼀名、社⼯⼈⼒⼀名，無⼒擔負鑑別任務。在
少觀所的處遇安排上，⽬前均以法務部矯正署頒佈之⾏政函釋272為依歸，然⽽
名稱不同的各種單獨監禁舍室如靜⼼室等，皆還存在，其他禁⽌使⽤之處分⼿
段，也仍在使⽤中。
307. 我們建議：
(1) 針對少觀所收容少年應⾃入所開始即啟動評估鑑別⼩組會議，並依各⾃不
同狀況，制訂不同的鑑別重點及處遇建議，把握收容少年在少觀所為期不
長的時間，以「鑑別決定處遇」為收容少年在安置期間的最重要⼯作⽬
271 參⾒第⼆次國家報告條約專要⽂件【附件】附件9-27（⾴196）、9-28（⾴197）。
272 2019年10⽉23⽇法矯署安字第 10801094420 號函釋出處：https://mojlaw.moj.gov.tw/
LawContentExShow.aspx?id=FE334548&type=E&kw=&etype=etype5。說明第⼀點即表⽰回應監察院
報告，並增加少年法庭的督導密度等。其中針對違規⾏為，特別指出⽤《少年觀護所設置及實施通則》辦
理，禁⽌使⽤「停⽌接⾒、停⽌購物或禁⽌⼾外活動等非法定不利處分作為懲罰，並禁⽌設置及運⽤違規
房及考核房等管理措施。」
103
標，並加強專輔⼈⼒，以避免少觀所只是觸法少年過⽔場域⽽失能、甚⽽
結識其他不同幫派或地⽅組織成員的機會。
(2) 在矯正學校部分，課程設計可以明陽中學273為例，尤其是社團活動的安
排，搭配108課綱的「彈性」特質，試辦且發展出「矯正教育」的特⾊課
程。制訂個別處遇計畫時，應先確認少年入校前在家庭和社區⽋缺的需求
訓練（包含⽣活和社交等），並和當事⼈共同制訂離校後⽬標，盤點可能
⾯對的問題及資源，提早進⾏轉銜⼩組⼯作，後追社⼯提早參與加入。且
在過程中，都應當要充分地加入當事⼈少年的意⾒和想法。
回應國家報告第364-467點
少年司法專業⼯作⼈員培訓
308. 國家報告附件1-8及9-29274政府僅呈現出量化的場次、參加⼈次、滿意
度問卷等施測，但實質內容卻僅有⼤項列出。尤以警察⼈員來說，分成：（1）
將《CRC》納入「少年警察⼯作研習班」教育訓練，只是在原有的課程內增列
⼀項；（2）婦幼安全⼯作專責⼈員訓練加入《CRC》介紹等，兩者均以偵辦
為主要⽬標成效有限。
309. 我們建議：
(1) 將《CRC》第24（2019）號⼀般性意⾒書《關於少年司法系統中的兒童
權利問題》作為貫穿式的概念課程安排，⽽非片段割離。
(2) 課程設計以實際案例比較融入CRC的觀點對照與具體CRC銜接之操作案
例。
273 林瓊⽟、陳宏義，〈少年矯正學校課程模式之研究——以明陽中學為例〉，《矯正期刊》第6卷第2期
（2017），⾴69-104：https://www.mjac.moj.gov.tw/media/28212/
77413555513.pdf?mediaDL=true
274 參⾒第⼆次國家報告條約專要⽂件【附件】附件1-8（⾴15-16）、9-29（⾴198）。
104
(3) 矯正少年機構為最具強制⼒、限制強度最⾼的少年收容措施，因此，要特
別針對矯正學校和少年觀護所，發展出符合《CRC》的⼯作指引。
105
CRC WATCH
兒童權利公約
⺠間監督聯盟
編印
106
資料來源:SQLite external_shadow_report 表 · markdown body 來自 data/external_shadow_reports/ESR-2022-CRMA.md