兒少人權監督平台

來源 PDF:34_20220413122348_4994898.pdf

 台灣兒童權利公約聯盟成員 List of Members

(按筆畫順序排列)

中華民國智障者家長總會

Parents' Association for Persons with Intellectual Disability, Taiwan

台灣性教育學會

Taiwan Association for Sexuality Education

台灣兒童暨家庭扶助基金會

Taiwan Fund for Children and Families

台灣世界展望會

World Vision Taiwan

台灣展翅協會

ECPAT Taiwan

至善社會福利基金會

Zhi-Shan Foundation TAIWAN

社團法人中華民國觀護協會

The Association of Probation Taiwan R.O.C

社團法人台灣好鄰居協會

Good Neighbors Taiwan

兒童福利聯盟文教基金會

Child Welfare League Foundation

花蓮縣谷若思全人關懷協會

Hualien County Growth Holistic Care Association

財團法人天主教善牧社會福利基金會

Good Shepherd Social Welfare Foundation

財團法人台北市婦女救援社會福利事業基金會

Taipei Women's Rescue Foundation

財團法人董氏基金會

John Tung Foundation

國立臺灣大學中國信託慈善基金會兒少暨家庭研究中心

National Taiwan University Children and Family Research Center Sponsored by CTBC Charity Foundation

 Contents

Preface 01

Part 1 General implementation measures

1.1 Harmonizing national laws and policy with the provisions of the Convention 03

1.2 Establish a Children's Rights Division under the National Human Rights

Commission 06

1.3 Data Collection 08

Part 2 General principles of CRC

2.1 The principle of non-discrimination 11

2.2 Avoid Unintended Pregnancy Among Underage Girls 14

2.3 Right of Children and Youth to Be Heard ─

Central Group of Child and Youth Representatives 17

Part 3 Civil Rights and Freedoms

3.1 Violence Against Children ─ Child Protection Status 20

3.2 Children witness to domestic violence 25

3.3 Sexual Exploitation 28

3.4 Violence Against Children ─ Bullying 30

3.5 Children and youth Helpline 33

Part 4 Family environment and alternative care

4.1 Family Environment and Alternative Care–Divorce 35

4.2 Illicit Transfer or Non-Return of Children Abroad 38

4.3 Family Environment and Alternative Care ─ Adoption 42

4.4 The Placement for child protection 46

4.5 Kinship Care 50

I

Part 5 Basic health and welfare

5.1 Children with Disabilities 53

5.2 Children’s Right to Health: Improving the Environment 56

5.3 Information Education and Internet Addiction Among Children and Youth 59

5.4 Mental Health in Children and Youth 62

5.5 Meal and Dessert Quality and Diet Education for Preschools 64

5.6 The Rights of the Child during the COVID-19 Pandemic and Disasters 66

Part 6 Education, Recreation and Culture

6.1 Early Childhood Education and Child Care 69

6.2 Minority and indigenous children 72

Part 7 Special Protection measures

7.1 A Profound Lack of Leisure Activities and Facilities for Teenagers 76

7.2 Limits on The Maximum Period of Continued Juvenile Protective Detention

should be Placed 78

7.3 Probation and Classification Shall Be Available in Juvenile Detention Centers 80

7.4 The Implementation of Juvenile Probation Officers and Juvenile Protection

Officers 82

7.5 The Youth Counseling Committee Should Strengthen the Prevention of Youth

Deviant Behaviors and Enhance the Functioning of the Consultation System 84

II

 Preface

This Alternative Report is an independent viewpoint on the current situation of

children and youth along with the response to the ROC’s governmental second CRC

report, written by Taiwan NGOs for CRC (TNCRC), which integrates the expertise and

practice experience of 12 members of children and youth service groups. TNCRC has

been one of the major NGO alliance advocating for the implementation of Convention

on the Rights of the Child (CRC) since its foundation. Its primary mission is to assist

child and youth protection workers better understand CRC and promote the core

principles in the nation. The alternative report is the result of 20 online and offline

meetings participated by all TNCRC members who profoundly engaged to improve the

rights of children and youth in Taiwan. In addition, TNCRC also conducts international

seminars and participates regional conferences to learn from the global experience of

the implementation of CRC. Furthermore, TNCRC undertakes to become an effective

force in monitoring the review process of CRC national reports. The report consists of 7

parts, 29 topics including: general implementation measures, general principles of CRC,

civil rights and freedoms, family environment and alternative care, basic health and

education, recreation and culture, as well as special protection measures. These reports

are from the first-hand observation of the TNCRC members have been working with

children and youth and the related field for long.

Although the CRC national report is compiled based on concluding observations,

the implementation results over the past five years by the government, it is mostly a

pure description of the work done by different sectors and lacks integration. After

multiple rounds of discussion with NGOs, TNCRC made a core proposal: the

government should establish a designated authority at the level of “Executive Yuan” of

the central government. The designated authority would facilitate inter-ministerial

coordination to solve the disunity of sectors so that could effectively handle the

concurrent issues regarding the well-being of children and youth and the.

The amendment of Juvenile Justice Act (JJA) is an achievement in the judicial

human rights of children and youth since the CRC national report first published.

However, law and regulation are not panacea; enforcement protocols, a system that

respects professionals to recruit right people and a clear division of labor are very much

needed. It would be disastrous, for vulnerable children and for the society, if the system

is not well-prepared for catching the vulnerable children and youth in the community

1

 The Second Alternative Report on the Implementation of the CRC

under the newly onset “diversion” concept in the JJA. Hence, five topics in the Part 7

are dedicated to address this issue.

Report on the implementation of children’s rights from 1997 to 2005 were

conducted, but a lapse of 18 years, a shortage of survey data by random sampling and

children’s voice renders a lot to improve. Despite children’s rights being added to the

“2019 curriculum for primary schools,” only about one-third of children have heard of it

and they barely understand the meaning. TNCRC members take it is an urgent need that

a survey on children’s account of their experience of children’s rights should be

conducted to inform the evidence-based policy.

This Alternative Report is made possible by 14 members of TNCRC, the

secretariat held by NTU Children and Family Research Center, special thanks to Carol

Shu Huey Wu, a PhD candidate in NTU Department of Social Work.

Taiwan NGOs for CRC

2022.03

2

 Part 1 General implementation measures

1.1 Harmonizing national laws and policy with the provisions of the Convention

(§34)

Optional Protocol to the Convention on the Rights of the Child on the sale of

children, child prostitution and child pornography (OPSC)

Concluding Observation #10; Second State Report #4, #368

~ECPAT Taiwan~

Ⅰ. Overview of the current situation

The legal liability for possessing child sexual exploitation materials in Taiwan Child

and Youth Sexual Exploitation Prevention Act is much lighter than international

standards, and there is no legal regulation on digital generated or pseudo child

exploitation materials. Even though the International Review Committee has encouraged

the Taiwan government to accept both OPSC and OPAC in the concluding observation

10 (2017), the Government has not yet taken any action so far.

1.The penalty of possessing child sexual exploitation materials is too light

ECPAT Taiwan has received 441, 516, and 811 reports of child sexual exploitation

in 2018, 2019, and 2020. Among the reported cases received by NCMEC (The Missing

Children Data Resource Center), those from Taiwan were 33,621 and 29,468 in 2019

and 2020 respectively.

In accordance with Article 39 of the Act, any person who is discovered for the first

time to possess any child sexual exploitation materials shall be subject to an

administrative fine; if the person is discovered for a second or subsequent time shall be

subject to a fine for criminal offenses. The penalty does not meet international standards,

nor does it comply with Article 3 of the OPSC. Moreover, a search warrant cannot be

issued for administrative penalty cases under the Code of Criminal Procedure. In other

words, even though the perpetrator is located, the law enforcement officers still cannot

conduct a search. Furthermore, the lack of awareness of the harm of child sexual

exploitation materials and the passive investigation attitudes of law enforcement officers

caused the low number of administrative penalty cases which is only 4, 3, and 8 in 2018,

2019, and 2020.

3

 The Second Alternative Report on the Implementation of the CRC

2. No legal regulation on digital generated or pseudo child sexual exploitation materials

ECPAT Taiwan has received 28, 37, and 37 reports about digital generated or pseudo

child exploitation materials in 2018, 2019, and 2020, but this is only the tip of the iceberg.

Since no legal regulation on digital generated or pseudo child sexual exploitation

materials under the Act, we cannot know the actual number of digital generated or pseudo

child sexual exploitation materials.

In line with Article 2 of OPSC, a child sexual exploitation material means any

representation, by whatever means, of a child engaged in real or simulated explicit sexual

activities or any representation of the sexual parts of a child for primarily sexual purposes.

Although digital generated or pseudo child sexual exploitation materials exist on the

online forum and social media platform, and one can even easily buy child sex dolls

online, no law restricts this issue yet.

Ⅱ. Comments on the 2nd State Report

In response to Concluding Observation 10, the government put forward "Reservation

and Declaration" in the Second State Report "General Measures of Implementation",

stating that although Taiwan has not joined the OPSC, the laws and regulations related to

child and youth sexual exploitation prevention were established/amended based on the

spirits of the Protocol.

The Government has proposed a draft amendment to criminalize possessing child

sexual exploitation materials, but it has not been sent to the Legislative Yuan for review.

Besides, there are no regulations on digital generated or pseudo child sexual exploitation

materials in the draft amendment. In conclusion, Taiwan has not met the requirement set

by the OPSC and fully followed the spirits in protecting children from sexual exploitation.

Ⅲ. Recommendations

1. Possessing child sexual exploitation materials not only cause further harm to the

victims but also aggravate the supply and demand of trading child sexual exploitation

materials which result in more victims. We urge the Government to accept and

incorporate OPSC as soon as possible and criminalize the possession of child sexual

exploitation materials accordingly.

2. Digital generated or pseudo child sexual exploitation materials can cause the society

normalize the sexualization of children and treat children as sexual objects which

puts children at risk. The Government should legislate without delay to protect

children from sexual exploitation.

4

3. Law enforcement officers need to put more effort into cracking down on the possession

of child sexual exploitation materials. Also, the Government should emphasize the

illegality of possessing child sexual exploitation materials and the risk of digital

generated or pseudo child sexual exploitation materials.

5

 The Second Alternative Report on the Implementation of the CRC

1.2 Establish a Children's Rights Division under the National Human Rights

Commission; Create a Children's Ombudsman Office; or Appoint a Children's

Right Committee (§12、§19)

Concluding Observation #14, #15, #26; Second State Report #26 ~ #31

~Good Neighbors Taiwan~

Ⅰ. Overview of the current situation

Due to the low birth rates in recent years, the government has pushed to increase

childcare centers and kindergarten as part of the strategic plan to encourage fertility rates.

From 2010 to 2020, the number of childcare centers and kindergartens increased from

169 to 1269. Yet, the consistent reporting on child maltreatment in schools has continued

to cover the news in the past two years. Instances such as child abuse, threats, or improper

discipline have caused children to panic and find it difficult to fall asleep at night.

Therefore, it is critically important to set up a competent authority in children's rights

under the National Human Rights Commission to investigate ongoing cases and

safeguard children's fundamental rights actively.

Ⅱ. Comments on the 2nd State Report

According to Section 26 in the 2nd State Report, the Control Yuan authorized the

National Human Rights Commission (NHRC) establishment in August 2020. However,

the state fails to respond or comment on concluding observation #15 regarding the

recommendation to form a children's rights division under the NHRC; create a children's

ombudsman office; or appoint a children's rights committee.

Section 27 to 31 in the 2nd state report primarily focuses on diversifying complaint

mechanisms. Meanwhile, sections 28 to 30 only elaborated on information and

procedures regarding the current complaint mechanisms in child care agencies, schools,

or children placement organizations. NHRC remains reactive in handling the petitions.

The commission lacks proactive and preventative intervention to protect children's rights.

The CRC was domesticated as legislation in 2014. NHRC has yet to make pivotal

progress and strategic work plans on improving children's rights in Taiwan. As a result,

we urge the government to consider establishing a children's rights oversight body and

ensure the competent authority is serving its function to advance the child's rights.

6

Ⅲ. Recommendations

Given the analysis above, Taiwan NGOs for CRC highly recommends the following

actions:

1. Promptly set up a children's rights division under NHRC; or create a children's

ombudsman office; or appoint a children's rights committee. The oversight unit should

act as a liaison, protector, and advocate to promote the rights of the child.

Simultaneously, the oversight unit should monitor the government's effort to

implement policies in the children's best interests. The oversight unit's responsibilities

include but are not limited to:

a. Actively investigate whether the procedure and decisions made in legislative,

administrative, and judiciary entities are aligned with the children's best interests.

In addition, propose any advice, policy recommendation, or legislative

amendment to further strengthen children's rights.

b. The children's rights oversight unit should have the authority to enter both public

and private children welfare institutes or transition (halfway) schools to evaluate

children's treatment and needs within these placements. It can also reference

Article 46 in the Long-Term Care Services Act to collaborate with civil society

groups to monitor the quality of children's rights services and serve as an

independent competent authority to supervise these placement entities.

c. The oversight unit should provide the necessary support to children when needed.

For example, connect children with service providers such as non-governmental

organizations or other family assistance. Additionally, to provide sideline support

on family consulting services.

2. Provide children with an accessible and diversified platform to file complaints.

Ensure the resources and information to file complaints are widely disseminated to

children in all areas. In addition, reassure the children that an independent office will

manage these complaints with legitimate authority. The competent authority should

be objective and unbiased when ruling the cases. All privacy information during the

procedure will be protected.

3. The children's rights oversight unit should consistently publish an annual children's

rights report, including the current progress on children's right to express.

7

 The Second Alternative Report on the Implementation of the CRC

1.3 Data Collection (§19. §2)

General Comments # 8, # 13; Concluding Observation # 20

~Child Welfare League Foundation,

Zhi-Shan Foundation TAIWAN~

Ⅰ. Overview of the current situation

The statistics section on children and youth on the CRC (Convention on the Rights

of the Child) website of Social and Family Affairs Administration, Ministry of Health

and Welfare shows a variety of data and statistics on children and youth. However, the

presentation methods, years and age groups are not consistent, which make it impossible

to understand the current trends or the complete picture of the issues related to Taiwanese

children and youth.

1. Improvement required for data collection and presentation

Currently, the Social and Family Affairs Administration, Ministry of Health

and Welfare collects the data on children and youth from various government

agencies for the statistics section on children and youth. However, they do not

coordinate the data so the age groups, data update frequencies and dates are varied.

Meanwhile, some of the data are stored on Google Drive, which could have

credibility and information security issues. Terminology definitions and statistics

are scattered across pages, making it inconvenient and may even be misused.

2. Frequent change of statistical indicators or incomplete data

The statistics on child and youth protection changes each year to be in line

with policy. Hence, it is not possible to compare the years and understand the trends.

Meanwhile, some services to children and youth are rendered by different

agencies. As a result, the statistical indicators are not centralized and some are

even defined differently, hence unable to reflect the actual circumstances. These are

the problems with the data of placement of children and youth, sexual exploitation,

sexual assault and bullying. There is also the question whether child and youth

murders include killing own children and then suicide.

3. Lack of relevant statistics data on children and youth issues.

The data on indigenous children and youth is still very insufficient or

incomplete. For example, an inquiry on the causes of death of indigenous peoples

8

 from 2016 to 2019 via the interactive indicators obtains the relevant data on the

causes of death of indigenous infants. However, the tabulated data on death

statistics does not show the specific indigenous groups. Hence, it is impossible to

validate the data from both sources and the accuracy of the data is compromised.

There is no reporting mechanism and statistics on bullying, children and

youth of divorced parents, corporal punishment or illegal transfers of children and

youth. The data on sexual harassment or child and youth labor is based on surveys

of the children and youth currently in school or covered by labor insurance. It does

not cover those not in schools, drop-outs, or working children and youth not covered

by labor insurance. This causes a bias in the trend or the pattern.

Another issue is with the gradual reduction in the age of Taiwanese children using

digital products for the first time. The percentage of Internet access by preschool

children is on the increase but there is no sufficient data on the particulars of Internet

usage among children below 12 years old. As a result, there is no empirical data for

policymaking or measures when it comes to prevention and handling of Internet addiction

among children and youth.

Ⅱ. Comments on the 2nd State Report (#23)

The centralization of the statistics section on children and youth on the CRC website

does facilitate inquiries on relevant data. However, there are gaps and omissions in the

abovementioned data collection and presentation methods.

Ⅲ. Recommendations

1. Improvement in website presentation and content

In order to present an overall picture and trends, presentation methods can be

gradually optimized (e.g., interactivity and visualization) for the more stable and

clearly defined statistical indicators such as demographic of children and youth or

goals of prioritized policies and actions. The children-friendly presentation

method described in General Comment No. 5 can serve as a reference. It is

suggested that data should be regularly updated, systematically presented and

accompanied with operational definitions.

2. Enhance collection of indicator data

To implement the suggestions from the 2017 Concluding Observations, a

central data collection unit should be established, indicators and definitions should

9

 The Second Alternative Report on the Implementation of the CRC

be clearly defined (in reference to internationally accepted indicators and

definitions) and relevant agencies should be asked to gather data. Meanwhile, the

government should collect data and include status category such as children, youth

and indigenous peoples, as stated by laws. For instance, a column for ethnic group

statistics should be added to the statistics reports of social welfare services. In the

statistics section on the webpage of Department of Statistics, Ministry of Health

and Welfare, the statistical graphs and analysis on indigenous peoples can be

constructed in the same way as the gender statistics section. This will enhance the

robustness and the accessibility of the data on indigenous children and youth.

The survey on the internet usage by children below 12 years old serves as the

basis of estimates for internet usage. In the absence of relevant empirical data, frontline

workers may lack or lose the capabilities for immediate judgement and prevention.

It is also necessary to build a database of statistics on child and youth protection, in

order to gain an understanding of the patterns, annual trends and changes in the events

related to child and youth protection in Taiwan and serve as a basis for planning

relevant services.

In addition, given the impact of policy changes have on the definition of

indicators, the government should backtrack and complete the missing parts as much

as possible, in order to compare the different years and analyze trends and patterns.

10

 Part 2 General principles of CRC

2.1 The principle of non-discrimination (§2)

Concluding Observation # 27~28; Second State Report #48~59

~Zhi-Shan Foundation TAIWAN~

Ⅰ. Overview of the current situation

Indigenous children are still severely discriminated against in their growth.

According to the observations of front-line social workers who work with

indigenous children, the proportion of indigenous children who experience ethnic

discrimination on campus or in the community is still very high. Although there are

legislative prohibitions, there is still a lack of non-discrimination measures against

indigenous children, including concrete improvement practices that can be implemented

in practice when children are discriminated against. In 2019, Zhi-shan Foundation

conducted a sample interview with 12 indigenous children who were studying in Taipei

City or New Taipei City. Results found that 100% of the 12 indigenous children have had

the experience of being discriminated against to varying degrees. For example, one was

teased for riding a wild boar to class, another was made fun of the skin color is too dark

to be found in the dark. Moreover, a few were ridiculed that they do not need to study

hard, anyway, they will upgrade due to the “upgrade guarantee system”. All these labelled

negative experiences lead to a lower sense of self-ethnic identity among the indigenous

children. Naturally, there will be a disconnection with the learning and cognition of the

mother culture, making it difficult to produce ethnic identity, and even doubting

themselves or lacking self-confidence. Ethnic identity makes it more difficult for

indigenous children to establish a connection with ethnic culture in mainstream society.

Ⅱ. Comments on the 2nd State Report

Paragraph 48 (p.9) of the 2nd State Report of the Convention on the Rights of the

Child mentioned: 2018 Taiwan Children's Living Conditions Survey Report pointed out

that 91.5% of the children sampled did not feel discriminated against, and only 8.5% felt

discriminated against. This report seems to suggest that the problem of discrimination is

not serious in Taiwan, but unfortunately, the report does not further analyze the ethnic

identity of the 8.5% of the children who feel that they have been discriminated against.

Even until now, the Taiwan government has no statistics on the experience of

11

 The Second Alternative Report on the Implementation of the CRC

discrimination against indigenous children. However, it is found from practical

experience that Taiwan's indigenous children have a lot of experience of being

discriminated against.

In paragraph 27 and 28 of the first concluding observations, the International Review

Committee has already raised concerns that there are only relevant legal norms related to

non-discrimination, and the lack of specific policies and action plans to implement the

right to non-discrimination might led the principle of non-discrimination become a slogan

only. It is a pity that in the 2nd state report, paragraph 48-59 (p.9-p.10), only the non-

discrimination measures related to the implementation resistance of multi-gender issues

are mentioned, and there is still no specific action plans for removing prejudice and

stereotypes against indigenous children. The 2nd state report is still in the discussion of

measures related to the special protection of education rights and cultural rights to

indigenous children.

Ⅲ. Recommendations

1. System level: Although there are laws and regulations prohibiting discrimination, most

of them are of declarative significance, and there is a lack of relevant operational

measures to implement anti-discrimination behaviors. In addition to the Ministry of

Culture’s "Directions on Subsidizing Cultural Rights" to promote cultural affirmative

action, it is recommended that other relevant ministries, such as the Ministry of

Education, the Ministry of Health and Welfare, and the Council of Indigenous People,

extend and develop relevant operating methods in addition to the existing laws and

regulations to promote the implementation of anti-discrimination measures.

2. Social and adult education: "Non-discrimination" can easily become a slogan. It is

recommended that the "Compendium of Anti-Discrimination Cases for Children"

produced by the Social and Family Affairs Department of the Ministry of Health and

Welfare can be used to strengthen publicity and correct public attitudes, and further

develop anti-discrimination action plans to eliminate discrimination, such as making

the Cliff’s notes version of non-discrimination, using the Internet, radio, newspapers

and publications to promote the concept of diverse ethnic groups to the public and so

on.

3. School education: It is recommended to popularize emotional education on campus

(emotional education refers to attitudes, emotions and beliefs in broad interpersonal

interactions, including family, friendship and love) and comprehensively promote the

12

 understanding of diverse ethnic groups. In addition to encouraging and supporting

students to form and to participate in indigenous associations, from primary school to

middle school, students should also be required to take certain number of hours in

emotional education, and then track the effectiveness. By strengthening the attitudes,

emotions and beliefs of respect and acceptance that should be possessed in

interpersonal interaction, and designing curriculum activities by understanding the

history, culture and issues of diverse ethnic groups, we can promote mutual

understanding, remove stereotypes, resolve prejudice and eliminate discrimination.

4. Teacher training system: The anti-discrimination action plan should be extended to

educators. It is suggested that the teacher training system should include relevant

courses on ethnic mainstreaming and multi-cultural viewpoint cultivation. Moreover,

ethnic mainstreaming lesson plans, and incorporate "non-discrimination" should be

developed into the Ministry of Education teachers' on-the-job training courses. As a

result, they can cultivate the correct attitudes, emotions and beliefs that teachers and

students should have when interacting, and through anti-discrimination case studies,

teachers are also taught how to deal with discrimination issues in schools, so that the

risk of occurrence of campus discrimination can be reduced.

13

 The Second Alternative Report on the Implementation of the CRC

2.2 Avoid Unintended Pregnancy Among Underage Girls (§2, §6, §18, §28)

Concluding Observations #65 ~ 67, Second State Report #226 ~ 229

~Taiwan Association for Sexuality Education~

Ⅰ. Overview of the current situation

1. Unintended pregnancy among underage girls is prevalent

The statistics provided by Ministry of the Interior1 reveals that over the past ten

years, there are approximately 3000 teenage mothers aged 15 to 19 annually in Taiwan.

No sign of effective decrease in adolescent pregnancy is displayed. The significant

difference between the teen birth rate in six special municipalities (e.g. the rate in

Taipei is 0.001) and rural areas (e.g. the rate in Hualien is 0.011) indicates issues such

as urban-rural gap and the even distribution of medical and prevention resources.

Control Yuan issued a corrective measure on this matter to Ministry of Health and

Welfare and Ministry of Education via a press release in 20172. According to The

Garden of Hope Foundation3, of all 590 pregnancy cases it assisted in 2019, nearly

half (48.1%) were teenage girls and 11.7% were repeat unintended pregnancies.

2. Elementary and secondary school students are in urgent need of more sexuality

education

Ministry of Education discovered in 20144 that sexual knowledge among high

school students have not substantially improved (rated 69%) in the past few years.

Among those who have had experienced sexual intercourse, 13% have been pregnant

or have impregnated their partners and only 26% have worn condoms. When asked

about the school sexuality education on “pregnancy and contraception,” merely 30%

of the students regarded the topic covered was in detail and sufficient, yet 14%

commented that the topic was not discussed or was touched on briefly. Nonetheless,

research also suggested that the more detailed the topic was taught and the more

satisfied students felt, the more accurate sexual knowledge and more positive attitude

students possessed. In addition, a survey carried out by Child Welfare League

Foundation5 in 2016 indicated 26% of families had never talked about sexual

knowledge, 67.6% and 56.3% had never discussed sexual behavior or relationships;

29.6% of students responded that teachers deliberately avoid sensitive topics at class.

The older the students, the further teachers steer clear of the topic.

14

Ⅱ. Comments on the 2nd State Report (#226 ~ 229)

1. #226 (a) of ROC’s Second Report stated that The Deliberation to the Curriculum

Guidelines Committee should consists of student members and the opinion of children

and youth should be taken into consideration. We maintain that the government should

conduct continuous and comprehensive research on the topic and understand the

viewpoints of children and youth by collecting their feedback instead of relying on the

way of a few student members.

2. #226 (b) of ROC’s Second Report mentioned that 108 Curriculum Guidelines require

schools to not only cover issues like “gender equality,” including biological sex, sexual

orientation, gender traits, and gender identity, but also should choose different teaching

materials based on local culture and students’ needs. #228 (a) stated that learning

brochures and CDs about these issues should be published for parents to learn and

teach their children. Although gender equality education indeed prevents sexual

assault, sexual harassment and sexual bullying, we believe sexuality education and

reproductive health education cannot be replaced by it.

In fact, elementary and middle schools do include sexuality education in Health

Education course. Yet, competent authorities allow most classes be taught by teachers

who do not have expertise in Health Education. The fundamental solution to the

problem is to hire more Health Education teachers and put more efforts in sexuality

education.

3. #228 (b)(c) of ROC’s Second Report stated that the government created a “Health 99

-Youth Resource” website providing accurate resources on sexuality education and

promoting health, and a consultation line for parents and youth. Yet, previously, the

“Sexuality Education Consultation Line” and the “Sexual Health Education Campus”

website set up by Ministry of Health and Welfare had been at service for multiple years,

accumulating a large amount of resources and users. Unfortunately, they were

instructed to end the service a couple years ago. The website should be restored to

offer children, youth, parents and teachers professional help with privacy. The

consultation line should enhance its’ services.

Ⅲ. Recommendations

Nip the problem in the bud. It is suggested that courses on sexual and reproductive

health education to be resumed and to be revised accordingly. The following are specific

suggestions:

15

 The Second Alternative Report on the Implementation of the CRC

1. Implement specialized teaching:

“Sexuality education” is a part of “Health Education” under the current

Curriculum Guidelines for elementary, middle and high schools. Nevertheless, due to

teacher shortages, it is common for non-specialized teachers to teach such courses. The

competent authority should set concrete goals to recruit more health education teachers

to meet the demand. Courses related to sexuality education should be added to the

Elementary Teacher Education Program.

2. Teaching improvement plans:

Teachers often feel inadequate lack of formal training in teaching sexual health,

therefore, more related training and competition should be held. (There aren’t enough

workshops.)

3. Upgrade the counselling system:

Student counselling system should be upgraded to assist and accompany students

when facing sex-related problems.

4. Parenting improvement plans:

Support groups or consultation platforms should be established to help parents

better equipped with parent-child communication skills and sexual health knowledge.

5. Professional consultation:

Websites and consultation line on sexuality education should be restored to

provide service for schools, teachers, and parents, who can seek for help via phone,

email, or Q&A session online.

6. Teaching materials and teachers’ training programs:

Teaching materials and teachers’ training programs should be up to date.

_________________________

1

Ministry of Interior (2021), “Birth rate of women of different ages” (15 – 19 years old), Gender Equality

Committee of the Executive Yuan.

2

Press release of the Control Yuan (2017) on the website of Control Yuan

3

ZHENG Yu-Zhen (2020), The Garde of Hope Foundation: More than 70% of the cases seeking for help

were under 18, 2020/10/15

4

CHENG, Chi-Chia, FENG Jia-Yu (2014), Research on sexual knowledge, attitude and behavior of high

school students and education in Taiwan. Taipei: Ministry of Education.

5

Child Welfare League Foundation (2016), Research on sex education among children in Taiwan.

16

 2.3 Right of Children and Youth to Be Heard ─

Central Group of Child and Youth Representatives (§12, §13)

General Comment # 12, Concluding Observations # 31, # 32

~Child Welfare League Foundation~

Ⅰ. Overview of the current situation

Our government officially established the Central Group of Child and Youth

Representatives in 2020. Each year, three child and youth representatives will be selected

by each county/city government. A total of 66 representatives will be selected and divided

into three groups, Executive Yuan's Child and Youth Welfare and Rights Promotion

Group, Ministry of Health and Welfare's Child and Youth Welfare and Rights Promotion

Group and Ministry of Health and Welfare's Child and Youth Injury Prevention

Promotion Group. There is an open recruitment of suitable non-profit organizations to

empower the child and youth representatives and Child Welfare League Foundation,

R.O.C. was selected from 2020 to 2022.

Inadequate expression of opinion for children and youth in the adult model

There are limited opportunities for child and youth representatives to voice opinions

under the existing system. Meanwhile, participation from children and youth is difficult.

This is partly because some cities/counties have yet to establish an open and fair selection

mechanism. Another factor is that only few of the child and youth representatives are able

to serve as formal committee members, attend meetings, and bring forward proposals.

For example, in the Injury Prevention Promotion Group, children and youth can only

attend and are unable to bring forward proposals.

Meanwhile, rules of procedure are centered on adult committee members. Children

and youth must adapt to arduous rules of procedure and language of adult meetings in

order to participate and make proposals. This makes involvement difficult. According to

the end-of-term questionnaire survey that the trial group of child and youth

representatives filled out in 2020, the top 3 most challenging things during the term were

the development of proposals in a short period of time (56.7%), meeting schedule

conflicts with school work and exams (50.0%) and unfamiliarity with the language and

format used for proposals (30.0%). It is worth noting that the questionnaire survey was

conducted when the child and youth representatives were just about to finish their term,

which meant that they had already participated in a variety of empowerment programs

and meetings. Still, 30% of the child and youth representatives were still unfamiliar with

17

 The Second Alternative Report on the Implementation of the CRC

the format and language used for proposals. This shows the difficulty for children and

youth to adapt to the ways of adult meetings.

If the child and youth representatives lived in remote areas, had busy schedules due

to school curriculums and important exams, or had teachers or adults who disapprove of

their participation, it would make the exercise of the rights to be heard even harder for

the child and youth representatives.

Ⅱ. Comments on the 2nd State Report (#73)

It is a good start for national reports to clearly explain all the aspects of current

efforts to encourage child and youth representatives to participate in regular discussions

and decision-making mechanisms. However, there is a lot to be improved in practice.

This includes the issues of transportation, scheduling and pressure from schools on

meeting attendances by child and youth representatives. How to reduce the barriers to

involvement is worthy of further planning.

Ⅲ. Recommendations

1. Establishment of child-and-youth-friendly participation format

a. It is suggested to consider the children’s parliaments in other countries or arrange

additional plenary sessions for children and youth to speak freely. The purpose is

to avoid letting the formality of adults’ rules compromise the children and youth’s

right to be heard. Suitable procedure rules and proposal formats for children and

youth should be formulated, in order to incorporate the opinions from child and

youth representatives during empowerment.

b. Governments should consider diversifying the types of conferences and meetings

by factoring in the transportation barriers, increasing the availability of venues, and

exploring the possibility of online meetings.

c. The scheduling of central meetings should take the dates of the national

examinations taken by child and youth representatives into account. Appropriate

adjustments should be made to encourage participation of child and youth

representatives.

2. School support is of paramount importance

The Ministry of Education should advocate the importance of child and youth

participation to schools at all levels, so the schools can provide support and assistance

18

to child and youth representatives to exercise the right to be heard. Schools should be

a support, and not an obstacle to such right.

19

 The Second Alternative Report on the Implementation of the CRC

Part 3 Civil Rights and Freedoms

3.1 Violence Against Children ─ Child Protection Status (§3, §6, §19)

Concluding Observations # 56, # 57; Second State Report #113~ 114, #127~ 133

~Child Welfare League Foundation~

Ⅰ. Overview of the current situation

1. Corporal punishment of children is common; regulations do not completely protect

children from corporal punishment

Child Welfare League Foundation1, R.O.C. conducted a survey in 2018 by

randomly sampling the students from fifth grade to eighth grade in Taiwan regarding

their experience of corporal punishment. According to the survey, 63.0% happened at

home, 23.6% happened at cram schools or after-school care, 21.1% happened in school

classes, and 11.6% happened at kindergartens. This indicates that it is common for

children to receive corporal punishment in various places.

The spirit of CRC is to protect children from all forms of violence. Concluding

Observations No. 56 and No. 57 of the Initial National Report suggest that corporal

punishment at home should be banned by law, in order to implement CRC General

Comment No. 8. However, the Civil Code of Taiwan allows parents to implement

punishment “within the limit of necessity” and does not exclude corporal punishment

of children from such a limit. In addition, Article 49 of the Protection of Children and

Youths Welfare and Rights Act prohibits anyone from committing serious and

improper treatment of children and youth such as physical and mental abuse. However,

this article focuses on forbidding “serious” physical and mental abuse, which does not

include general corporal punishment. As a result, there are no laws in Taiwan that

places a ban on corporal punishment to protect the right of children in many settings

such as in-house child care, infant care centers, placement organizations, reform

institutions, after-school care and cram schools.

A number of severe corporal punishment cases occurred in infant care centers and

cram schools during the past years. (For example, a nanny at the infant care center

forced young children to take naps by physically forcing their bodies and hitting them

on the head2. A judo coach, angered by verbal confrontation from a boy, threw the boy

to the floor repeatedly which eventually led to his death3). The laws do not prohibit

corporal punishment in infant care centers and cram schools. Even if the rules against

20

 corporal punishment are in place for schools and kindergartens, corporal punishment

in school is still often reported by media4. This shows that the laws banning corporal

punishment are not properly enforced.

2. Dramatic change in the secondary prevention system undermines the preventive

function of child protection

During the recent years, the government gradually transformed the only

nationwide secondary prevention system for children (i.e., high-risk family services)

into the vulnerable family services (a.k.a. family empowerment or family support

service) under the social safety net program. The original program is now divided into

two: the high-risk cases are now included into Domestic Violence and Sexual Assault

Prevention Center as the tertiary prevention for child protection and the low-risk cases

are now incorporated into the vulnerable family services rendered by the government’s

community welfare centers. As a result of this transformation, social workers from the

private sectors were no longer responsible for case management or solely focusing on

child abuse prevention by providing supportive services to the families of child abuse

risks. In the new system, social workers from the government are in charge of case

management and expanding services to the those with mentally or physically disability,

senior citizens, women, etc. Prevention of child abuse is not the only goal for the

program anymore.

In general, this undermines the attention and dedication to the families with

children and youth and dilutes the function of the original secondary preventive

services for children and youth. As pointed out by the Control Yuan’s report5, the

drastic systemic change has caused a shortage of social workers and created

insufficiently planned services for the preventive services for children and youth under

the current social safety net. It is unable to handle the amount of cases. The hasty

process of the program transformation has resulted in a high re-reporting rate. All these

indicate the revamped system is ineffective and has taken a step back in terms of

secondary prevention.

Ⅱ. Comments on the 2nd State Report (#113~114, #127~133)

1. Comment on National Report’s response to prohibition of corporal punishment

at home (#127)

The National Report 127(b) indicates that it is not necessary to eliminate the

parents’ right to inflict punishment in the Civil Code of Taiwan. However, it does not

21

 The Second Alternative Report on the Implementation of the CRC

provide other proactive responses to the ban of corporal punishment within the family

on a legal level. In other words, the government essentially does not respond to the

suggestion in Concluding Observations No. 56 and No. 57 in the first report regarding

the prohibition of corporal punishment at home. In fact, the prohibition of corporal

punishment at home does not equate to the elimination of the parents’ right to inflict

punishment under the Civil Code. In Japan, where the national conditions are similar

to those in our country, corporal punishment at home is banned with legislative

amendment in 2019, but the parents’ right to inflict punishment was not removed in

the civil code. Rather, corporal punishment at home was banned via the amendment to

the Child Abuse Prevention Law. To be specific, corporal punishment is beyond the

“limit of necessity” of the parents’ right of guardianship and education conferred by

the Civil Code. The government may refer to Japan’s experience in order to take

proactive actions against corporal punishment at home.

2. Comment on National Report’s mentioning of other measures to prohibit corporal

punishment (#129~133)

National Report #129~131 mentions the prohibition of corporal punishment on

campus. Attachment 5-25 lists that over 97% of elementary and junior high school

students did not receive corporal punishment on campus over the years. This result is

rather different from the findings that 21.1% of the students have experienced corporal

punishment on campus, according to the aforesaid survey conducted by Child Welfare

League Foundation, R.O.C. on the students from fifth to the eighth grades in 2018.

Also, the survey by Humanistic Education Foundation6 in 2019 shows that 68.6% of

the junior high school students have witnessed or experienced corporal punishment on

campus. The statistics provided by the Ministry of Education underestimates the actual

situation of corporal punishment on campus, possibly because of the way the survey

was conducted and how the questions were asked.

National Report #127~133 also shows the inadequacy of the laws banning on

corporal punishment in Taiwan. The prohibition of corporal punishment is only for

schools and kindergartens. The law that prohibits corporal punishment at reform

institutions is still under formation. There are no regulations against corporal

punishment at home, in-house child care, infant care centers, cram schools or

placement agencies.

3. Comment on the transformation of high-risk family service program (#113~114)

22

 National Report #113~114 mentions the transformation of high-risk family

services, the nationwide secondary prevention program for child protection. This is a

major change in Taiwan’s child protection policy. However, there has been no

publication of reports or studies on the effectiveness of the service in the National

Report after the nationwide program was divided into child protection and vulnerable

families services. In the past, the number of cases, the percentage and the reasons of

case intake under the high-risk family service were disclosed every six months on the

website of Social and Family Affairs Administration, Ministry of Health and Welfare.

However, the government has yet to publish any data on high-risk family services and

vulnerable family services in the child protection system after the transformation in

2018. The first and the only statistics available is the extremely simplified data shown

in National Report’s Attachment 5-13, and such data does not provide comparability

of the programs before and after transformation. The lack of transparency on the status

of the service adds to our concern for the service quality and implementation.

Ⅲ. Recommendations

1. Legislation and enforcement against corporal punishment of children in all settings

The government should accelerate the legislations or amendments that prohibit

corporal punishment of children in all settings, including at home, in-house child care,

infant care centers, placement agencies, reform institutions, after-school care classes

and cram schools, in order to provide comprehensive child protection against violence

on a legal level. At schools and kindergartens, where corporal punishment is already

banned by laws, legal enforcement should be ensured via training, education and

supervision of teachers and childcare personnel, and research, surveys and disciplinary

actions addressing corporal punishment on campus.

2. A secondary prevention program exclusively for child protection and transparency

of program assessment are required

The division of programs and the expansion of service after major adjustments to

the child protection policy means that case management personnel no longer focus

solely on child/family support services. As a result, the functions of secondary

prevention service for child protection have been undermined. The government has yet

to disclose the effectiveness of the alternative, the vulnerable family service program,

after more than two years of implementation. This is in contrast with the previous and

periodical publication of service data of the high-risk family service. The worrisome

23

 The Second Alternative Report on the Implementation of the CRC

and drastic policy change and the non-transparency of data may jeopardize the rights

of children. We suggest that the government should reinstate the secondary prevention

program and case management personnel exclusively for child protection, properly

assess the services and regularly disclose the relevant statistics of the service.

_________________________

1

Child Welfare League Foundation (2018)。2018 Survey of corporal punishment and related factors

among children and children in Taiwan。

https://www.children.org.tw/publication_research/research_report/2235

2

Caregiver caught on camera suffocating baby in Taipei nursery

https://www.taiwannews.com.tw/en/news/3671632

3

A 7-year-old judo student was slammed to the ground 27 times. He died months later

https://www.washingtonpost.com/nation/2021/07/01/taiwan-boy-died-slammed-judo-coach/

4

Schools defying corporal punishment ban: survey

https://www.taipeitimes.com/News/taiwan/archives/2019/10/06/2003723470

5

Control Yuan’s investigation report -2021 Social Survey 0019

https://www.cy.gov.tw/News_Content.aspx?n=125&s=21978

6

Humanistic Education Foundation’s (2019) questionnaire survey on campus

https://hef.org.tw/20191003news/

24

 3.2 Children witness to domestic violence (§12, 19)

Concluding Observations: # 39, # 53; Second National Report # 111, #115~116

~Good Shepherd Social Welfare Foundation、

Taipei Women's Rescue Foundation~

Ⅰ. Overview of the current situation

In 2015, Taiwan revised the Domestic Violence Prevention Act to have children

witness to domestic violence (“witnesses”) under current protection system by

formulating regulations regarding child protections and the involvement of children voice.

However, while such efforts are supposed to strengthen child protection systems, the

witnesses still face the following rights violations:

1. Protection services for the witnesses are part of the domestic violence service, safety

risks and psychological trauma the witnesses face are still easily overlooked.

The current notification of witnesses is mainly through the domestic violence

service. Children witnesses are only reported to the child protection service when they

are being physical abused, otherwise, the witnesses are assessed by adult protective

social workers of domestic violence service. Currently, information regarding how

witnesses have gone through is mostly provided by their parents. The witnesses are

not all, except for those under 6, entitled to social worker visits and assessment of their

safety risks if they suffer from psychological trauma and have the needs of support or

assistance.

2. As appropriate assessment indicators are not in place; the witnesses are not guided to

related services and resources that meet their needs.

Based on the data collected by civic organizations and groups, it is estimated that

more than 10,000 witnesses are reported every year, of which about 50% are referred

to the education departments, 20% are referred to the social welfare organizations, and

the 30% are under the same protection and follow-up systems as adults in domestic

violence service.

With a large number of adult victims and witnesses, the witness case assessment

is mainly based on the student identity and passed on to the education department. The

cases that referral to social services, such as situations involving high risk family and

frequent report to the authorities, could fail to make appropriate assessment, leaving

25

 The Second Alternative Report on the Implementation of the CRC

the witnesses unable to have the resources they need, because of lack of necessary or

essential case indicators.

3. The judicial trials focus more on discretion on parental rights, and children’s opinions

are not always taken into consideration

According to civil organization statistics, about 30% of witnesses’ case have

entered the legal stage. Although the witnesses are able to express their opinions

through the judicial procedure, the information they enquire is mainly in verbal form.

The witnesses in young age or with special physical and mental disabilities may face

challenges to express their feelings, and their opinions are thus easily overlooked.

In addition, the family courts attach importance to family harmony and Co-

Parenting, so the court procedure focus more on the discretion of parental rights,

judicial personnel may not be sensitive enough to grasp the specificity of domestic

violence cases, the psychological trauma and safety risk of witnessing violence. Under

the circumstances, the children's best interests and rights to be heard are difficult to be

protected.

4.The judicial protection for visitation must be applied by adults, and the current service

utilization rate is low

As visitation are often the battleground for high-conflict families, visitation should

be evaluated and applied to necessary protective measures, such as supervised

visitation. In most cases, however, such measures are mainly applied by adults, not the

children.

From 2015 to 2019, only 106.6 cases 1 of protection orders issued each year relate

to the visitations. It is estimated that the utilization rate of supervised visitation remains

low, according to the Judicial Yuan statistics.

Parents who negotiate to have child visitation often get into conflicts which in turn

makes the children once again suffer from psychological predicament of witnessing

domestic violence or face “the loyalty dilemma” between their parents.

Ⅱ. Comments on the 2nd State Report (# 111, #115, #116)

The second national report presents the overall child protection concept diagram of

"The Social Security Network Plan" in Attachment 5-10, Articles 111 and 115 shows the

government services and resources for the witnesses.

26

 However, there is no relevant statistics and implementation data, which makes it

difficult to assess whether the witnesses and their families receive resources and

assistance in accordance with their needs.

Refer to Articles 83 of the initial national report, measures to safeguard children's

right to express their opinions on family affairs were proposed, which involve private

courts, the family investigators, and the guardian ad litem. Refer to Article 116 of the

second national report shows statistics for the accompanied present in court. The

implementation overview and outcome for above-mentioned judicial measures, however,

are nowhere to be found, making it difficult to evaluate whether the implementation of

each measure has managed to protect the legal rights and best interests of the witnesses.

Ⅲ. Recommendations

1. Domestic violence protection personnel should enhance the professional knowledge

training for witnesses to understand the impact of witnessing violence on children,

implement safety and needs assessments, and connect to appropriate resources and

services.

2. The domestic violence services should focus on the harm of witnessing violence on

children and form a child protection cooperation mechanism.

3. The judicial personnel should conduct professional training concerning the witnesses,

and when adjudicating parental rights arising from domestic violence cases, they

should enhance their sensitivity to the physical and mental harm caused by the violence

to children.

4. The judicial procedures for parental rights should subject to children to create children-

friendly court, consult children's opinions, embrace diverse expressions, and value

children's right to be heard and their best interests.

5. The court should evaluate and improve the applicability of supervised visitation based

on the trauma assessment of the witnesses and the safety risk they face. The court

should also include the children’s willing into consideration and offer parent assistance

and comprehensive services.

________________________________________________

1

The data is cited from the civil protection orders released by the local courts under the Statistical Office

of the Judicial Yuan. https://www.judicial.gov.tw/tw/lp-1268-1.html

27

 The Second Alternative Report on the Implementation of the CRC

3.3 Sexual Exploitation

No related clauses in the Second State Report

~ECPAT Taiwan~

Ⅰ. Overview of the current situation

1 .The narrow definition of sex trafficking in children

According to statistics from the Ministry of Health and Welfare, from 2017 to

2020, 22 foreign children have been sexually exploited, all of whom are female. The

number of victims was increasing by years before the COVID-19 outbreak.

Victimization includes engaging in sexual intercourse or obscene acts in exchange for

monetary or other considerations, acting as a host/hostess in a bar or club, etc. However,

only the former is mentioned as a form of sex trafficking in children under the Human

Trafficking Prevention Act. It is obvious that the definition is too narrow to cover all

the situations.

2. Lack of a comprehensive law about online grooming

In ECPAT Taiwan’s victim support services, about 40% of the children are

victims of online grooming. Children are groomed to send sexual images, be sexually

assaulted, or be sex trafficked. Despite that, there is no comprehensive law to prevent

online grooming in Taiwan. Thus, the relevant statistics are also lacking.

3. No specialized investigation unit for child sexual exploitation crimes

According to the statistics from 2017 to 2020 from the Ministry of Health and

Welfare, about 70% of child sexual exploitation cases occurred online. At present, there

is no specialized investigation unit for online child sexual exploitation in Taiwan. So

far, the investigation of online sexual exploitation cases is carried out by the 9th

Investigation Corps in Criminal Investigation Bureau, National Police Agency and only

about 30 law enforcement officers are dealing with all types of cyber-crimes,

furthermore, without the specialized investigation unit, law enforcement officers cannot

accumulate experience, gain knowledge and learn skills, making them unable to handle

the increasing online child sexual exploitation cases. As a result, the urgency of

investigating child sexual exploitation crimes is easily neglected.

4. Ignoring the seriousness of self-generated sexual materials involving children

According to statistics from the Ministry of Health and Welfare, in 2019 and 2020,

59% and 78% of child sexual exploitation cases are about sexual exploitation materials

28

 or sexual extortion. Even though self-generated sexual materials involving children have

become a serious issue, the Government has not yet provided enough education or

training to professionals, parents, and children.

Ⅱ. Comments on the 2nd State Report

Although the Child and Youth Sexual Exploitation Prevention Act was amended in

2015 to expand the scope of protection of children, children who are exploited to act as a

host/hostess in a bar or club, or engage in acts associated with tour escort and singing or

dancing companion services that involve sexual activities, cannot be seen as the victims

of sex trafficking on the basis of the Human Trafficking Prevention Act.

Moreover, no proactive prevention programs or investigation actions about the

increasing online child sexual exploitation initiated by relevant government departments,

including the Ministry of Education, the Ministry of Justice, and the Ministry of the

Interior was mentioned in the Second State Report. All the facts show that the

Government does not take the initiative to make policies on protecting child from sexual

exploitation, causing children to be exposed to high-risk environments.

Ⅲ. Recommendations

1. The Human Trafficking Prevention Act should be amended, replacing “sexual

transaction” with “sexual exploitation”. By sharing the same definition as the Child

and Youth Sexual Exploitation Prevention Act, the law will be able to cover all types

of sex trafficking and effectively protect children from sex trafficking.

2. Online grooming should be seen as a separate crime. The Government should make a

comprehensive law and allow law enforcement officers to step in immediately when

online grooming happens, to effectively protect children from sexual exploitation.

3. The Government should establish a specialized investigation unit for child sexual

exploitation crimes. With specialized personnel and budget, the investigation unit can

carry out investigations and cooperate with other departments to prevent child sexual

exploitation.

4. The Government should attach importance to child sexual exploitation, including

distribution and sexual extortion of self-generated sexual materials involving children.

Meanwhile, the Government should improve the education and training about online

child sexual exploitation to teachers, social workers, and other professionals working

with children. Additionally, the Government should improve the digital literacy of

parents, children, and educators.

29

 The Second Alternative Report on the Implementation of the CRC

3.4 Violence Against Children ─ Bullying (§2, §3, §6, §12, §13, §29)

Concluding Observations #54~55; Second National Report #15, #134~137

~Child Welfare League Foundation~

Ⅰ. Overview of the current situation

The reported number of campus bullying has been increasing steadily as a result of

advocacy over the past years. Along with the enforcement of the Guidelines for

Preventing Bullying in Schools, it has led to some changes of the definition of bullying

and the handling of bullying cases at present.

1. Current situation of campus bullying not clear

The reporting statistics from the Ministry of Education is the only data on the

current status of campus bullying in Taiwan. According to this data, there were only

2241 confirmed cases of campus bullying in 2020. Obviously, many cases were left

out of these statistics. In fact, the Ministry of Education conducts two campus-life

questionnaire surveys each year on campus bullying but never discloses the results.

The current status of campus bullying in Taiwan is unclear.

2. Addition of “bullying by teachers” in Guidelines for Preventing Bullying in

Schools

The fifth paragraph of Article 3 of the Guidelines for Preventing Bullying in

Schools defines that “bullying of students on campus and off campus by school

masters, teachers, employees, janitors and students from the same school or different

schools (hereinafter referred to as ‘faculty, staff, and students’).” However, teachers

and students are in an unequal power relation to begin with. This is obviously not

consistent with the international definition of bullying.

3. Incidence of cyberbullying on the rise, but there are no comprehensive preventive

or supportive mechanism

As shown in the 2020 survey conducted by Child Welfare League Foundation2,

R.O.C., nearly half (47.0%) of the junior and senior high school students were involved

in cyberbullying. This percentage is alarmingly much higher than the 22.2% in 2016.

Among the respondents, 28.9% of them indicated that they have cyberbullied others

and 36.3% of the respondents have been targets of cyberbullying. The survey by NTU

Children and Family Research Center3 suggests that 10.2% of the sixth-grade students

30

 in elementary schools (in 2016) and 16.5% of the students in the second year of junior

high schools (in 2018) encountered cyberbullying from peers. Among these two

cohorts, 5.8% and 13.3% of the respondents indicated that they have been cyberbullies.

These numbers suggest there is an increase in the incidence of cyberbully as children

and youths get older and Internet access becomes universal.

As far as support and handling of cyberbullying are concerned, cyberbullying

materials are primarily removed and dealt by the Institute of Watch Internet Network

(iWIN). However, most cyberbullying occurs among classmates who know each other

well. Mere removal of contents without dealing with the conflicts between students

will only address the symptoms, and not the root causes. Moreover, the online

reporting of scoops from anonymous sources is popular in Taiwan. Without specific

evidence indicating the identity of the cyberbully, it is difficult for the school to

intervene and the student is left with no help.

Ⅱ. Comments on the 2nd State Report (#16, #158)

National Report focuses on the amendment to the Guidelines for Preventing

Bullying in Schools (#15) in 2020. However, not much is addressed in the report (#134-

137) about the previous Concluding Observation (No. 54). The addition of teachers’

bullying of students in the guidelines is different from the international definition and the

responding strategy is also not suitable. The report also failed to reply to the questions

raised in the 2017 Concluding Observations regarding the methods of the campus life

questionnaire survey on bullying.

Ⅲ. Recommendations

1. Incorporating suggestions from children and youths in the adjustment of survey

methods

The government should adopt the opinions of the 2017 Concluding Observations

by taking a serious look at the experience of children and youths who filled out the

campus life questionnaire, in order to modify the survey methods. Survey results

should be published, so as to enhance the mechanism of handling and assisting with

bullying case.

2. Amendment to stipulations in relation to teachers’ bullying of students in Guidelines

for Preventing Bullying in Schools

31

 The Second Alternative Report on the Implementation of the CRC

The Guidelines for Preventing Bullying in Schools covers teachers’ bullying of

students. However, this is different from the international definition of bullying and it

takes up administrative resources of schools. Given the unequal power relation

between teachers and students, it is not suitable to include teachers’ bullying into the

Guidelines for Preventing Bullying in Schools. An amendment is suggested to revert

to the mechanism of handling incompetent teachers when dealing with teachers’

bullying of students.

3. Focus on prevention of cyberbully and the support mechanism

The protection based on iWIN’s processing of webpage contents is not enough. It

is necessary to enhance the capability of teachers in handling matters on campus.

Measures to prevent cyberbully include the support to bullies and victims and

enhancement of students’ Internet etiquette. The legislative amendment in Japan is a

good example of assisting schools to investigate and support by simplifying the

procedures for victims to apply to Internet platforms for the data of those who make

defamatory comments.

4. Review of the current status of support for students

The current mechanism is focused on reporting and investigating. Concluding

Observation No. 54(4) mentions that there are no reports on the effectiveness of

support to and recovery of the students involved in bullying. A review of the current

status of how schools handle and investigate bullying cases is recommended. This

includes if a supportive perspective is applied during the investigation process,

whether relevant assistance and recovery are implemented for students and how

effective the support measures are.

____________________

1

Statistics on the reporting and confirmation of campus bullying cases in different academic systems

according to Attachment 5-28 (Article 135) of the second CRC National Report Convention-Treaty

Specific Document (page 87)

2

Child Welfare League Foundation R.O.C. conducted a paper-based questionnaire survey with stratified

multi-stage cluster sampling. The survey was on the sampled age group of 13 to 17 years old in proportion

to the total population in different cities and counties of Taiwan. A total of 1,702 questionnaires were

issued to 30 schools and 1,589 effective responses from students were selected, at a recovery rate of

93.4%. The confidence interval was 95% and the error was no more than ±2.46%.

3 NTU Children and Family Research Center has conducted five surveys since 2014 to follow up on

stratified and randomly sampled 6,290 children and youths in Taiwan.

32

 3.5 Children and youth Helpline

Second State Report #70

~World Vision Taiwan~

Ⅰ. Overview of the current situation

Most of the current children and youth protection services are passive and

involuntary, or although there is a willingness to serve, the consent of the guardian is still

required, which may prevent children and youth from receiving professional or

emergency services immediately. The right to be protected is important for children and

youth to understand the channels for seeking help, and to develop the ability to actively

seek help. Therefore, it is important to understand the behavior of children and youth and

their ways of coping with crisis events or solving problems. However, Currently, Taiwan

is run by the government and the service content includes the consultation hotline in the

field of children and youth's assistance. The service data has not been released. It is

impossible to know the proportion of children and children and youth who actively seek

help, the content of assistance, and it is difficult to assess whether this channel of

assistance is timely, accessible and appropriate for children and youth.

At present, the special lines run by the government in Taiwan and whose service

content includes the scope of children and youth assistance are: (1) 113 protection line,

which provides consultation, notification and emergency rescue services for protection

issues such as children and youth protection, domestic violence, sexual assault, sexual

harassment, etc. in Taiwan; (2) 1925 Anxin hotline, which provides 24-hour telephone

psychological counseling services for the public; (3) 0800-200-885 campus anti-bullying

hotline. In Articles 20 and 63 of the concluding observations of the first national report,

members suggested that a national-level data database should be established and the

effectiveness of dedicated line services and notification mechanisms should be monitored.

Age, gender, urban and rural distribution, identity and sexual orientation are classified to

ensure the integrity of children and youth’s assistance needs and data, and it is

recommended that the government monitor and evaluate the effectiveness of the services

provided to children and youth, including seeking assistance for children and youth

through dedicated lines rate and effectiveness.

33

 The Second Alternative Report on the Implementation of the CRC

Ⅱ. Comments on the 2nd State Report (#70)

The national report states that the National Suicide Prevention Center has studied

and analyzed the suicide death trend of children and youth in the past 10 years, and has

analyzed the variables of various school-age groups of children and youth, and has

continued to promote the linkage of cross-ministerial databases to evaluate relevant

factors.

In addition to suicide prevention, the report does not explain and analyze the 113

protection hotline, school bullying, and cyberbullying children and youth's initiative to

seek help. The statistics of children and youth's initiative to seek help from the

government's hotline have not been publicly released, so it is impossible to know the

children and youth. It is difficult to understand the appearance of Taiwan's children and

youth's help line and the dilemma of children and youth's help-seeking, and it is difficult

to evaluate the effectiveness of monitoring the services provided to children and youth.

Ⅲ. Recommendations

1. It is suggested that the government can provide systematic statistical data on the 113

hotline, the 1925 Anxin hotline and the 0800-200-885 campus anti-bullying hotline on

the CRC data platform, including gender, age, county and city distribution, ethnic

group, and asking for help. categories, etc., to understand the pattern of children and

youth people seeking help, and to further examine the monitoring mechanism and

notification procedures.

2. Based on the convenience and sense of security for children and youth, as well as from

the viewpoint of children and youth, it is recommended that the government evaluate

the use habits of the general public and children and youth in the current

communication network, and also suggest that online help reporting methods can be

added. To safeguard the right to protection of children and youth's rights.

34

 Part 4 Family environment and alternative care

4.1 Family Environment and Alternative Care–Divorce (§9)

Concluding Observation #39; Second State Report #149-150

~Child Welfare League Foundation~

Ⅰ. Overview of the current situation

Official statistics indicates that in 2020 alone, more than 51,000 couples divorced

and 56,045 children and youths saw changes of guardianship as a result. As many children

and youths are deeply affected by the divorce of their parents, ensuring the best interest

of children and youths is an important issue that cannot be avoided.

1. No protection of the right of children and youths not to be separated from parents

under the current laws on divorces

According to relevant articles in the Civil Code, the Protection of Children and

Youths Welfare and Rights Act and the Family Act, parents do not need to decide on

the guardianship and the care plan for minor children at the time of divorce. As a result,

children and youths are unable to maintain good interactions with the parent that is not

living with them. According to the 2020 survey by Child Welfare League Foundation1,

R.O.C., more than half of the children and youths with divorced parents say that their

parents were not on good terms or not even on speaking terms. The statistics on divorce

consultation during the same year shows that 55.34% of the callers encountered

visitation problems. This shows that it is challenging for divorced families to maintain

parental love.

2. Inadequate divorce support services

The Social and Family Affairs Administration, Ministry of Health and Welfare,

started to include community and family consultation into the social safety net in 2019.

However, only 13 civil society groups provided relevant services during the year. In

2018, only eight civil society groups with a total of 63 professionals offered

community and family consultation2. This is obviously not sufficient given the

increase of nearly 50,000 divorced families each year in Taiwan. The Social and

Family Affairs Administration, Ministry of Health and Welfare started to officially

implement community-style family consultation services in 2020. A total of 327

35

 The Second Alternative Report on the Implementation of the CRC

families were provided with relevant services from January to June. The effectiveness

should continue to be monitored.

3. Insufficient relevant data

There is a lack of information on minor children of divorced families. Hence, it is

difficult to understand the current status and needs of the children and youths of

divorced families.

Ⅱ. Comments on the 2nd State Report (#149-150)

“Implementation Plan for Community-Style Family Consultation Services” was

commenced in 2020. Local governments collaborate with civil society groups to advise

parents to focus on the interest of children and assist them with parental rights, disputes

over sharing of costs, parental roles and responsibilities via discussions and consultations.

Updates of implementation in different cities and counties and detailed statistics on the

services and effectiveness are not yet available.

Ⅲ. Recommendations

1. Revisiting the divorce system to accommodate guardianship and raising of children

and youths

The divorce system should be revisited in order to prompt the proper handling of

guardianship and raising of children and youths before divorce and ensure the rights

of women and the best interests of children. The training of judicial personnel such as

judges and social workers should be enhanced. The role of the guardian ad litem should

be strengthened to ensure the right of children and youths to be heard in divorce

decisions (such as visits and guardianship).

2. Accessible community-style divorce consultation and family mediation services

According to the Protection of Children and Youths Welfare and Rights Act and

the modification of relevant policies, services in the planning of parenting rights for

minors should be offered at cities/counties for divorces or disputes over parenting

rights. Assistance is provided to parents according to the Civil Code in the exercise of

rights and the undertaking of burdens for minor children in order to protect the best

interest of the children. This encompasses the selection of the person for the exercise

of rights or the undertaking of burdens for minor children, the contents and methods

of child-raising obligations, the protocol and the type and duration of family mediation.

36

 Once both parents have agreed, a care plan for minor children is produced and logged

with household registration offices for legal validity, in order to protect the right of

children not to be separated from parents in CRC.

3. Establishment and publication of data and statistics on children with divorced

parents

It is necessary to regularly disclose relevant numbers on the children with divorced

parents in the country. This includes the number of divorced families, age distribution

of minor children, the status of guardianship, cohabitation and services received.

____________________

1

Child Welfare League Foundation, R.O.C. (2021). 2021 survey on children and youths regarding how

they felt after the divorce of parents.

2

Chiung-Tao Shen (2019). Review Project on Effectiveness of Consultation Services to Minor Children

and Parents in Divorce Cases, report commissioned by the Social and Family Affairs Administration,

Ministry of Health and Welfare.

37

 The Second Alternative Report on the Implementation of the CRC

4.2 Illicit Transfer or Non-Return of Children Abroad (§10, §11)

Concluding Observations #40~41

~Child Welfare League Foundation~

According to Second National Report’s Attachment 6-40, based on the data

submitted by the Ministry of Health and Welfare, a total of 980 children and youth were

illicitly taken from homes from 2016 to 2019. Among these children and youth, 22.04%

were taken out of the country and 7.25% have unknown whereabouts. As the government

policy is unable to prevent illicit transfers, the public is inadequately aware or

incentivized to report illicitly transferred children. Meanwhile, with the limited

diplomatic resources available, family members searching for children are likely to find

themselves alone and unsupported. In sum, it is difficult to help the illicitly transferred

children and youth return home.

Ⅰ. Overview of the current situation

1. Unknown number of illicitly transferred children and youths; statistics not showing

the real picture

According to the statistics from the Ministry of Health and Welfare, there was a

total of 1,419 reported cases of children illicitly taken away by relatives and family

members from February 2014 to September 2019. Among these, 8.52% of the children

were taken to China, Hong Kong or Macau, 11.35% to Vietnam, 2.33% to Indonesia

and 2.89% to other countries1. There has been no open information or analysis on the

details of the illicitly transferred children. The publicly available data on the National

Police Agency’s website does not include whether the illicitly transferred children

have left the country or not. It is hence difficult to conduct a comprehensive assessment

or establish relevant system.

2. Reporting mechanism not properly implemented due to inadequate public awareness

or incentives

Whilst the spirit of the Hague Convention on the Civil Aspects of International

Child Abduction has been incorporated into relevant operating procedures in Taiwan,

the public still thinks an illicit transfer of children and youths is a family matter, not a

missing person case. Meanwhile, the reporting for illicit transfer of children and youths

is not mandatory and there are not enough incentives. The police is also less likely to

file the reporting or open investigation. As a result, it is difficult to effectively carry

38

 out the reporting system and understand the actual situation and the number of cases.

An inquiry on the National Police Agency’s website showed that 319 cases of missing

children left homes with parents during the first nine month of 2021. However, during

the same period, only 113 cases were reported to the Missing Children Data Resource

Center.

3. Current passport application cannot prevent illicit transfers

Article 31 of the Immigration Act stipulates that a foreign spouse can only retain

residency after a divorce if he or she acquires child custody. This is the reason why the

parent who is a foreigner tends to take children back to his/her home country in the

process of fighting for custody. Under the current Passport Act, either parent can apply

for passports of minor children. This allows a parent to apply for passports of minor

children without consent from the other parent and illicitly take children abroad.

4. Limited resources provided by Ministry of Foreign Affairs; family members left

helpless in the search of children overseas

The Ministry of Foreign Affairs requires citizens to provide specific addresses of

the minor children illicitly taken overseas. In Taiwan, there is no organization that

helps relatives contact and meet with children overseas. As a result, Taiwanese family

members desperately searching for children are likely to feel helpless and fall prey to

fraudsters.

5. Hague Convention on the Civil Aspects of International Child Abduction yet to be

signed; no proper implementation of mutual legal assistance

The MOU between the AIT and the TECRO in the US has been signed for

Cooperation on International Parental Child Abduction (IPCA MOU). However, the

main destinations of Taiwanese children and youths illicitly transferred are China,

Hong Kong and Southeast Asia. The political factors are standing in the way of

searching and visiting mechanisms. Whilst Taiwan and Vietnam have signed

“Agreement between the Taipei Economic and Cultural Office in Vietnam and the

Vietnam Economic and Cultural Office in Taipei On Judicial Assistance in Civil

Matters,” there is no implementation regarding illicit transfer of children and youths.

Even if the court in Taiwan has decided on the custody, the mutual assistance

agreement can only help in investigating and has no legal basis to mandate that the

children and youths return to Taiwan. The agreement essentially exists in name only.

39

 The Second Alternative Report on the Implementation of the CRC

Ⅱ. Comments on the 2nd State Report (#176-179)

1. Attachment 6-40, #177: According to Second National Report’s attached data

provided by the Ministry of Health and Welfare, a total of 803 families had

children and youths illicitly transferred from 2016 to 2020. Among these children

and youths, about 11.83% come from families with new immigrants from China,

Hong Kong or Macau, 15.94% from Vietnam, 2.37% from Indonesia, and 3.61%

from other countries. A relatively high percentage of the children and youths were

illicitly transferred to China/Hong Kong/Macau or Vietnam, compared to other

destinations. However, currently, the relevant policies have not effectively

addressed the situation regarding these regions and ethnic groups. Meanwhile, the

data has not been disclosed on regular basis and the reported destinations are

unspecific. It is hence difficult for civil society groups to monitor the government.

2. #179: Although the IPCA MOU has been signed with the U.S., most of Taiwanese

children and youths illicitly transferred are to China/Hong Kong/Macau or

Vietnam, according to the data from the Ministry of Health and Welfare. The

political factors in relation to China/Hong Kong/Macau are standing in the way of

improving searching and visiting mechanisms. Whilst the Taiwan and Vietnam

have signed “Agreement between the Taipei Economic and Cultural Office in

Vietnam and the Vietnam Economic and Cultural Office in Taipei On Judicial

Assistance in Civil Matters,” there is no implementation regarding illicit transfer

of children and youths or responses to the ethnic group issues associated with illicit

transfer of children and youths.

Ⅲ. Recommendations

1. Proper implementation of the reporting mechanism and regular disclosure of

relevant statistics

Although the Procedures of Assisting the Search of Missing Minor Children

Illicitly Taken from Homes by Parents or Relatives in place are not mandatory, the

government should require the reporting of the missing children illicitly transferred by

relatives (regardless if the children are in the country or not), in order to facilitate

professional handling by judicial personnel and social workers and protect the safety

of these children and youths. In addition, the detailed data or analysis on the children

and youths illicitly transferred should be disclosed on a regular basis. This will help

the civil society to monitor the government and assist in policy assessment or system

planning with specific statistics.

40

2. Amendment to the Passport Act

It is suggested that the consent of both parents is required to apply for passports

of minor children. The abusers under domestic violence protection orders may be

excluded. The practice in the U.S., Canada and Ireland can serve as a reference.

3. Enhanced assistance from domestic judiciary and international diplomacy

When the Taiwanese go overseas in search of children, the Judicial Yuan should

assist in the investigation of parental right related litigations. The foreign offices of the

Ministry of Foreign Affairs may help with translation, negotiation with foreign

government agencies, searches, visits and meetings. Regular convening of meetings in

reference to the IPCA MOU can encourage mutual communication. Meanwhile, the

function of the mutual assistance agreements in place should be enforced and legal

professionals should be available to help from both countries. The purpose is to let the

illicitly transferred Taiwanese children and youths return home.

4. Enforcement of the Hague Convention on the Civil Aspects of International Child

Abduction to facilitate international cooperation

The Taiwan government should proactively pursue the signing of the Hague

Convention on the Civil Aspects of International Child Abduction, in order to facilitate

formal cooperation with other countries.

_______________

1

2019 Discussion and Case Studies of Minor Children Illicitly Transferred by Parents/Relatives and

Missing; organizer: Social and Family Affairs Administration, Ministry of Health and Welfare,

implementor: Child Welfare League Foundation, R.O.C.

41

 The Second Alternative Report on the Implementation of the CRC

4.3 Family Environment and Alternative Care ─ Adoption (§20, §21, §8)

Concluding Observation No. 50; Second State Report #112-113, #207-211

~Child Welfare League Foundation~

The statistics on adoptions in Taiwan over the recent five years indicate that the

number of children and youths waiting to be adopted is 1.3 times of the previous number.

However, the number of children and youths who completed the adoption process is on a

gradual decline. More than half of these children and youths (51.7%) were adopted abroad

and close to 70% are children and youths with special needs. As Taiwan is facing the

crisis of low birth rates, the government should pay attention to the care of children with

special needs by formulating policies to support adoptive families, reduce the risk of

termination for domestic and intercountry adoption and assist the parties with root search.

Ⅰ. Overview of the current situation

1. Higher percentage of terminated adoptions by close relatives and stepparents in

Taiwan

Concluding Observation No. 50 indicates a relatively high percentage of

termination for adoptions by close relatives and stepparents in Taiwan. According to

domestic research and statistics, the primary reasons for termination of adoptions are

the divorce of adoptive parents, disappearance of adoption reasons, parenting issues,

and health of adopted children. The disappearance of adoption reasons includes the

adoption serving in the interest of adults, and not out of the necessity of the children.

2. Difficult for children with special needs to be adopted in Taiwan

Although the government invests a small amount of resources on advocacy via the

media or offers measly subsidies to adoption related services, no national policy or

substantial assistance has been put in place. In fact, it is difficult to match domestic

adopters with children with special needs. As a result, the children with special needs

need to stay in the placement system for a long time or have to be adopted overseas.

3. Risk factors remain after adoption

Statistics suggest that the three major reasons for the termination of adoption not

by blood relatives in Taiwan from 2012 to 2018 are divorces, the disappearance of

reasons for adoption, and parenting issues. This shows that risk factors for termination

42

 still remain after the adoption and could make the children and youths face another

loss of dependency.

4. Inadequate protection from intercountry adoption policies

When foreigners living in Taiwan wish to adopt a child, the adoption procedure

needs to comply with Taiwan’s laws or the foreigner’s home country will not approve

the adoption. If the adopters wish to apply for citizenship of their home country for

their adopted child, they have to refer to the adoption and immigration laws in their

home country, and the actual application process will take at least 18-24 months.

During this time, the adopters have the right to take the adoptee away from Taiwan

anytime, creating the risk of the adoptee having undetermined nationality, and could

even be a loophole for human trafficking. Countries all over the world have regulated

relevant policies to provide better protection for internationally adopted children such

as only allowing its citizens to adopt children who are from the countries in the “The

Hague Convention on the Protection of Children and Co-operation in Respect of

Intercountry Adoption” or the sending countries can only send children to the receiving

countries that have signed a treaty with them. Due to its peculiar political

circumstances, Taiwan is not part of the Hague Convention and the current

intercountry adoption policies in Taiwan offer insufficient protection to internationally

adopted children.

Ⅱ. Comments on the 2nd State Report (#112~113, #207~211)

1. Root searching services: (#113)

The root searching journey is complex and requires cross-agency cooperation in

social and administrative affairs, foreign affairs, police administration and household

registration agency. However, since the passage of the Information Management and

Regulations of Child and Juvenile Adoption in 2005, there has been no establishment

of a management committee and not a single meeting has been convened. In addition,

since the inclusion of root searching into the Protection of Children and Youths

Welfare and Rights Act in 2019, relevant government agencies have yet to create a

systematic mechanism to assist with root searching. Although the central government

has established the Child and Juvenile Adoption Information Center for safekeeping

of adoption data, there is no mechanism to assist the victims of child trafficking

43

 The Second Alternative Report on the Implementation of the CRC

returning to Taiwan in search of birth parents. As a result, the searches are difficult to

progress.

2. Promotion of domestic adoption of children and youths with special needs and post-

adoption services:( #208、209)

CRC General Comment No. 14 defines that in adoption, the decision-makers need

to allow children to retain their religions, languages and cultures as much as possible,

in order to adhere to the best interest of adopted children. Despite the incorporation of

the prioritization for domestic adoptions into laws in 2003, there has been no policy to

encourage adoptions by the Taiwanese people. In the Second National Report, the

government mentioned that the adoption of children with special needs are

implemented via matching services and have assisted the matching service providers

with development measures and program. However, the matching service providers

are all civil society organizations, which means that the government itself has not

implemented any relevant policies. Adopted children due to early adversity, have

physical/mental needs. As a result, the adoptive parents tend to be mental/physical

exhausted easily given a lack of resources and hence, terminate the adoption.

Ⅲ. Recommendations

1. Review of adoption necessity assessments and enhancement of pre-adoption

preparatory education

It is necessary to enhance the professional training of social workers and judicial

personnel and strengthen the consensus across professional domains in order to

strengthen the necessity assessment of adoptions not by blood relatives or adoptions

by close relatives or stepparents. This reduces the non-necessary adoptions of children

and youths and avoids the adoptee facing another unstable and uncertain situation

when the reason for adoption vanishes. Legislative amendment is also advised so that

adopters have to receive parenting preparation education, which would help increase

their readiness for adoption.

2. Increase the likelihood of domestic adoption for children and youths with special

needs

The government should proactively formulate national policies, provide more

support and protective measures for adoption, and work with adoptive families to

jointly take care of children with special needs. The suggested welfare policies are as

44

 follows: Medicare and benefits for adopted children with special needs (e.g., priority

to public childcare centers or kindergartens), tax incentives or special allowances for

adoption.

3. Strengthening supportive resources to adoptive families

To avoid the risks of repeated loss of dependence for adopted children and youths,

the government should enhance post-adoption services and resources on multiple

fronts, in order to provide supportive services required by adoptive families in

medicare, education and psychological consultations. We further suggest that the

central government should develop protective and follow-up policies for children and

youths whose adoptions are terminated.

4. Enhancement of policies and relevant legal procedures regarding intercountry

adoptions

To avoid letting the internationally adopted children and youths face the risk of

undetermined nationality, loss of dependence, re-adoption without termination and

human trafficking, it is suggested that the central government should review the

current intercountry adoption process and follow-up policies. The central government

should also proactively clarify how to handle the situation when the adoption laws of

a foreigner’s home country are at odds with Taiwan’s adoption process. The social and

administrative affairs, judicial and foreign ministry agencies should come together to

discuss the follow-up protective measures and relevant legal procedures of

intercountry adoption in order to ensure the rights of the internationally adopted

children.

45

 The Second Alternative Report on the Implementation of the CRC

4.4 The Placement for child protection

Concluding Observation s #45~46; Second State Report #152~153, 160, 165, #168~170

~Good Shepherd Social Welfare Foundation~

Ⅰ. Overview of the current situation

Since the first national report was released in 2017, the government stipulated related

procedure to prevent parents who are not economically sufficient or unable to raise their

children from making arrangement for their children by their own. In practice, there are

still many vulnerable families who are unable to support their children and are

economically disadvantaged. These children, thus, enter the protection and resettlement

system by means of temporary or outsourced resettlement.

Although the rate of parents able to arrange replacement for their children has

lowered, the overall number of children resettled outside their home remain almost the

same, which highlights the implementation of children's protection policies facing issues

such as the lack of family support, family connection maintenance and related

reorganization efforts. On the other hand, from the data cited in the national report, it is

indicated that the rate of children arranged to be taken care by their relatives or foster care

has increased.

To response, the national policy aims to promote alternative care based on family

environment. The order of placement goes as: relative care, foster family, and institution

placement. When children reach their or when the relative care or foster families are

deemed unable to support them, the children will be put under the institution placement

system.

However, the government is short of information or analyses regarding the cause of

the arrangement of children under the alternative care system, which leads to neglect of

the multiple replacement facing these children, resulting in systemic trauma, especially

in cases that involve juveniles.

The ill-functional side of their family is also observed in the process of children’s

return to their home. When family members or relatives of the children come along.

However, the authorities lack adequate preparations for the family reorganization work

(for example, the ability, willingness to take care of the children’s value system and

attitude) and also for the children’ home returning.

46

 As a result, the rate of children leaving after their home return is high, and the

inconsistency of the community support and services after their return puts these children

at a high risk situation and are neglected by the system.

Ⅱ. Comments on the 2nd State Report

1. Statistics listed in Annex 6-26 of the report show that although the proportion of cases

involving self-arrangement by parents has decreased over the years, the overall long-

term children resettlement number has not changed much, indicating that the rate of

children resettled outside their home has not significantly lowered.

a. How does this procedure ensure the sensitivity training and assessment review by

the authorities for self-arrangement placement? Have relevant services and support

been provided to the family before the resettlement assessment is made for the

children? What is the treatment for the parents of the resettlement families? How

many children return home after receiving temporary or protective resettlement?

How do the authorities ensure that families are provided with adequate service rather

than passively relocating these children in the families.

b. The number of children aged 12-18 who receive long-term resettlement is decreasing

year by year, it is therefore acknowledge the current development of supporting

measures for self-reliance measure. However, the community and self-reliance

transition resources in different counties and cities differ greatly (which is more

visible in residence/economic resources). In some counties and cities, for example,

there are self-reliance dormitories/houses, but some do not. Social workers of these

counties and cities have mentioned that it is hard to seek dormitories and resources

are unevenly distributed.

2. Family work and supporting measures and resources should be implemented or used

when entering the alternative care system. The aim is to allow children to return home.

However, in fact, the rate of children returning home has been decreased yearly

(statistics regarding the reasons for cases of children and juvenile institutions are in the

national report’s Annex 6-27, the second point).

We learned that the rate of children who left home after the institutional

resettlement was high. They leave home and live in the community in about three to six

months after leaving the institutional resettlement. As the community is short of

supporting resources, we learned that children with special needs and mild intellectual

disabilities are more likely to be marginalized. We also learned that they are quicker to

47

 The Second Alternative Report on the Implementation of the CRC

depend on men or get married at a young age and face high risk of exposing to sex

industry

In addition, the number of children receiving long-term child placement (longer

than 2 years) is high, according to the statistics in Annex 6-23 of the national report. It

says more than 50% of the institutions have placed children for more than 2 years. In

particular, the younger the children were when they were resettled, the higher the

proportion of them receiving long-term resettlement. Besides, the authorities lack long-

term counseling plans and related concepts for long-term resettlement for children.

3. The 153rd comment of the national report mentioned that family reorganization services,

which provide for children and their families who are resettled outside their home, assist

the original family to enhance the caring and parenting capacity and restore the children-

family relationship and arrange family visit during the resettlement period, and provide

gradual homecoming services, etc.….

However, in fact, the related standards and practices of each county and city varies

and the difference is large. According to the chart of “the handling of child protection

cases” in Annex 6-16, when the authorities conduct an assessment and decision-making

meeting on children’s home coming procedure, institution representatives and children

are not always to be invited to participate.

Even if they are invited to attend the meeting, they have no chance to speak. They

are often informed of the meeting conclusion and requested to be prepared for the

children to return home within a short period of time (2-3 months).

Even if the representatives and the children know that the children are yet ready to

return home, they are told that because the children cannot be placed for a long term and

deal with arising problems after the children’s return.

Ⅲ. Recommendations

1. Proactively provide specific and long-term assistance measures for the long-term

resettlement of children and cultivate their self-reliance ability:

Children in long-term resettlement face great challenges when they leave the

protection and resettlement institutions as they are short of knowledge concerning life.

The challenges involve a variety of aspects, including economics, living and

psychological adaptation, employment, and education, housing, medical care and

counseling resources. When children return home or live independently in the

48

 community, they still are in need of national policies to assist their family and

community life. In addition to doing the follow-up care, more specific and active

follow-up measures must be established to build a safety net for those children who

are no longer in the protection and resettlement.

2. Implement the reorganization of family support to help children recover from trauma:

Children placed in settlement are often in their teenage years when the

resettlement comes to an end. In practice, if family rectification cannot be effectively

implemented during the period, issues of domestic violence will arise after their home

return because their families are not ready for the arrangement, resulting in a situation

where two sides unable to understand each other and create an environment where the

children are more likely to be traumatized again.

Therefore, we call for gradually promoting the maintenance of parent-children

relationship during the resettlement period, so as to effectively connect the family

relations after the children’s home return. Such work will not reach its expected aims

only by a couple times of meetings and dialogues, but creating opportunities for both

sides to restore their relationship.

3. Include the ideas and opinions of children in decision-making arrangements, so as

to reduce and ease the harm to the arrangement or being put in-between places that

will bring to the children.

At present, the sensitivity regarding CRC and resource gap among social workers

in various counties and cities differ greatly, such differences and inconsistencies have

harmed the rights of children in the decision-making procedure of resettlement.

The authorities thus have the responsibility to assist counties and cities to improve

relevant measures and raise the awareness of children’s rights, to avoid inappropriate

treatment of children that is caused by the related system’s inconsistency.

49

 The Second Alternative Report on the Implementation of the CRC

4.5 Kinship Care

Second State Report #159, #160

~World Vision in Taiwan~

Ⅰ. Overview of the current situation

In Articles 43 and 45 of the Concluding Observations on the Initial Report of Taiwan,

the Review Committee suggests that the Government examine the extent to which an

ongoing increase in kinship care can be facilitated by alleviating certain onerous

requirements regarding eligibility and access to subsidies for potential kinship carers, and

promote and facilitate the use of family-based alternative care, in particular kinship care.

However, currently in Taiwan, the kinship care is hard to find due to low willingness. It

accounts for a lower proportion than foster care and institutional placement. According

to the statistics of the Ministry of Health and Welfare (MOHW), the percentage of kinship

care increased from 6.25% to 8.28% from the year of 2017 to 2019, which was somewhat

inconsistent with the content of Point 158 of the first national report. The main reason is

that the government does not provide sufficient support measures to kinship care, such as

case management, financial assistance (replacement costs), supportive service programs

(respite care service, psychological counseling), education and training (care and

upbringing knowledge and skills), etc. What can only be relied on is the assistance from

child and adolescent protection social workers and kinship care social workers. With

regard to financial assistance, in some cities and counties, kinship carers do not get as

much financial support as foster carers. As for supportive service programs and education/

training, the current kinship carers, again, obtain less resources and support when they

require to practice at work, and most of them can only rely on the help from the bureau

that takes over and the social worker in charge.

In addition to the lack of supportive assistance provided by the government, the

difficulties faced in kinship care since the Initial Report of Taiwan include:

1. Foster care and kinship care are handled by different competent authorities, which

results in different policies and specifications.

Currently in Taiwan, the business of foster care goes to Social and Family Affairs

Administration, MOHW, while that of kinship care goes to the Department of

50

 Protective Services, MOHW. Because they belong to different competent authorities,

there are regulations and measures in terms of policy formulation, support service

provision (such as foster care fee subsidy standards, professional training programs,

etc.), and work modes, which cannot be consistent.

2. In Taiwan's national context, it is difficult to integrate the economic, caregiver

Characteristics, as well as legal and practical aspects of kinship care.

In terms of Taiwan's culture where kinship support is important, most of the

current kinship placements are considered informal resources and are often requested

in the name of ethics, kinship, traditional concepts and culture.

However, because of the numerous obstacles to help taking care of a relative's

child (such as financial conditions, parenting attitudes, family disputes, etc.), it is to

be expected that the relatives would easily say no. The characteristics of Taiwan's

current kinship caregivers are mostly older and less educated. And most of the

children entering the child and youth protection system are from poor backgrounds,

and their relatives are in similar socio-economic situations, with low personal and

family income. These characteristics, in general, also affect their ability to be a

caregiver and provide decent living conditions. In summary, although the

government has incorporated kinship care into the formal children and youth

protection system and provided assistance as well, it has not yet addressed the

difficulties encountered and given enough supplementary supportive services, which

hence creates an issue where policy norms and practice cannot be integrated.

Ⅱ. Comments on the 2nd State Report

The central government explains the contents and practices of the alternative care

policies, including (#159), the amendment of the Children’s Act in 2019, which states

that, in addition to foster families and institutions, children and youths may be placed

with relatives or a third person, and (#160) the establishment of the Working Group on

Alternative Care Policy for Children in 2019 to conduct a review of the current situation

in accordance with the United Nations Guidelines for the Alternative Care of Children,

with a view to formulating an alternative care policy for children in Taiwan.

The government's care policy is to increase the number of categories and priorities

for out-of-home placement, but it has not yet provided specific solutions and support for

the hardships and resources encountered in the kinship care.

51

 The Second Alternative Report on the Implementation of the CRC

Ⅲ. Recommendations

1. It is suggested that the authorities in charge of kinship care and foster care can come to

a joint agreement and establish consistent alternative care measures and supportive

services for out-of-home placements (such as placement fees, training courses, family

counseling, etc.), and have these two sets of standards integrated.

2. It is suggested that the central competent authority formulate policies to support the

local government to increase the budget for kinship care subsidies, assist the local

government to solve the difficulties in the placement matching processes, and increase

the incentives and willingness to be a kinship carers, so as to improve the rate of

kinship placement, or to conduct a classification of kinship care fees as in the case of

family foster care.

3. It is suggested that kinship care be treated as a type of foster home and that matchmaker

guidelines be provided to help make the most appropriate assessment and provide more

comprehensive care.

52

 Part 5 Basic health and welfare

5.1 Children with Disabilities (§23)

Concluding Observations #58~59; Second State Report #192

~Parents' Association for Persons

with Intellectual Disability, Taiwan~

Ⅰ. Overview of the current situation

Following the trends of studies and implementations conducted abroad, Taiwan's

parents and academic experts prioritize inclusive learning for children with disabilities in

early childhood education. Until 2019, there are still approximately 2,891 children with

disabilities or developmental delays studying in disability or early childhood intervention

centers. However, there are opportunities for children to transition into an inclusive

learning environment when available.

According to the data gathered from the Special Education Transmit Net, about

19,866 (94%) students are placed in inclusive early childhood education schools. While

1,289 (6%) students are continued to be placed in special education classrooms. In early

childhood education, the data indicates that most Taiwanese children with disabilities

have undertaken the inclusive learning settings available to them. Children with

disabilities in inclusive learning settings most often use two of the following services.

One is the Special Education Itinerant Consultation Service, and the other is the

Multidisciplinary team Service. Both of the services that support children's needs are

facing the following challenges:

1. The Recruitment of Special Education Itinerant Teachers is Difficult in Rural Areas

or Places that are Less Accessible by Public Transportation:

The eligibility requirements for itinerant teachers become less rigorous when there

is a consistent lack of interest during the first and second recruiting period. Due to the

lowered requirements of teaching background and experiences, the expertise offered

by the newly recruited itinerant teachers is insufficient to serve the preschool teachers

of students with special needs. Thus, it undermines the intention to strengthen support

for students through consultation services.

2. Inconsistent Itinerant Teacher to Student Ratio Among Cities and Counties:

53

 The Second Alternative Report on the Implementation of the CRC

Students in certain cities only get to see their itinerant teachers once a month due

to the imbalanced itinerant teacher to student ratio. For example, the highest itinerant

teacher to student ratio is 1:36 in Taipei city, whereas, the lowest is 1:7 in Lienchiang

County.

3. Low Usage of the Multidisciplinary team Service:

The therapists that work with the collaborative team service are primarily part-

time. Thus, their capacity to provide services is largely limited by its nature. Eventually,

this leads to an unmatched gap in early childhood teachers' needs to request therapists

versus the available resources. In addition, the application process to request

collaborative team service differs by city and county, making the resources even less

accessible to the teachers.

Ⅱ. Comments on the 2nd State Report (#192)

Most children with disabilities are immersed in the inclusive learning environment

in the early childhood education stage. However, the State Party Report fails to provide

any descriptive data or analysis on how these children with special needs are using the

available services. Appendix 7-8 provides the number of service users at the early

childhood stage by "counts". Thus, it is uncertain how this number reflects the service

used by the "actual number of students". In addition, the State Party Report explained the

teacher to student ratio in special classes (self-contained classrooms), early childhood 2-

3 classes, and mix-aged classes. Nevertheless, it did not mention the teacher to student

ratio in terms of the itinerant consultation service.

Ⅲ. Recommendations

1. Provide a Competitive Wage for Itinerant Teachers in Rural Areas:

To attract highly qualified itinerant teachers for children in rural areas, we

recommend increasing the competitive wage by offering bonuses and transportation

stipends to the rural itinerant teachers.

2.Increase Professional Partnerships to Strengthen Special Education Itinerant

Consultation Service:

To strengthen the itinerant services to our students in rural or less accessible areas,

we should build upon the existing special education itinerant consultation service and

establish partnerships with other professionals in the area. For instance, partnering

54

 with local early intervention centers for developmentally delayed children with a

collaborative framework to expand a more diverse capacity for services.

3.The Ministry of Education should Standardize a Fair Itinerant Teacher to Student Ratio:

A more standardized and uniformed itinerant teacher to student ratio across all

areas will ensure an equal learning experience for all students. Considering the

different factors such as population density and transportation accessibility in different

areas, standardizing the teacher to student ratio is the best practice to safeguard

children's education quality and equity.

4.Implementation of a Consistent Process for Educators in each City and County to apply

and match with Collaborative Team Service

Establishing a nationwide and consistent process for educators to apply for

services will make the process faster and more efficient on their end to be matched

with the sufficient resources. Currently, some cities and counties only provide a list of

service providers for the teachers to contact, respectively. This is time-consuming as

they need to call each service to make an appointment.

55

 The Second Alternative Report on the Implementation of the CRC

5.2 Children’s Right to Health: Improving the Environment (§24)

Concluding Observations #68; Second State Report #216-218

~NTU Children and Family Research Center~

Ⅰ. Overview of the current situation

According to the UN Sustainable Development Goals (SDGs), the third goal states:

“Ensure healthy lives and promote well-being for all at all ages”. Air pollution poses

countless damage on us health human. Children are most more vulnerable to the negative

effects since they are lighter in weight and they breathe more rapidly than adults. As a

result, the government should come up with better prevention and protection policies to

protect children in no time. In Taiwan, the central and southern regions are often afflicted

with poor air quality. What’s worse, many studies have shown the significant association

between air pollution and childhood illnesses. However, this issue has long been

neglected in Taiwan. Current regulations in our nation are lax and lack of specific

protection. Meanwhile, budgets for indoor air quality monitoring and improving

equipment are not allocated to schools. The following further illustrates the pressing issue.

1. “The Protection of Children and Youths Welfare and Rights Act” fails to list the

Environmental Protection Administration as the competent authority for children’s

rights. In addition, current regulations on air pollution control such as “Air Quality

Act”, “Indoor Air Quality Act” and “School Health Act” go without monitoring,

budgeting and setting special standards for the children and youth.

2. The threshold for activating the emergency response to worsening air quality in campus

is unreasonably high. Outdoor classes are canceled only when the AQI level exceeds

200 (equivalent to PM 2.5 level of 150.5μg/m3) and indoor classes are canceled

schools are closed when the AQI level exceeds 400 (equivalent to PM 2.5 level of

350.5μg/m3). In comparison to South Korea, the monitoring and prevention policy of

indoor and outdoor air quality in Taiwan are more lenient. For example, when

measuring the concentration of pollutants, Taiwan usually calculates the average value

over a certain period of time while Korea directly uses the maximum real-time value.

3. When the air quality is considered as inappropriate for outdoor classes, some schools

simply call off the outdoor PE classes and break time without offering students suitable

alternatives, and thus, affect students’ rights to exercise.

56

4. Children and youth are gradually taking an interest in environmental issues. Although

the Environmental Protection Administration hosts “Human Rights Group” that

focuses on topics such as gender and minorities, no platforms or mechanisms are in

place for children and youth to participate and express their opinion.

Ⅱ. Comments on the 2nd State Report

The government disregards the negative effects brought about to children and youth

by air pollution. The Second Report fails to discuss possible solutions to prevent children

and youth from the threats of environmental and air pollution. In the section responding

to the First Report, the government also fails to propose methods to address children’s

susceptibility to pollution and to allocate budget to improve children’s health.

Ⅲ. Recommendations

As children and youth are more affected to air pollution than adults, stringent

standards for indoor air quality should be set and budget should be distributed to

monitoring air quality and improving the conditions of equipment. Specific suggestions

are as follows:

1. We suggest that the Environmental Protection Administration shall be listed as the

competent authority in the Article 7 of “The Protection of Children and Youths

Welfare and Rights Act.”

2. The Environmental Protection Administration shall set stricter indoor air quality

monitoring standards for children’s facilities and allocate budget for indoor air quality

monitoring and improvement. Neighboring countries such as South Korea is a good

reference. For instance, in Taiwan, outdoor classes will be canceled when the AQI

level exceeds 200 (equivalent to PM2.5 level of 150.5μg/m3) while in South Korea,

outdoor classes will be canceled when CAI level is greater than 250 (equivalent to

PM2.5 ≥75μg/m³ or PM10≥150μg/m³) and indoor classes will be canceled when

PM2.5≥150μg/m³，PM10≥300μg/m³.

3. The Environmental Protection Administration, Ministry of Health and Welfare, and

Ministry of Education shall collaborate to ensure the Children’s right to health. Cross

functional collaboration could help raise awareness of the children’s rights among

administrators to further formulate policies, allocate budget, monitor campus air

quality, upgrade indoor and outdoor spaces, and provide children and youth with

alternatives when outdoor activities are banned.

57

 The Second Alternative Report on the Implementation of the CRC

4. We suggest the Environmental Protection Administration shall create mechanisms for

children and youth to raise their voices.

58

5.3 Information Education and Internet Addiction Among Children and Youth (§25)

Second State Report # 36~37, #98

~NTU Children and Family Research Center~

Ⅰ. Overview of the current situation

1. Lack of internet usage guidelines for preschool children

The average age of children engaging in digital products are declining year by

year and the percentage of preschoolers surfing the Internet are on the rise. However,

the authority hasn’t proposed any new teaching model or included technology issues

to early childhood education to ensure children’s proper understanding and usage of

digital products as well as their mental and physical health.

2. “Curriculum Guidelines of 12-Year Basic Education _ General Guidelines” (108

Curriculum Guidelines) fail to take digital divide into account

108 Curriculum Guidelines substitute partial information courses with

“Information Technology Integrated into Instruction.” The reason behind this new

curriculum is to give teachers more freedom to arrange courses and help students to

learn critical thinking. Yet, unlike urban areas, far-flung areas see a shortage of

resources and teachers. 108 Curriculum Guidelines should grant schools more

flexibility to design courses that suit best for the resource-deprived regions and honor

CRC.

3. No competent authority is accountable for prevention of Internet addiction

WHO defines “gaming disorders” in ICD-11 and DSM-5. As users do all sorts

of activities online, it is impossible to list everything; hence, overall Internet addiction

is not listed in ICD-11 and DSM-5. Moreover, according to WHO, to be diagnosed

with gaming disorders, one needs to demonstrate compulsive, withdrawal and tolerant

behaviors, which is different from what the public perceives as “heavy users of the

Internet.” The above affects how our government handles issues like Internet addiction,

diagnosis, healthcare, welfare system, public policies. In addition, parents would be

affected as well.

4. Online learning during the COVID-19 period affects the education rights of children

and youth, especially the minorities

59

 The Second Alternative Report on the Implementation of the CRC

The survey conducted by NTU Children and Family Research Center pointed out

that the problem of digital divide among children in Taiwan is because of the “software”

instead of “hardware.” Self-learning materials aren’t accessible for every student.

What’s worse, some 20% teachers fail to teach students how to continue their learning

online, which affects children’s right to education.

Ⅱ. Comments on the 2nd State Report

Article 25, CRC indicates that the government has the responsibility to provide

children resources to learn in this digital age. ROC’s Second Report (#36, 37) emphasizes

the importance of online security to raise the awareness of self-regulation among the

industry, but fails to mention the digital rights and protection of children. Furthermore,

while Internet addiction are becoming more and more common these days, the Second

Report did not address this merging issue, rendering it confusing for the authorities to

distribute responsibilities and difficult to frame, implement, and assess policies. Related

research is also disorganized (carried out by Ministry of Education, Ministry of Health

and Welfare, medical organizations or non-governmental organizations). No fruitful

result in the prevention of Internet addiction has been obtained.

Ⅲ. Recommendations

1. Skills and information competency should be included in the Curriculum

Skills and information competency should be included in the 108 Curriculum

Guidelines to ensure all children across the country are entitled with equal rights to

information education. Meanwhile, preschool teachers should develop information

competency and adjust their teaching accordingly, thereby better preventing children

from having psychological or addiction problems due to inappropriate usage.

2. In response to the pandemic, Ministry of Education should highlight the importance of

self-learning and encourage teachers to prepare online extra learning materials.

In this manner, the student could enjoy having a powerful companion, the

Internet, along their learning journey and cultivate self-discipline.

3. Suggestions on the lack of planning for the prevention of Internet addiction due to the

lack of responsible government agencies:

The workload of the prevention of Internet addiction is currently allocated to

different competent authorities based on children’s age and symptoms. (e.g. Ministry

60

of Education is answerable to preschool children, hospitals are answerable to

treatments of the addiction, and the responsibility of Ministry of Health and Welfare

remains ambiguous) Nonetheless, children are not the only victims of Internet

addiction. The government should first establish competent authorities and agencies

in charge of the implementation. Secondly, parents, youth and children are urgently in

need of accessible and user-friendly learning materials and medical resources.

61

 The Second Alternative Report on the Implementation of the CRC

5.4 Mental Health In Children And Youth (§28)

Concluding Observations #62~63; Second State Report #70-72, #219-220

~NTU Children and Family Research Center~

Ⅰ. Overview of the current situation

1. Suicide in children and youth is on the rise, and nearly 80% did not seek for help

Suicide rate has tripled from 1.3% in 2015 to 3.9% in 2019 and has become the

second cause of death among youth aged 12 – 17 years old. According to the Ministry

of Education, nearly 80% of those did not attend regular seek counselling sessions at

school. That is to say, these students showed no sign of suicidal behavior and the

counselling at school failed to function seek for help before students taking their lives.

Factors contributing to suicide among students are mostly related to emotional distress,

low self-esteem, and family problems. Bullying, emotional dysregulation and poor

problem- solving skills are causes for children to commit suicide.

2. Lack of social-emotional and essential life skills learning

Although the “Curriculum Guidelines of 12-Year Basic Education” explicitly

lists emotional adjustment as a core competency, it fails to provide students with a

systematic and practical approach to learning this vital skill.

3. Research and policy intervention are needed to understand for social structural

forces factors that lead to depression and rising suicides amongin children and youth.

Ⅱ. Comments on the 2nd State Report

Despite the “Prevention of Student Self-Injurious Behavior in Campus Plan” (#72),

the number of counselors in campus fall short of students’ need, resulting in only 20% of

those committed suicide having received counseling. Therefore, the government should

focus on this specific problem and examine the structural dilemma students are facing

now.

According to the “National Mental Health Program” (#219), the mental health of

children and youth should be incorporated into schools’ endeavor to students’ rights. Yet,

the Program failed to specify issues about the mental health of children and youth,

rendering it difficult for schools to implement the program with the guidance of law.

62

Ⅲ. Recommendations

1. Ministry of Education should provide contextualized materials on life skills

The Life Skill Training1 (LST) developed by UNODC is a good example. LST

aims to improve the emotion adjustment ability of children and youth and to boost self-

esteem by cultivating their mental health literacy. When encountering setbacks,

children and youth will be able to overcome the problems instead of resorting to self-

injury or committing suicide. In addition, LST helps students to be better equipped

with communication skills. Hence, children and youth would be able to solve

interpersonal interaction issues properly.

2. Upgrade the training for teachers to better prevent tragedies from happening

NTU Children and Family Research Center found out that life skill trainings

effectively strengthen children and youth’s ability to adjust their emotions and reduce

the likelihood of depression. A survey on children’s anxiety during the pandemic

suggests students who took PILOT courses are less anxious than those who didn’t. The

result indicates that PILOT could indeed help students maintain emotional stability

under difficulties and prevent extreme emotional disturbance or self-injury and suicide.

3. More resources for children and youth’s mental health are needed, including

a. Research on the social structure that propels youth to end their lives should be

conducted so the authority could understand causes such as the pressure from

grades and peer competition.

b. Besides consultation, we recommend the Department of Mental and Oral Health,

Ministry of Health and Welfare putting more effort into the mental health

prevention of children and youth by allocating more budget on this matter.

c. To prevent common issues among teenagers such as self-injury, suicide, substance

abuse, emotional instability and bullying, the authority should invite public health

personnel to promote the importance of mental health at communities and to plan

strategies and policies accordingly.

d. Ministry of Health and Welfare and Ministry of Education should collaborate to roll

out courses like emotional adjustment and communication to cultivate individual

resilience.

_____________________

1

Positive Interpersonal & Life Orientation Training (PILOT), introduced by NTU Children and Family

Research Center in 2013, has been proven to be effective in the prevention of substance abuse, bullying

and depression. After localization and multiple editions, PILOT has been implemented in 22 middle

schools in Taipei City, New Taipei City and Taoyuan.

63

 The Second Alternative Report on the Implementation of the CRC

5.5 Meal and Dessert Quality and Diet Education for Preschools (§24)

Second State Report #64, #216

~John Tung Foundation~

Ⅰ. Overview of the current situation

Diabetes, hypertension and cardiovascular diseases are currently the top leading

cause of death in Taiwan. These noncommunicable diseases are closely related to obesity.

According to the Nutrition and Health Survey in Taiwan (2013-2016), the prevalence of

overweight and obesity for preschool children is 18.1%1-2. Overweight and obesity are

related poor eating habits and palate since childhoods. Therefore, it is necessary to

establish proper eating habits and palate from an early age.

Due to the changes in family structures, younger children are usually sent to various

child care centers, mostly to kindergartens. According to the Taiwan Birth Cohort Study

2018, at age of 5.5, 93.3% 3 of children are sent to nursery institutions. These children

stay at nurseries for 6-8 hours a day. Therefore, the quality of the foods provided have

critical impact not only on children’s growth but also on development of their palate.

Together with dietary education, it can help children to adopt healthy eating behavior and

to have the ability to distinguish the tastes of natural and processed foods, therefore, to

establish proper eating habits that can extended to their adulthoods.

Compared with primary and secondary schools, the existing standards for meal

supply and dietary education in preschools are relatively deficient, making it difficult to

follow and implement. If a comprehensive standard can be imposed, the quality of meals

and dietary education can effectively established.

Ⅱ. Comments on the 2nd State Report

The Conclusive Opinion Point 64 of the Second National Reports though covered

obesity prevention (216), it’s tended to be palliative rather than curative. To prevent

increasing prevalence of various chronic diseases such as hypertension, hyperglycemia,

hyperlipidemia and cancer, obesity should be prevented in means of diet. As it is difficult

to change certain habits in adulthoods, it is recommended to formulate clear regulations

for preschools to follow as the basis to provide quality meals and dietary education and

to help children to establish proper eating habits and palate.

Ⅲ. Recommendations

64

 1. In order to ensure the nutritional quality of children's meals and to strengthen dietary

education, it is recommended to revise the regulations as follows:

a. Improve the quality of meals：It is recommended to supplement the second clause

of Article 12 of the Early Childhood Education and Care Act that the meals

provided by nurseries should follow the "Preschool Meal Food Content and

Nutritional Standards and Recipe Samples" (Amended and announced on 28

December 2020 by the National Education Administration) to provide hygienic,

safe and nutritionally balanced meals. Hopefully, this can also attract parents'

attention and through this attention, teachers can help children to build up proper

eating habits and prevent obesity and chronic diseases therefore to establish healthy

lives.

b. Specify the content of dietary education：As the objective and guidelines of dietary

education should be included in nursery education, it is recommended to

supplement the second clause of Article 12 of the Early Childhood Education and

Care Act the suitable guidelines of dietary education for nurseries.

2. To ensure the quality of preschool meals and the implementation of dietary education,

the recommendations are as follows:

a. Just as implemented in the primary and secondary schools, the central competent

authorities should send personnel to coordinate with local county and city

government every year to conduct irregular inspections of meals and kitchens in

preschools to ensure them meet the requirements.

b. In accordance of the Article 13 of “Implementation Regulations Governing Early

Childhood Educare and Childcare Services” amended on 18/08/2021, preschools

should provide health education. It is recommended to include “healthy dietary

education” as the indicators of self-assessment and inspection which should be

added in the “basic self-assessment forms of preschools”.

________________________________

1

Nutrition and Health Survey in Taiwan (2013-2016), Ministry of Health and Welfare,

https://reurl.cc/qDrONR

2

Taiwan’s Obesity Prevention and Management Strategy, Ministry of Health and Welfare,

https://www.hpa.gov.tw/Pages/EBook.aspx?nodeid=3813

3

Taiwan Preschool Children's Health Image in the New Century, Ministry of Health and Welfare,

https://www.hpa.gov.tw/Pages/Detail.aspx?nodeid=248&pid=1299&sid=1297

65

 The Second Alternative Report on the Implementation of the CRC

5.6 The Rights of the Child during the COVID-19 Pandemic and Disasters

Concluding Observation #68 ; Second State Report #40、#90、#148、#186、#225、#246

~World Vision Taiwan~

Ⅰ. Overview of the current situation

According to the 68th recommendation of the concluding observations on the first

report from the committee on the environmental pollution of the No. 6 Naphtha Cracker,

there is no health right related action plan made to cope with natural disasters,

communicable diseases, influenza etc. for children and youth in the second report.

However, located in the Circum-Pacific Belt and also seismic zone, Taiwan is the spot

tropical cyclone (typhoon) travels right through. Thus, chances of being plagued by

various natural disasters are high. “Natural Disaster Hotspots: A Global Risk Analysis”

published by World Bank in 2005 indicates Taiwan is probably one of the most vulnerable

countries to natural disasters.73% of the population in Taiwan live in areas probably

impacted with more than three kinds of disasters. Over 90% of the national land area are

vulnerable to two kinds of disasters.

COVID-19 pandemic started to be rampant in Taiwan in 2020. There has been

continual impact on economy, environment and society. Public panic has also been

triggered and it became public health crisis. Rights of the Child is also at risk as a result.

1. The right to life, survival and development

a. The mental health maintenance of children and youth during the COVID-19

pandemic

Ambiguous message flood and frequently broadcasted COVID-19

pandemic news by mass media have unleashed a wave of public panic. There have

been seemingly nonsensical behaviors as a result and it also misleads children with

incorrect information and fear. In certain circumstances, some children and youth

have become overly defensive or there have been bullying behaviors in public area.

b. Family crisis caused by income plummets

Because of the impact of COVID-19 pandemic on various industries, the

employment and livelihood of certain groups such as low-income families, temp

66

 workers and hourly workers are affected particularly. Primary needs of family and

children and youth fluctuate with the unstable income or income plummet. Thus,

economic security issues are created.

2. The right to be protected from family crisis caused by unemployment and class

suspension

Students in Taiwan started to take online courses at home during COVID-19

pandemic. Some household income providers also have to work from home but some

have become unemployed or between jobs. Besides financial difficulties, the pressure

of taking care of children and youth is also strengthened at the same time when

parents and children and youth all stay home for long periods of time. Therefore, the

risk of being abused and neglected for children and youth gradually increases.

3. The right to education: the relative exploitation caused by digital divide in low

socioeconomic families during the COVID-19 pandemic

Socioeconomic differences result in digital divide of children in Taiwan. Lacking

of facilities and Internet probably, low socioeconomic families suffer from relative

exploitation in current learning methods. Digital divide of learning resources happens

and further affects the right to education for children and youth.

Ⅱ. Comments on the 2nd State Report

1. In this report, COVID-19 related contents newly added include the right to health

（#40、90、225）, the right to life, survival and development （#148、186）, the

right to education (#246). Primarily, research and development models of European

and American countries are copied and information of younger age group is

collected sequentially. Furthermore, vaccination guidelines are provided and

COVID-19 subsidy to families with children are added and furnished.

Economically disadvantaged students in remote areas are also supported with

facilities such as mobile devices needed, 4G SIM cards and portable Wi-Fi router

etc. Resources of multi-channel digital curriculum are collected through the “EDU

Cloud” E-learning Platform of the Ministry of Education and online learning

resource services are provided.

67

 The Second Alternative Report on the Implementation of the CRC

2. In addition to the aforementioned, there is no further comment on “Mental Health,”

“Children and Youth Care” and “Domestic Violence” during COVID-19 pandemic

in the report.

3. Chances of natural disasters such as typhoon, flood, earthquake etc. occurring in

Taiwan are high and there seems no precautions or contingency plans accordingly

in the report. Considering children and youth have special needs such as care from

adults, relocation arrangement, and counseling on psychological and emotional

trauma in the above situations, rights of children and youth and assistance should

be considered in various emergency plans.

Ⅲ. Recommendations

1.During COVID-19 pandemic, adults have turned to work from home or stay

unemployed and children and youth also started to study at home at the same time.

Families have faced various coexisting pressures resulted from taking care of children

and youth, financial difficulties and education all at once. The risk of being abused and

neglected for children and youth is generated but hard to be controlled at the same time.

Furthermore, the follow up of the existing children and youth protection cases becomes

difficult as the chances of schools and social administration visiting children and youth

in person have become lower during COVID-19 pandemic. Central competent

authority is expected to aim at COVID-19 epidemic trend and conduct detection of

risk and crisis of children and youth protection database. Furthermore, providing

practical packages and measures for social workers to make safe visits to children and

youth is needed.

2. To prevent children and youth’s right to health, life, survival and development from

the aftermath of natural disasters (typhoon, flood, earthquake etc.), authorities are

expected to make contingency plans and measures of disaster prevention, disaster

reduction and disaster preparedness. Specifics include life stabilization, mental

reconstruction etc. Rights of children and youth in remote or potentially high-risk areas

particularly ought to be secured and protected accordingly.

68

 Part 6 Education, Recreation and Culture

6.1 Early Childhood Education/Child Care (§18, § 23, §2, §3)

General Comment #7; Concluding Observation #71~73

~Child Welfare League Foundation,

~Zhi-Shan Foundation TAIWAN~

Ⅰ. Overview of the current situation

The government published the “Measures that Counter Falling Fertility Rate” in 2019.

Whilst there seems to be some achievements such as the increase in quasi-public child

care services and public services, material breaches of rules by child care institutions have

often been in the news in Taiwan over recent years.

1. Questionable quality of child care institutions and the absence of an oversight

mechanism

According to the 2021 survey by Child Welfare League Foundation R.O.C.,

17.38% of the families indicated rule breaching by quasi-public child care services,

including quasi-public institutions contracted by the government. For quasi-public

kindergarten, it is 34.33%. The aforesaid rule breaching typically includes corporal

punishment, violent treatment and improper care of children, number of children

accepted outside the legally stated amount, recruitment of unqualified teachers and

child care personnel, fees and charges under invented categories. Meanwhile, the

disciplinary actions and the exit strategy are obviously inadequate and there is no

capacity for proactive audits. All these suggest that the government is working for

performance metrics, and not ensuring the care quality.

2. Child care capacity at indigenous tribes dispersed by the national child care system

designed for 0-6 years old

The government’s division of management dictates that the child care for 0-2

years old is in the social work and administration system and governed by the

Ministry of Health and Welfare. Meanwhile, while early childhood education for 2-

6 years old is governed by the Ministry of Education. The two competent authorities

69

 The Second Alternative Report on the Implementation of the CRC

establish two sets of regulations and management guidelines. However, indigenous

tribes are limited in resources in practice and are unable to set up two separate

interactive early childhood care institutions.

Ⅱ. Comments on the 2nd State Report (#239)

As shown in the contents of the Second National Report, the government has come

a long way in terms of the availability of early education and care resources to the public,

mechanism of affordable quasi-public early education and care, expansion of child-

rearing allowances, and subsidies for companies offering early education and care

services. It has made significant progress by providing a variety of supportive services to

families with young children.

However, most of the services today are centered on reducing burden of expense on

families for early childhood education of offering family support via subsidies and

allowances. Other than general accreditation, there is no specific mechanism for auditing,

oversight or exit strategy regarding the management of care quality by at-home

babysitters, child care institutions and quasi-public kindergartens.

Ⅲ. Recommendations

1. Continue increasing public child care resources

To provide inexpensive, close-by and convenient child care services, the

government should explain the policy planning and expectation for delivery of

different services for 0-2 years old such as at-home babysitters, public-sponsored

privately-operated infant care centers and quasi-public child care services. The public,

quasi-public or private kindergartens for 3-6 years old should also accurately present

their current status and future policies. Details on how budgets are used should also

be explained.

2. Enhanced audits and support mechanisms for poorly-operated centers and

kindergartens

Audits and support mechanisms should be enhanced in order to review whether

the laws and stipulations can effectively regulate poorly-operated child care centers

and kindergartens. In addition, city/county governments should be asked to disclose

the rule-breaking child care centers, as stated by laws. Or this can be disclosed by the

central government. Incompetent personnel should be tracked in order to validate

70

 whether they can work at infant care centers and child care services. It is also

necessary to ensure the quality of child care to pre-school children.

An exit strategy should be put in place for centers and kindergartens that

repeatedly violate rules. An inquiry map for rule-breaking child care centers has been

constructed with civil society resources. The information can be made open for the

reference of parents and relevant organizations either with likewise deployment or

via industry-government cooperation.

3. Establishment of an integrated tribe center for education and care

Given the limited service capacity at indigenous tribes, the resources from the

Ministry of Education, the Ministry of Health and Welfare and the Council of

Indigenous Peoples should be integrated. A single contact window should be

established by county governments to simplify the administrative and operational

procedures. The tribe center for education and care can act as the one-stop service

provider to indigenous children who are 0-6 years old.

71

 The Second Alternative Report on the Implementation of the CRC

6.2 Minority and indigenous children (§30)

Concluding Observation #87~88;

Second State Report # 56, #258, #279~280, #283, #308, #309, #311~313, #317

~Zhi-Shan Foundation TAIWAN~

Ⅰ. Overview of the current situation

1. The neonatal and infant mortality rates of indigenous people are still nearly 2 times

higher than the national average

According to the "2017 Indigenous Population and Health Statistics Annual

Report", the total number of neonatal deaths of indigenous peoples in 2017 was 26,

the mortality rate was 3.8 per 1,000 live births, and the number of under 1 Year-old

infant deaths was totaled 52, with a mortality rate of 7.6 per 1,000 live births. As

compared to statistics announced by the Ministry of Health and Welfare in 2017, the

total number of neonatal deaths nationwide was 486, the mortality rate was 2.5 per

1,000 live births, and the total number of deaths of infants under the age of 1 was

772, with a mortality rate of 4.0 per 1,000 live births. Obviously the neonatal and

infant mortality rate of indigenous peoples is nearly doubled as compare to the

national average, and the main causes of death in order were: specific conditions

originating from the perinatal period (40.4%), congenital malformations and

chromosomal abnormalities (23.1%), and accident injuries (9.6%).

2. Insufficient qualified teachers of indigenous nationality

There have been cases of indigenous children being forced to choose non-native

language courses at school. Although the "108 Curriculum" stipulates that every

student at elementary schools and middle schools (from August 2022) can have one

mother-tongue language class per week, it is not easy to hire qualified indigenous

language teachers who meet the needs of each indigenous child, due to there are more

than 14 indigenous language in Taiwan. In addition, there is a lack of a matching

mechanism. If the school does not have a dedicated teacher to take responsibility on

promoting, the rights and interests of indigenous students to learn native language

are easily overlooked.

72

 3. The design of the affirmative actions of education for indigenous students (as known

as the bonus point system) has caused both positive and negative impact on

indigenous children

In order to alleviate the past unequal treatments suffered by the indigenous people,

the government actively adopts affirmative actions for indigenous students in high

school and college entrance examination, which means indigenous students can

receive certain bonus points for their enrollments of high schools and colleges. The

design of the bonus point system, somehow, provides some indigenous children with

learning opportunities, broadens their horizons, and then cultivates talents needed by

the nation; however, it is also found that few indigenous children, they fell into the

pressure of academic study after the upgrade, suffered from peer bullying, and

discrimination, self-confidence gradually disappears, and finally quit or leave school.

Zhi-shan Foundation Taiwan has accompanied with indigenous children in Jianshi

and Wufeng Township, Hsinchu County for 25 years. Taking year 2021 as an

example, in September 2021, 24 of the indigenous children entered the middle school

after graduating because of the bonus point system. Unfortunately, the semester has

not ended yet, 3 students have been left school due to their failure to keep up with

their studies or economic factors. On the other hand, there are about half of the

students who have entered public high schools because of the bonus point system, so

that they have the opportunity to re-learn indigenous language and gain a better life.

4. The horizontal connection between social work service networks is broken, resulting

in loopholes in the social safety net

Zhi-shan Foundation Taiwan finds that once the indigenous children they

accompanied in tribes enter the protection system, they are often unable to not only

further participate in the discussion of the follow-up treatment meetings, but also

have no way to know the results of the follow-up treatment. Therefore, when the

child return to tribes or communities after resettlement, it is difficult for private

sectors workers (take Zhi-shan Foundation Taiwan as an example) in the tribe or the

community to provide follow-up services. The connection between public and

private sectors is therefore missed.

Ⅱ. Comments on the 2nd State Report

In regard to the rights of urban indigenous children, paragraph 258 and paragraph

313 of the 2nd State Report of the Convention on the Rights of the Child only stress on

73

 The Second Alternative Report on the Implementation of the CRC

the formulation of laws and regulations on educational and cultural rights and the

provision of subsidy measures. There is a lack of regular follow-ups of the

implementation of laws and policies, specific outcome data or effectiveness analysis, and

the narratives on the exploration of children’s rights needs to other than educational and

cultural rights. This also shows that the state does not have enough knowledge of the

conditions, rights and well-beings of indigenous children living in urban areas.

Ⅲ. Recommendations

1. It is recommended that in order to maintain the health of mothers and infants, and to

reduce the neonatal and infant mortality of the indigenous people, the Ministry of

Health and Welfare continue to strengthen on the importance of health education for

indigenous pregnant women, and provide a wealth of information on motherhood

knowledge, health education articles, and resources of neonatal care. I addition, the

two prenatal genetic examinations of high-level ultrasound and chromosomal

screening could be considered as the benefit package of the national health insurance

for the indigenous pregnant women.

2. In response to the shortage of qualified indigenous teachers, the Ministry of Education

is advised to:

a. Make good use of and promote the digital teaching material website of “Taiwan-

Austronesian Indigenous Words and Narrations” (族語 E 樂園), enrich teaching

resources and innovate teaching models, create the greatest possibility of students’

learning benefit under the condition of limited indigenous language teachers

resources, and then every indigenous child’s right to education is ensured.

b. Encourage schools to have dedicated teachers of indigenous identity and actively

promote the matching of indigenous language teachers.

c. Actively develop the indigenous teacher training system in cooperation with the

Council of Indigenous Peoples in order to implement the Education Act for

Indigenous Peoples, which stipulates that proportion of teachers with indigenous

identities shall be at least one-third of the teachers in an indigenous school.

3. It is recommended that the Ministry of Education immediately review the affirmative

actions of education for indigenous students (the bonus point system) corporately with

the council of Indigenous Peoples. Follow-up research and evaluation on the impact

of the bonus point system should be conducted in order to adjust the system and to

propose necessary supporting measures.

74

4. It is recommended that the Ministry of Health and Welfare initiates a dialogue with the

Council of Indigenous People to discuss the functions and roles that the Indigenous

Family Service Center can offer in the institutional planning of the social safety net to

establish a horizontal service linkage and cooperation mechanism.

5. By now more than half of the indigenous children have left the tribe and live in cities

for schools and employment. It is therefore recommended that the state immediately

take a comprehensive survey on the needs of indigenous children living in cities to

develop specific measures for and ensure the rights of indigenous children living in

the cities.

75

 The Second Alternative Report on the Implementation of the CRC

Part 7 Special Protection measures

7.1 A Profound Lack of Leisure Activities and Facilities for Teenagers (§23、§31)

Concluding Observations#78, 83-86, 90-91; Second State Report#223-225, 292-297, 333

~The Association of Probation Taiwan R.O.C~

Ⅰ. Overview of the current situation

UN Convention on the Rights of the Child stresses the importance of children’s rights

to relax and play (§31), while numerous research also highlighted the fact that leisure

activities bring about powerful effect on the physical and mental development of children,

such as temperament cultivation, self-development, stress management, friend making,

peer group participation, juvenile delinquency prevention and so on.

In addition, budgets for children and youth have pumped up from 2017 to 2019. (with

an increase of 49.73%) (A study on budget allocation to children and youth, 2020)

However, a further review of the budget allocation for the past three years indicates that

education (60.89%) and welfare (24.43%) accounts for the largest portion of the central

and local governmental budget, followed by health (11.35%), development (2.53%), and

protection (0.77%). Budget for leisure activities only makes up for 2.53% according to

the data provided by the Ministry of Health and Welfare, 2021.1 It is telling that budget

for children and youth are insufficient.

Ⅱ. Comments on the 2nd State Report

The second national report about leisure, recreational and cultural activities focus

merely on children play ground facilities, parenting centers, nurseries and healthy lunch

programs (#292-297) but fail to include policies and budget for leisure activities for youth

over 12 years old.

In the 1990s, Iceland first initiated The Icelandic Model for Primary Prevention of

Substance Use (IPM) which drastically reduced alcohol and substance abuse among

youth in Iceland. Youth workers in Taiwan discovered that teenagers mostly use Class 3

and Class 4 drugs. On the other hand, the national anti-drug campaign aims at Class 1 and

Class 2 drugs, which clearly neglects the crisis among teenagers. Hence, the government

should materialize the concept of “prevention over treatment” by putting more efforts in

promoting leisure and sports activities for youth. Not only is the approach in tune with

76

the Article 32 – 37 of the United Nations Guidelines for the Prevention of Juvenile

Delinquency (Riyadh Guidelines), but also meets the actual need of the youth undergoing

drug rehabilitation. Besides medical intervention, counselling and assistance are equally

important.

Ⅲ. Recommendations

1. The government should implement §31 of CRC, putting priority on children’s rights

to relax and play and increasing the welfare budget for teenagers.

2. The government should focus on leisure activities and the prevention education of

drugs among youth, and provide related services with budget and other resources.

(Riyadh Guidelines#45 taken as a reference)

3. IPM of Iceland- Youth are advocated to partake in leisure and sport activities,

afterschool care and parents are encouraged to accompany youth in their

communities, which is a role model for Taiwan.

4. The government should establish Geographic Information System of deviant form of

behaviors and crime mapping to understand drug abuse among teenagers.

5. Youth subculture should be used utilized to help youth cultivate the ability to

independent living, self-discovery, net-working. Moreover, spaces are needed for

youth to showcase their diverse talents.

_____________________________

1.

A study on budget allocation to children and youth. 2021. Ministry of Health and Welfare. Source:

https://crc.sfaa.gov.tw/Statistics/Detail/1

77

 The Second Alternative Report on the Implementation of the CRC

7.2 Limits on The Maximum Period of Continued Juvenile Protective Detention

should be Placed(§37、§40)

Concluding Observations #94, 96; Second State Report #359-361

~The Association of Probation Taiwan R.O.C~

Ⅰ. Overview of the current situation

Detention is a means of depriving youth of their freedom, and such method should

be the last resort in exceptional circumstances. If a child poses danger to himself/herself,

children protection measures should be applied. According to Article 86 of the United

Nation Guidelines for the Prevention of Juvenile Delinquency” (Riyadh Guidelines), the

court shall reduce the use of detention and minimize the duration of detention when

detention is necessary. Article 26-2 of Juvenile Justice Act stipulated that during the

detention in Juvenile Detention Houses, investigation or trial shall be conducted no more

than two months and the extension of detention may not exceed one month and may only

be made once. Yet, the actual proceedings of the first and second instance are not taken

into account. When one party refuses to accept the ruling and lodges an appeal, it is likely

that the detention would be extended and the best interests of children and youth would

be violated.

Take Youth A as an example. Holding a record of two burglaries, Youth A was

charged for his third attempt of burglary and was sentenced to a two-month detention

along with a one-month extension during investigation. Then, Youth A was again,

sentenced to a two-month detention along with a one-month extension during the trial

period. Later, the case was handed over to the court of second instance and the judge

ordered another two-month detention with a one-month extension during investigation.

At last, the trial was dismissed on the grounds that partial doubts were not cleared.

The judge at the court of first instance ruled that institutionalization was of necessity.

In the case of Youth A, the total period of detention exceeds 9 months. On the contrary,

Article 55-1 and 56-1 of the Juvenile Justice Act provided that those who are under

custody over 6 months with a significant improvement and are subjected to educational

discipline over 6 months with a need of continuous treatment shall file a petition for

waving the execution. Nonetheless, the petitions submitted either by youth or one’s

statutory agents often result in lengthy detention which is longer than the enforcement of

78

protective measures. The longer the period of detention is, the less likely the juvenile

would return to school.

Ⅱ. Comments on the 2nd State Report

During the phase of trial, a juvenile court may order the custody of juvenile to a

juvenile detention center and may send a juvenile to a juvenile investigation officer for

consulting. (Article 26 of the Juvenile Justice Act) On the other hand, a juvenile court

may deliver a ruling to send a juvenile to a juvenile investigation officer for observation

for a duration not exceeding 6 months. (Article 44 of the Juvenile Justice Act) Hence, a

judge has the legal right to appoint either a custody or observation order to a juvenile.

However, the continuation detention and the appropriateness of detention were neglected

in the Second National Report.

Ⅲ. Recommendations

1. Convention on the Rights of the Child (Article 37) and United Nations Standard

Minimum Rules for the Administration of Juvenile Justice stress the importance of

children’s right in the justice system, and therefore, the government should review the

current regulations on detention and revise the maximum duration of detention and

other alternative measures replacing detention to achieve the best interest of children

and youth.

2. In Japan, juveniles transferred from the family court to the detention center are

normally subjected to a two-week to maximum of four-week detention, which could

be a reference for the future amendment.

79

 The Second Alternative Report on the Implementation of the CRC

7.3 Probation and Classification Shall Be Available in Juvenile Detention Centers

(§40)

Concluding Observations #94, 96; Second State Report #16, 32(b), # 353-354, #363

~The Association of Probation Taiwan R.O.C~

Ⅰ. Overview of the current situation

I-2 of United Nations Rules for the Protection of Juveniles Deprived of their Liberty

stipulated that “deprivation of the liberty of a juvenile should be a disposition of last resort

and for the minimum necessary period and should be limited to exceptional cases. The

length of the sanction should be determined by the judicial authority, without precluding

the possibility of his or her release.” Hence, for juveniles subjected to detention, a juvenile

detention center is not one’s permanent home but an important place where one can self-

reflect on the crime one committed when freedom is first deprived.

Juvenile Justice Act was amended to include evaluation and observation of the

delinquents along with classification reports in 2019 based on the classification feature

of the juvenile detention system in Japan. In 2020, Article 28-1 of the Regulations of

Juvenile Court and Relevant Authorities Dealing with Juvenile Delinquency Cases further

stated that juvenile detention centers should conduct physical and mental evaluation

together with behavioral observation on juveniles to provide classification reports. If

necessary, juvenile detention centers could request relevant competent authorities to

provide medical resources for mental classification and may convene resource liaison

meetings.

It is clear that in addition to accommodation, juvenile detention centers should

improve their classification capacity.

Ⅱ. Comments on the 2nd State Report

Although juvenile detention centers received favorable comments in Concluding

Observations, the information disclosed on juvenile detention centers was insufficient.

In Japan, juvenile classification homes detain juvenile delinquents, conduct specific

classifications and implement supervision over youth who violate the law. Juvenile

classification homes first carry out classifications on physical and mental characteristics

of juveniles via medical, psychological, pedagogical, sociological and other expertise to

provide practical needs of investigation, trial and probation. Moreover, not only do

80

juvenile classification homes conduct classification work for the Ministry of Justice, they

also take on classification requests from schools and families to offer suggestions.

In contrast, the recent amendment of Juvenile Justice Act which revised the

professional mission of juvenile detention centers was in the best interest of juveniles.

Therefore, all eyes are on how juvenile detention centers carry out tasks delegated by

Juvenile Justice Act.

Ⅲ. Recommendations

1. If necessary, juvenile judges may order the custody of juvenile to a juvenile detention

center. In accordance with Article 26-1 of the Juvenile Justice Act and Article 3 of

Statute on the Establishment of Juvenile Detention Houses, physical and mental

evaluation and clinical diagnosis made by juvenile detention centers via health

check, consulting, observation and psychological tests shall be used in future trial.

2. The placement of juveniles should be classified. According to Article 27 of United

Nation Rules for the Protection of Juveniles Deprived of their Liberty, “as soon as

possible after admission, each juvenile should be interviewed and a psychological

and social report identifying any factors relevant to the specific type and level of care

and program should be prepared. This report, together with the report prepared by the

medical officer who has examined the juvenile upon admission, should be forwarded

to the director for purposes of determining the most appropriate placement for the

juvenile within the facility and the specific type and level of care and program

required and to be pursued.”

3. Juveniles in such centers should be entitled with the rights to education, rest and

leisure. The centers should strengthen compulsory education, leisure education and

ensure appropriate amount of free recreation time is allocated to juveniles.

4. In the future, juvenile detention centers should continue to pay heed to Article 37 of

UN Convention on the Rights of the Child and United Nations Rules for the

Protection of Juveniles Deprived of their Liberty and execute core missions such as

detention, classification and protection. In particular, the expansion of juvenile

shelters under overcrowding prisons that meets the best interest of children should be

the long-term goal such centers strive for.

81

 The Second Alternative Report on the Implementation of the CRC

7.4 The Implementation of Juvenile Probation Officers and Juvenile Protection

Officers (§3、§36、§40)

Second State Report #348

~The Association of Probation Taiwan R.O.C~

Ⅰ. Overview of the current situation

Juvenile probation system is a part of the child justice system and the effectiveness

of the system is crucial to the success or failure of correction treatment of crime. In 1997,

Article 9 of the Juvenile Justice Act was amended to specialize the responsibility of

probation officers: juvenile probation officers are responsible for pre-trial investigation

and juvenile protection officers are answerable to the implementation of juvenile

protection.

Article 22.1 of The Beijing Rules stated that “For social workers and probation

officers, it might not be feasible to require professional specialization as a prerequisite

for taking over any function dealing with juvenile offenders. Thus, professional on-the

job instruction would be minimum qualifications.” Hence, the core issue of a sound

juvenile probation system in the child justice system lies in the respect of professionals

and training.

Ⅱ. Comments on the 2nd State Report

Juvenile probation system is indeed a vital part of the child justice system. Our nation

has undergone several changes of policy such as the separation of trial and investigation,

the unification of probation, and the interchangeable responsibility of probation officers

and protection officers which cause a lot of uncertainties and disputes. However, the

National Report failed to address the training and allocation of professionals, which is

bond to have a profound impact on children’s rights to justice and whether the officers

meet the qualifications.

Ⅲ. Recommendations

In the judicial system, both juvenile probation officers and juvenile protection

officers are important roles to protect the best interest of children. Unfortunately, they are

the relative minorities in the system. Hence, the authority should overcome the difficulty

and actively support the development of professionals.

82

 The followings are recommendations for the juvenile probation system:

1. Lay out the responsibility of juvenile probation officers and juvenile protection

officers and establish juvenile-oriented measures.

2. Guarantee a comprehensive personnel system and long-term professional training.

3. Avoid differential treatment within the system and raise funds for juvenile probation

to safeguard the best interest of juveniles.

4. Given that the execution of juvenile probation involves the rights of juveniles, the

duty of juvenile protection officers and juvenile probation officers should be

protected by exclusive regulations like Rehabilitative Disposition Execution Act. It

is inappropriate to rely on Regulations of Juvenile Court and Relevant Authorities

Dealing with Juvenile Delinquency Cases as an expedience.

83

 The Second Alternative Report on the Implementation of the CRC

7.5 The Youth Counseling Committee Should Strengthen the Prevention of Youth

Deviant Behaviors and Enhance the Functioning of the Consultation System

Concluding Observations #96~97; Second State Report #340, #342-344

~The Association of Probation Taiwan R.O.C~

Ⅰ. Overview of the current situation

The amendment to Article 18 in the "Juvenile Delinquency Act" was passed in 2019.

It essentially made the Youth Counseling Committee the primary authority to handle any

delinquency acts committed by the juveniles. Afterward, regulations and drafted bills

such as "Regulations on Juvenile Court and Relative Administrative Units in Handling

Youth Delinquency Acts" (2020), "Regulations on Youth Delinquency Acts Prevention

and Consultation" (2021), "Proposed Bill on Establishing the Youth Counseling

Committee to Providing Counseling Services" (2021) have been passed and proposed.

Article 18 in the "Juvenile Delinquency Act" is the legal source to the "Proposed Bill

on Establishing the Youth Counseling Committee to Providing Counseling Services."

According to #7 in Article 18, "Youth Counseling Committee in the special municipalities,

cities, and counties should delegate duties from # 2 to # 6 to employees with degrees and

expertise in social work, psychology, education, and family education. Regulations

regarding the Youth Counseling Committee's appointment, counseling structure, duties

management, evaluation and requests to the juvenile courts should be agreed upon by the

Executive Yuan and the Judicial Yuan." Thus, the functioning of the Youth Counseling

Committee is not only the liaison and duty delegation between Ministry/Department of

Education and Social Work but also be held accountable to support pretrial diversion and

counsel the youth in terms of their deviant behaviors.

However, Article 2 and Article 5 of the proposed bill which contain the framework

and structure of the Youth Counseling Committee inclined to set the functioning of the

Committee towards counseling and creating resource pipeline among professional

partnerships for youths that conducted deviant behaviors. In turn, it neglects the need to

strengthen the internal structure of the Youth Counseling Committee to work on the

prevention of youth deviant behaviors. It seems like creating a well-rounded network of

professionals to assist the children and youth from the surface level. However, from the

standpoint of structure operation, it limits the leadership of the professional team and the

space for the professional staff to deliver their best jobs. Apparently, the part-time

84

leadership within the Committee pays insufficient attention to the needs of the front-line

staff. Meanwhile, the front-line workers have no place to report their concerns due to the

broad structure of the entity. The guidance and organizational support from the leaders

are limited. Further, workers have the responsibilities but not necessarily an aligned

authority within their areas of expertise. For the part-time staff, getting a raise becomes

incredibly challenging. Their time at work is constrained by the contract, making it

difficult to grow as much as they can. The inherent nature and design of the structure lack

the appeal and framework to retain good talents. Thus, it lowers the expected outcome

and functioning of the pretrial diversion.

Ⅱ. Comments on the 2nd State Report

#340 in the 2nd State Report discussed the counseling framework that involves

education, social affairs, and the administrative units for children who conduct deviant

behaviors under the age of 12. However, the state fails to report the comparative

framework for risk-exposed youths between the ages of 12 to 18. Through the

"Regulations on Youth Delinquency Acts Prevention and Consultation," Article 6 fairly

rules out the recipients of the counseling services and the principles on referrals for these

risk exposed youths. Yet, it neglects other prominent factors that would make the service

more successful. For example, the report did not elaborate on how they will recruit the

staff, run the workshops, how to initiate a case, ways of dealing with urgent or violent

issues, incidents such as drug abuses, emergency placements, the procedures to manage

cases, how to conduct investigation and visits, the evaluation of cases, how to plan out

counseling services, and the counseling strategies relating to crime prevention.

Ⅲ. Recommendations

1. Article 2 in the "Proposed Bill on Establishing the Youth Counseling Committee to

Providing Counseling Services" rules: "Special Municipality and county (city)

governments should allocate the administrative responsibility and human resources,

with the integration of police, education, health, social affairs, civil affairs, household

administration, labor, finance, drug hazard prevention and other agencies (units), to

set up Youth Counseling Committees. And integrate financial management,

immigration, and other related resources to handle the following matters." Article 2

only focuses on establishing the Youth Counseling Committee, which should be

responsible for the supervision, coordination, and implementation of the youth and

children's deviant behavior counseling services, with the partnership of the Social

85

 The Second Alternative Report on the Implementation of the CRC

Welfare Bureau (Division) and the Education Bureau (Division). However,

according to the "Juvenile Delinquency Act" and "Regulations on Youth

Delinquency Acts Prevention and Consultation," the Youth Counseling Committee

is mainly responsible for pretrial diversion and counseling and prevention of youth

deviant behavior. The Committee's functionality is intentionally ignored in the

proposed bill, which violates #7 of Article 18 in the "Juvenile Delinquency Act" and

should be amended promptly.

2. In terms of the practical implementation of the Youth Counseling Committee, the

design and formation of the following issues should be the government's priorities.

For instance, the ways to notify juveniles of their delinquency acts and deviant

behaviors, investigation, and evaluation, treatment decisions, the introduction of

juvenile restorative justice, the integration of a multi-agency team, case management,

prevention and counseling, consultation services, positioning of professional roles,

functions of crime prevention, ways to cooperate with police agencies, ways to make

referrals, ways to leverage relevant resources and welfare services, etc. Successful

policy implementations used by other countries can be a mirroring strategy for

ourselves. For example, the Youth Offending Team (YOT) in England and Wales,

the Child Guidance Center in Japan, the Special Investigation Center for Juvenile

Offenders in Sweden, and the Youth Justice Community Office in the New South

Wales State Department of Youth Justice in Australia can be examples that we can

use as a reference to structure the framework of the Youth Counseling Committee.

3. In the future, the Youth Counseling Committee should continue to actively plan

services for risk-exposed youth and maintain consistent contact and partnership with

the police. For example, Specialist Youth Officers are established within the

Australian Police Department to provide police, youth, and parent-related advice. As

well as making decisions on juvenile issues and verifying juvenile allegations.

Undoubtedly, police are also a preeminent partner of the Youth Counseling

Committee, schools, social affairs bureaus, and the community to reduce harm and

strengthen the prevention of juvenile delinquency, violence, and antisocial behavior.

86

---

來源 PDF:34_20220418091033_09022.pdf

 台灣兒童權利公約聯盟成員 List of Members

(按筆畫順序排列)

中華民國智障者家長總會

Parents' Association for Persons with Intellectual Disability, Taiwan

台灣性教育學會

Taiwan Association for Sexuality Education

台灣兒童暨家庭扶助基金會

Taiwan Fund for Children and Families

台灣世界展望會

World Vision Taiwan

台灣展翅協會

ECPAT Taiwan

至善社會福利基金會

Zhi-Shan Foundation TAIWAN

社團法人中華民國觀護協會

The Association of Probation Taiwan R.O.C

社團法人台灣好鄰居協會

Good Neighbors Taiwan

兒童福利聯盟文教基金會

Child Welfare League Foundation

花蓮縣谷若思全人關懷協會

Hualien County Growth Holistic Care Association

財團法人天主教善牧社會福利基金會

Good Shepherd Social Welfare Foundation

財團法人台北市婦女救援社會福利事業基金會

Taipei Women's Rescue Foundation

財團法人董氏基金會

John Tung Foundation

國立臺灣大學中國信託慈善基金會兒少暨家庭研究中心

National Taiwan University Children and Family Research Center Sponsored by CTBC Charity Foundation

I

 目 錄

前言 01

第一章 一般執行措施

1.1 國內法律及政策與公約之銜接 03

1.2 公約施行狀況監督機制 05

1.3 數據蒐集 07

第二章 一般性原則

2.1 禁止歧視原則 09

2.2 未成年非預期懷孕兒少 11

2.3 兒少表意權--中央兒少代表團 14

第三章 保護兒少免受暴力侵害

3.1 兒童保護情形─對兒童的暴力行為 16

3.2 目睹家庭暴力兒少 19

3.3 受性剝削兒少 21

3.4 對兒童的暴力行為─霸凌 23

3.5 兒童救助熱線 25

第四章 家庭環境與替代性照顧

4.1 家庭環境與替代性照顧─離婚 27

4.2 非法移轉兒童或使其無法返國返家 29

4.3 家庭環境與替代性照顧─收養 32

4.4 保護安置 35

4.5 親屬安置 37

第五章 身心障礙、基本健康與福利

5.1 身心障礙兒少權利 40

5.2 兒童健康權之改善與環境品質 42

5.3 兒少資訊教育與網路成癮 44

5.4 兒少心理健康 46

5.5 幼兒園之餐點品質與飲食教育 48

5.6 疫情、災變下的兒童權利 50

II

第六章 教育休閒與文化

6.1 學前教育與托育 52

6.2 少數民族與原住民兒童 54

第七章 特別保護措施

7.1 青少年休閒活動與場所明顯不足 57

7.2 少年保護事件持續收容應有最高期間限制 59

7.3 少觀所應具有觀護與鑑別功能 61

7.4 落實少年調查官、保護官分流制度 63

7.5 少輔會應強化少年偏 差行為預防及輔導體系的完整 65

III

 前 言

本替代報告係由台灣兒童權利公約聯盟（Taiwan NGOs for CRC，下稱「本

聯盟」）凝聚並整合其 12 個兒少團體成員之專業領域與實務經驗，就國內兒少

現況評議及第二次國家報告不足之處，所提出之獨立民間觀點。本聯盟係倡議兒

童權利公約國內法化之主要民間團體之一，自成立以來，即以增進兒少工作者對

公約之理解，並在國內全面推廣公約理念為共同目標。本替代報告係聯盟成員組

織代表，經過前後二十次線上線下會議，共同討論並持續修正之成果，期望能就

國內兒少權利落實狀況，提供實務面之專業觀點。此外，本聯盟亦透過舉辦國際

研討會，及參與區域性國際會議等活動，汲取公約落實之國際經驗，並努力強化

盟員間對於公約規範精神之掌握，冀望於國家報告審查過程中，能成為一股有效

之監督力量。本替代報告全文以七章，包含一般執行措施、一般性原則、保護兒

少免受暴力侵害、家庭環境與替代性照顧、身心障礙、基本健康與福利、教育休

閒與文化、以及特別保護措施，共 29 個主題，由各盟員組織長期於服務兒少、

耕耘相關兒童議題之專業，提出第一手實務面、之直接觀察與建言。

整體而言，儘管國家報告是政府根據結論性意見，及五年來的執行，依據聯

合國相關規範所製作而成，進一步檢視該報告可發現，諸多內容仍僅為權責單位

工作內容報告之堆疊，缺乏橫向的整合。經過民間團體的多次討論，本聯盟決定

提出一核心建議:針對兒少權利踐行，政府應建置「中央政府行政院層級」之專

責機關，以利跨部會之協調整合，具體解決目前兒少福利與權益業務零散分立、

各自為政之實務問題。

再則，最近國內「少年事件處理法」的修訂，是自第一次 CRC 國家報告以

來，落實兒少司法人權的一大成就，值得慶幸。然而，徒法不足以自行，在施行

辦法中沒有適當的處理執行面的規範、不夠尊重專業人員的制度、以及權責不明

的分工，在在令人擔憂；如果沒有準備好的制度人員接住轉向的脆弱兒少，社區

處遇不會發生，將是另一場災難，因此第七章中，有五節的篇幅對此有所諍言。

另外，有關台灣兒童權利落實狀況雖然在 1997 至 2005 年，曾有過兒童權利

調查，附於人權調查報告中，但迄今已中斷 18 年，其內容也缺乏隨機抽樣的實

證資料，以及兒童的表意，堪稱不足；雖然兒童權利的概念在 2019 年正式透過

108 課綱進入國小校園，然而根據 NPO 服務過程中的觀察，發現大約只有三分之

一的小學生聽過兒童權利， 並且對兒童權利的認識也一知半解。本聯盟認為對

1

我國童權環境及保障現況之掌握，需要一份由兒童自述的權利經驗的現況報告調

查，實有其迫切的需要，希冀獲得政府的重視。

本報告之撰寫要感謝 14 個聯盟組織的付出，以及台灣大學中信慈善基金會

兒少暨家庭研究中心擔任秘書處的工作，尤其是台大社工系博士班吳淑惠同學的

協助，方使本報告得以順利完成。

台灣兒童權利公約聯盟

Taiwan NGOs for CRC

2022 年 3 月

2

 第一章 一般執行措施

1.1 國內法律及政策與公約之銜接（§34）

關於買賣兒童、兒童賣淫和兒童色情問題之兒童權利公約任擇議定書(OPSC)

結論性意見#10；第二次國家報告#4、#368

~台灣展翅協會~

一、現況分析

《兒童及少年性剝削防制條例》（以下簡稱兒少性剝削條例）是台灣規範性

剝削犯罪及被害兒少處遇服務的法律。然而目前《兒少性剝削條例》中針對持有

性剝削製品者之法律責任仍低於國際規範，且在涉及虛擬或是仿兒童的性剝削製

品上未有法律規範。儘管在 2017 年的國家報告審查會議中，委員會於結論性意見

第 10 點，鼓勵我國接受 OPSC、OPAC 兩項任擇議定書，台灣政府至今尚未採取任

何行動。

（一）持有兒少性剝削製品罰則過低

台灣展翅協會於2018~2020年分別接獲441件、516件、811件的兒少性剝

削影像檢舉案件，而NCMEC（National Center for Missing & Exploited

Children）所接獲的通報案件中，來自台灣的在2019年、2020年則分別為

33,621件、29,468件。

然而根據《兒少性剝削條例》第39條，持有兒少性剝削製品者第一次被

查獲，處以罰緩，第二次被查獲，處以罰金，罰則遠低於國際上普遍之標準，

亦不符OPSC第3條之規定。由於行政罰案件無法適用刑事訴訟法中搜索票的

申請要件，以至於即使執法人員能夠透過科技技術調查出持有性剝削製品者

的位置，也無法至其處所進行搜索；此外，執法人員對於性剝削製品對兒少

安全的危害認知不足，調查態度亦不夠積極，都導致行政裁罰案件

2018~2020年分別僅有4件、3件、8件，受裁罰的數量與前述現實狀況有嚴重

落差。

（二）尚無法律規範虛擬或是仿兒童的性剝削製品

台灣展翅協會於2018~2020年分別接受28件、37件、37件的有關虛擬兒

少性剝削製品檢舉，然而這僅是其中冰山一角的統計數據。由於《兒少性剝

削條例》中未明文禁止虛擬兒童或是仿兒童的性剝削製品，因此無法得知虛

3

 擬兒少性剝削製品的實際流通數量。

根據OPSC第2條，兒童性剝削製品包括「以任何方式呈現兒童進行真實

或『技術合成』之露骨性活動……」，但目前在台灣，無論是市面上、網路

論壇、社群平台中都可見虛擬兒少性剝削製品，甚至性剝削娃娃（child sex

dolls）也可於網路平台中購得，卻無法律可加以制裁。

二、對國家報告之評論

第二次國家報告「一般執行措施 A 項」中提出「保留及聲明」，針對結論性

意見第 10 點回應，表示我國雖未加入 OPSC，但在《兒少性剝削條例》等其他相

關法規中已完全遵循議定書的精神，制（修）定法令規範。

政府雖已就持有兒少性剝削製品者處以刑罰提出修法草案，但目前仍尚未送

至立法院審查，且從相關法規未規範虛擬或是仿兒童的性剝削製品等現況可知，

我國相關法令未能落實 OPSC 所制定的規範，在保護兒少免於性剝削上也未能完全

實現 OPSC 的精神。

三、結論與建議

(一)持有兒少性剝削製品，不僅使受害兒少遭受性剝削、性虐待的影像持續遭

散布，對受害兒少帶來傷害，更促使性剝削製品的供需關係存在，形成商

業市場有利可圖，使更多兒少受害。政府應盡速將 OPSC 國內法化，並比照

OPSC，以刑罰規範持有兒少性剝削製品者。

(二)虛擬或是仿兒童的性剝削製品可致社會容忍兒少遭受性化、將兒童視為性

客體的現象，置兒少於風險之中。政府應盡速立法規範虛擬或是仿兒童的

性剝削製品，以保護兒少免於性剝削的風險。

(三)政府應加強執法人員取締持有兒少性剝削製品之工作，同時加強宣導持有

兒少性剝削製品之非法性、以及虛擬或是仿兒童的性剝削製品對兒少帶來

的風險。

4

 1.2 國家人權機構應內設監督兒童權利的專責單位；

或是成立兒童監察使辦公室；或是設置兒童權利委員（§12、§19）

結論性意見#14、#15、#26；第二次國家報告#26~#31

~台灣好鄰居協會~

一、現況分析

近年少子化政策下幼兒園、托嬰中心快速增長，由2010年169家至增加至

2020年1,269家；然而近2年新聞中有關育幼院、托嬰中心、幼兒園內仍可見兒童

虐待﹑恐嚇﹑不當管教，致兒童心生恐懼、難以入眠等報導，因此國家人權機構

並內設監督兒童權利的專責單位主動了解兒童實際狀況與需求之權益的保障，實

有其必要性。

二、對國家報告之評論

國家報告第26點雖然依據法律授權於2020年8月在監察院下設立國家人權委

員會；然而針對結論性意見第15點之建議於國家人權機構內設監督兒童權利的專

責單位；或是成立兒童監察使辦公室；或是設置兒童權利委員則並未見於報告中。

國家報告27-31點在內容上僅著重於申訴機制的增設，然而28-30點對於教保、

校園或安置兒少的申訴機制僅為現有行政體制的流程與內容，人權委員會仍是被

動接受陳情的，欠缺對於兒童權利受損的積極性或預防性的介入；兒童人權公約

在我國已於2014年國內法化，而國家人權委員並未針對兒童人權有組織權責之分

工及工作計畫，因此仍要呼籲政府應重視兒童權利監督機構的設置與功能的發揮。

三、結論與建議

據此本聯盟提出三點具體建議：

(一)盡速在國家層級設專責的監督兒童權利的專責單位；或是成立兒童監察使

辦公室；或是設置兒童權利委，對於兒童人權更應扮演促進者、保護者及

橋樑之角色，也能監督政府推出符合兒童最佳利益的決策和法規。監督兒

童權利的專責單位應有積極之職權，包含：

1.主動調查行政、立法及司法之程序與決策是否符合兒童最佳利益原則，並

提出政策、修法或立法之建議。

2.應有權進入所有公私立兒童福利機構、中途學校等，探訪受安置並了解兒

童實際狀況與需求。可參照長期照顧服務法第 46 條之機制，與民間團體合

5

 作，設立獨立第三方進入機構訪查機制，以監督及促進兒童服務及保護的

品質。

3.當有需要時可提請權責機關提供兒童適足的支持，包含有家庭或非營利組

織(NGO)的支持及對家庭提供相關之諮詢與諮商服務。

(二)提供兒童可觸及與使用不同的申訴管道，應讓所有兒少都能得知申訴管道，

並了解其為獨立公正的單位處理並具有法律效力，以及申訴程序的資訊，

並做到獨立審查與必要的保護措施。

(三)兒童權利監督機構每年應定期出版兒童人權報告書，並包含兒童表述之兒

童權利現況。

6

 1.3 數據蒐集（§19、§2）

結論性意見#20；一般性意見書#8、#13

~兒童福利聯盟、

~至善社會福利基金會~

一、現況分析

目前政府於CRC資訊網中雖有兒少統計專區，呈現各種類型的兒少統計數據，

但呈現方式、年份、年齡切分等皆未統一，無法看出目前國內兒少相關的現況趨

勢和完整樣態。主要的問題：

（一）數據蒐集與呈現待改善

目前在兒少統計專區的角色為協調各部會提供既有的兒少數據，因此，

兒少年齡分層、數據更新頻率與日期不定。此外，部分數據存取於Google

Drive的雲端資料夾，恐有可信度和資安之疑慮。名詞定義與數據分散在不

同網頁，使用不便，甚至可能誤用。

（二）統計指標常異動或資料不全

兒少保護統計因配合政策而逐年改變，無法進行年度比較和了解趨勢，

並且部分兒少服務分屬不同部會的業務範圍，導致統計指標分散各處，甚至

定義不同，無法反映真實情況。例如，安置兒少、性剝削、性侵害、霸凌、

他殺是否包含殺子自殺等數據皆有此狀況。

（三）兒少相關議題統計資料缺乏

原住民兒少相關統計發現仍極度缺乏或不完整。例如：查詢 105-108 年

度原住民族死因的統計資料，透過互動式指標查詢，雖可取得原住民嬰兒死

亡相關數據，惟相關數據於死亡統計的表格中 卻沒有呈現原住民族之分類，

導致兩邊資料無法驗證，也影響資料之正確性。

而如霸凌、父母離婚之兒少、體罰、兒少遭非法移轉等皆無相關通報機

制與統計數據。性騷擾或兒少勞動現況等統計資料是以在學生或勞保在保中

的兒少做為調查對象，沒有涵蓋未在學、中輟、或打工無法投保勞保的兒少，

導致趨勢或樣態有所偏誤。

另外，台灣兒童第一次使用數位產品的年齡逐年下降，學齡前兒童使用

網路的比例增加，但針對12歲以下兒童使用網路的特殊性，缺乏足夠資料，

使得兒少網路沉迷(成癮)的預防及處遇工作，缺乏依據實證資料制定的政策

或措施。

7

二、回應第二次國家報告(#23)

目前雖於CRC資訊網上有統一的兒少統計專區，確實更方便查詢兒少相關統

計數據，但誠如上述數據收集和呈現方式，仍有所缺漏。

三、結論與建議

（一）改善網頁呈現內容

針對較穩定、定義明確的統計指標，如：兒少人口結構，或是優先關注

的政策行動目標，可逐步優化統計數據呈現方式（如：互動、視覺化），以

呈現其整體狀況和趨勢。同時可參考第5號一般性意見，以兒童友善的方式

呈現；資料建議呈現要定期更新，並系統化呈現及提供操作性定義。

（二）加強指標資料之蒐集

應落實2017年結論性意見，增設中央數據蒐集單位，建立明確的指標與

定義（可參考國際上已通用的指標定義），再請相關部會蒐集數據。此外，

政府應依據法律，以兒少、原民等「身分別」蒐集數據。舉例而言，社會福

利服務報表增設族群統計欄位，並在衛福部統計處統計專區，比照性別統計

專區模式，建置原住民統計圖像與分析，以充實原住民兒少數據及增強可及

性。

在網路使用方面，以12歲以下兒少網路使用的調查，做為推估的依據；

目前在無相關實證下，第一線的工作者可能會缺乏及失去能夠即時判別和預

防的知能。

另針對保護性業務，亦應建構兒少保護統計資料庫，以了解國內兒少保

事件的樣態和年度趨勢變化，以作為規劃相關服務的基礎。

此外，考量政策變動會影響指標定義，政府應盡可能針對有缺漏的部分

進行回溯和補齊，以便年度比較和分析趨勢和樣態。

8

 第二章 一般性原則

2.1 禁止歧視原則（§2）

結論性意見#27、#28；第二次國家報告#48~#59

~至善社會福利基金會~

一、現況分析

原民兒少在生存與發展過程中仍受到嚴重歧視

根據和原民兒少工作的一線工作者的觀察，原住民兒少在校園內或在社區面

臨族群歧視經驗的比例仍是極高的，儘管制度面已有立法禁止，但缺乏對原民兒

少不歧視措施，包含可實際操作、甚或當兒少遭受歧視時的具體改善作法。至善

基金會在2019年曾經抽樣訪談12位在雙北求學的原民兒少，樣本男女比例各半，

4位高職生、2位高中生、6位國中生，訪談結果發現，這12名原民兒少100%都曾

經有過不同程度上遭受歧視的經驗，情形從被取笑騎山豬來上課或是皮膚太黑被

笑說不要關燈否則會看不到他，到以升級保障制度嘲諷原民學生不需要用功唸書

反正一定會升級等等皆有。這些被標籤化負面的經驗，導致原民兒少對自我族群

認同感降低，自然而然就會與母體文化的學習和認知產生斷層，較難產出民族認

同，甚至對自我產生懷疑進而缺乏自信，貶抑自我族群身份，讓原住民兒少更難

以在主流社會中建立起與族群文化的連結。

二、對國家報告之評論

兒童權利公約第2次國家報告第48點(p.9)提到：台灣2018年兒少生活狀況調

查報告指出，在少年樣本數中91.5%沒有感覺遭受歧視，有感覺遭受歧視僅8.5%

（遭受歧視情形以容貌或膚色2.9%、個人意見或主張2.9%占比較高）。這份報告

似乎隱喻歧視問題在台灣不嚴重，然可惜的是報告並沒有更進一步針對那8.5%有

感覺遭受歧視的兒少進行族群身分分析，至今也未見國家有對任何一個原住民族

受歧視的經驗調查數據資料，但從實務經驗卻真實發現，台灣原住民族兒少自陳

有受到歧視的經驗不少。

國際審查委員在第一次結論性意見第27、28條中就已點出擔憂僅有不受歧視

的相關法律規範，缺乏具體落實不受歧視權利之政策和行動方案，將讓不歧視原

則淪為口號。可惜，在第二次國家報告中48-59點(p.9~p.10)中僅見提出與多元

性別議題執行阻力相關之不歧視因應措施說明，針對少數族群兒少，仍不見等同

9

具體去除偏見與刻板化印象之行動方案，還停留於教育權及文化權的特別保護相

關措施論述。

三、結論與建議

(一)體制層面：雖已有法規禁止歧視，但多為宣示性意義，缺乏相關作業辦法

落實反歧視行為。除文化部有推廣文化平權補助作業要點外，建議其他相

關部會，如教育部、衛福部和原民會，於既有法令外再延伸發展出相關作

業辦法以促進落實反歧視措施。

(二)社會及成人教育：「不歧視」易流於口號，建議衛生福利部社會及家庭署

製作之「兒少反歧視案例彙編」加強宣傳導正社會大眾觀念，並進一步發

展反歧視行動方案，製作懶人包，運用網路、廣播、報章刊物等方式向社

會大眾宣導多元族群之觀念，消彌歧視。

(三)學校教育：在校園普及情感教育(情感教育係指廣義的人際互動時的態度、

情緒和信念等，包含親情、友情與愛情)並全面推動多元族群的認識，除

了鼓勵並支持學生組成及參加原民社團外，從小學到中學，每學期也應投

入固定時數情感教育，並對成效加以追蹤評估，強化人際互動時應具有尊

重接納的態度、情緒、情感以及信念，並透過認識多元族群之歷史、文化

與議題設計課程活動，來促進彼此理解，去除刻板印象、化解偏見以消彌

歧視。

(四)師培體系：反歧視行動方案應擴及教育工作者。建議師培系統加入族群主

流化及多元族群觀點培養之相關必修學分課程，培養教育工作者具備多元

文化素養，同時也研發族群主流化教案，將「不歧視」納入教育部教師在

職進修教育研習課程中，要求全國教師進行研討，一方面培養師生互動時

所應具有的正確態度、情緒、情感以及信念，並透過反歧視案例研討，也

同時教導教師如何處理校園中歧視議題，以降低兒少校園歧視情事之發生。

10

 2.2 避免未成年少女非預期懷孕（§2、§6、§18、§28）

結論性意見#65~#67；第二次國家報告#226~#229

~台灣性教育學會~

一、現況分析

（一）未成年少女非預期懷孕情況嚴重

依內政部統計1，臺灣近10年15歲至19歲的未成年產母每年約3,000名，

長期均無法「有效」下降。未成年少女生育率於六都（如台北市僅有千分之

一）和偏鄉（如花蓮有千分之十一）的統計數據落差，更可窺見其中隱含的

城鄉差距以及預防與醫療資源分布不均問題，監察院並於2017年對此發布新

聞稿糾正衛福部及教育部2。根據勵馨基金會統計3 ，2019年服務開案的590位

懷孕求助個案中，將近五成（48.1%）求助的懷孕個案是未滿十八歲的未成

年青少女，另外有一成（11.7%）求助個案為非預期重複懷孕者。

（二）中小學性教育亟待加強

依教育部2014年調查發現4，我國高中職學生性知識這幾年並未有顯著提

升（總得分率69％）。在有性交經驗的學生中，13%曾懷孕或導致伴侶懷孕，

每次均戴保險套者只有26%。高中生評量學校教導有關「懷孕、避孕」主題，

只有約三成認為教得詳細，卻有14%表示學校沒有教或教得簡略。然而，研

究也發現，當教學愈詳細、教師教學技巧愈好、學生學習滿意度愈高，則性

知識愈正確，性態度愈正向。另依兒福聯盟2016年調查5，高達26％的家庭從

未和孩子討論過性知識，更有高達67.6％及56.3％家庭從未和孩子討論性行

為、感情議題；29.6％孩子曾碰到學校老師刻意避開敏感內容，並隨年級提

升而增加。

二、對國家報告之評論（#226 至#229）：

(一)第二次國家報告第 226 點（a）提到「並設有課審會學生代表委員，蒐集兒

少意見」，本聯盟主張對兒少性教育應有持續性、全面性之調查研究以蒐

集並了解兒少意見，而非僅依賴少數兒少代表提供意見。

(二)第二次國家報告第第 226 點（b）提到「《108 課綱》明定學校課程設計應

適切融入「性別平等教育」等議題，包含生理性別、性傾向、性別特質與

對性別認同多樣性的尊重，得因地區特性、學生特質與需求，選擇或編輯

合適教材」，228 點（a）提到「出版性別意識成長數位學習手冊及學習光

11

 碟，提供家長自學及親職教育活動使用」，本聯盟以為教導尊重不同性別、

性傾向、性別認同之議題融入，固然有助於性侵害、性騷擾、性霸凌之防

治，卻不足以取代教導學生性健康與生育保健之教育內涵，中小學性教育

實際上已包含於健康與體育領域之健康教育課程內容之中，主管機關卻放

任多數中小學由未具備健康教育專長之教師進行授課，應優先補足專業師

資、提高專長授課比率，強化學校性教育之教學，方為根本之道。

(三)第二次國家報告第 228 點（b）（c）提到「建置『健康九九－青少年好漾

館』網站，透過衛教文章提供正確性健康衛教資源。」「辦理家長及少年

諮詢專線，提供各式性議題的諮詢服務」。然而教育部委託之「性教育諮

詢專線」以及衛福部建置「性福 e 學園」網站，多年來已累積大量性教育

相關資源，並透過專家群詳實解答兒少、教師、家長相關疑問，同時，也

已經在學校中廣被接受並建立起使用習慣，卻均在近期停止運作。應恢復

相關網站運作，並提供兒少、家長、教師專業並顧及隱私的諮詢管道，現

有諮詢專線推廣、量能均不足，應予加強。

三、結論與建議

本聯盟主張：防範未然，恢復並落實性健康及生育保健教育（性教育），並

與時俱進才是根本之道，具體建議如下：

(一)教師專長授課：「性教育」是現行中小學課程綱要健康與體育領域中「健

康教育」中的一部份，然而國民中學健康教育因聘任教師人數不足，由其

他科目教師非專長授課情況非常普遍，應訂定具體指標逐年補足合格師資

以落實性教育專長授課。國小教師於師資培育課程亦應增加「性教育」相

關課程內容。

(二)教師增能：學校教師常感缺乏性教育教學專業，對現今學生與教學方法缺

乏掌握。應辦相關培訓、競賽，提升教師性教育教學知能（現有研習場次

不足）。

(三)完善輔導系統：強化學校輔導/導師/校護系統，成為孩子性困擾之陪伴者、

協助者與守門員。

(四)家長增能：落實親職教育，加強親子溝通技巧與性教育知能，開辦相關小

團體或諮詢平台。

(五)專業諮詢：恢復性教育相關資源網站與諮詢專線，並提供學生、教師、家

長性教育專業諮詢服務，包括以電話、信箱或網站 Q＆A 方式進行協助。

12

 (六)教材研發與師資培訓：持續研發性教育教材、培訓性教育師資。

_______________

1

內政部（2021）。「育齡婦女年齡別生育率」(15-19 歲)，行政院性別平等會網站。

2

監察院新聞稿（2017）。未成年少女懷孕事件頻傳監察院促衛福部、教育部檢討改進。監察

院網站。

3

鄭郁蓁（2020）。勵馨：國內求助個案的懷孕女性超過 7 成未滿 18 歲。2020 年 10 月 15 日，

中時新聞網。

4

鄭其嘉、馮嘉玉（2014）。我國高中職學生性知識、性態度、性行為與學校性教育成效研

究，教育部委託調查研究。

5

兒福聯盟（2016）。台灣兒童性教育知識調查報告，兒福聯盟網站。

https://www.children.org.tw/publication_research/research_report/2202

13

 2.3 兒少表意權─中央兒少代表團（§12、§13）

一般性意見#12；結論性意見#31、#32

~兒童福利聯盟~

一、現況分析

國家於2020年度正式成立中央兒少代表團，由各縣市政府遴選三位兒少代表，

每年度表定將有66名兒少代表，分成三組分別參與院兒權、部兒權、部事故傷害

小組，並公開招募合適的非營利組織擔任培力單位，2020~2022年皆由兒福聯盟

負責。

（一）依循成人模式的兒少表意仍感不足

而在現有制度下，兒少代表的表意機會仍有限，且兒少參與難度高，一

方面乃因部分縣市尚未建立公平公開的遴選機制，另一部分則是擔任兒少代

表後，僅少數人能擔任正式委員出席會議並提案，甚至在部事故傷害小組中，

兒少僅能列席參與、無法提案。

此外，議事規則仍以成人委員為主體，兒少須適應成人會議較為艱澀的

議事規則和用詞，方能順利參與和提案，導致參與困難。2020年試辦的首屆

兒少代表於期末問卷調查指出，任期內感到困難的前三件事為：短時間要提

出提案（56.7%）、時間與課業考試衝突（50.0%）、提案格式用語不熟悉

（30.0%）。值得留意的是本問卷施測乃為這些兒少代表即將卸任之時，兒

少皆已參加各式培力課程與會議，但仍有3成兒少對提案格式用語不熟悉，

顯示兒少需適應成人會議方式實屬不易。

而若兒少代表居住在偏遠的地區，或因學校行程繁忙、大考時間逼近、

師長不贊成其參與表意活動等原因，益加深兒少代表落實表意權之困難。

二、回應第二次國家報告（#73）

國家報告針對各個面向都有清楚說明目前促使兒少代表參與定期協商和決策

機制，是好的開始，但在實務操作上仍有許多可改進之處，包括兒少代表可能面

臨開會之交通、日期和學校阻攔等問題，如何減少參與障礙值得進一步規劃。

三、結論與建議

（一）建立兒少友善的參與形式

14

 1.建議可參酌其他國家辦理以兒少為主體的兒童議會，或是額外辦理兒少代

表可以暢所欲言的專屬會議場次，以避免讓兒少為了配合成人的遊戲規則，

卻喪失落實表意權的初衷；並於培力中廣納兒少代表之意見，制定適合兒

少使用和表達意見之議事規則和提案格式。

2.政府考量使會議和聚會形式的多元化，考量兒少交通障礙，增加兒少可聚

會地點，或提供線上會議的可能。

3.中央會議之時程安排，建議考量兒少代表之國家考試時程，進行適當調整，

促進兒少代表之參與。

（二）學校的支持至為重要

教育部應向各級機關學校宣導兒少參與之重要性，以期學校針對兒少代

表表意權利之行使給予支持和協助，成為兒少表意的助力而非阻力。

15

 第三章 保護兒童免受暴力侵害

3.1 兒童保護情形─對兒童的暴力行為（§3、§6、§19）

結論性意見#56、#57；第二次國家報告#113~#114、#127~#133

~兒童福利聯盟~

一、現況分析

（一）兒童被體罰情形普遍，法規未完全保障兒童免遭體罰

兒福聯盟2018年隨機抽樣台灣五到八年級學生的調查1顯示，學生回顧自

己被體罰的歷史：有63.0%曾在家中、23.6%曾在補習班或課後照顧班中、

21.1%曾在學校課堂中、11.6%曾在幼兒園中被體罰，表示兒童在生活的各種

場域中被體罰情形是普遍現象。

CRC的精神是保障兒童免受一切形式暴力，首次國家報告結論性意見56、

57點亦建議在法律層面禁止家內體罰，落實CRC第8號一般性意見。然而，目

前我國《民法》允許家長對子女「在必要範圍內(within the limit of

necessity)」施行懲戒(punishment)，但並未明文將對兒童之體罰排除在必

要的懲戒範圍之外。此外，《兒少權法》第49條禁止任何人對兒少身心虐待

等嚴重不當對待，但該法規主要是禁止「嚴重的」身心虐待，並未包含一般

性的體罰。因此我國目前在許多和兒童相關的場域中，並未有禁止體罰的法

規來保障兒童權益，包括：居家式托育、托嬰中心、安置機構、矯正機關、

課後照顧班與補習班…等。

近年在托嬰中心、補習班就發生多起嚴重的體罰案件(例如：托嬰中心

的保母因照顧的幼童不睡午覺，用身體壓制、打頭的方式強迫其午睡2；柔道

教練因被男童言語頂撞，而將其反覆拋摔，最後導致其死亡 3)，而法規並未

禁止在托嬰中心和補習班施行體罰。即使學校和幼兒園有禁止體罰的規定，

但校園體罰的事件仍經常見諸於媒體4，顯示禁止體罰的法規並未被落實。

1

兒福聯盟(2018)。2018 年台灣兒少被家長體罰情形及相關因素調查。

https://www.children.org.tw/publication_research/research_report/2235

2

Caregiver caught on camera suffocating baby in Taipei nursery

https://www.taiwannews.com.tw/en/news/3671632

3

A 7-year-old judo student was slammed to the ground 27 times. He died months later

https://www.washingtonpost.com/nation/2021/07/01/taiwan-boy-died-slammed-judo-coach/

4

Schools defying corporal punishment ban: survey

https://www.taipeitimes.com/News/taiwan/archives/2019/10/06/2003723470

16

 （二）兒保次級預防制度劇烈轉型，預防功能被削弱

近 年 政 府 逐 漸 將 原 本 唯 一 的 全 國 性 兒 童 保 護 次 級 預 防 (secondary

prevention)方案「高風險家庭服務方案(high risk family services最後要

對照國家報告翻譯)」轉型為社會安全網計畫(social safety net最後要對照

國家報告翻譯)下的脆弱家庭方案(vulnerable family services最後要對照

國家報告翻譯，又稱為家庭增能或家庭支持方案)，將原本方案拆分為二：

原方案風險度高的個案納入兒保三級預防(tertiary prevention)的家防中心

服務，風險度低的個案改由政府的社區福利中心提供「脆弱家庭服務」。這

個轉型將方案從民間社工負責個案管理(case management)、服務目標單為預

防兒虐、專責提供有兒虐風險的家庭支持性服務，改變成：由政府社工負責

個案管理、服務對象擴大到身心障礙、老人、婦女等，不再是專做兒虐預防

服務，整體來說反而削弱了對兒少家庭的關注和投入，弱化、稀釋原本的兒

保次級預防服務功能。且在劇烈的制度轉型下，監察院5的報告就指出：現在

社安網計畫下的兒保次級預防方案轉型，有銜接社工人力和服務沒到位，無

法應付案量、轉型過程倉促結案，造成很高的再被通報率…等問題，顯示制

度改變後次級預防的效果不彰、不進反退。

二、對國家報告之評論(#113~#114、#127~#133)

（一）關於國家報告對禁止家內體罰回應的評論(#127)

國家報告於第127(b)點表示我國無刪除《民法》家長懲戒權之必要性，

其後卻沒有提出其他在法律層面對禁止家庭內體罰的積極回應，政府等於未

正面回應首次報告結論性意見第56、57點禁止家內體罰之建議。實際上，禁

止家內體罰，不等同刪除民法家長懲戒權。以與我國國情相近的日本為例，

其2019年修法禁止家內體罰的方式，並非刪除民法家長懲戒權，而是修改

《兒童虐待防止法》，明確地說明體罰已逾越《民法》賦與家長監護和教育

權利的「必要範圍」。政府可參酌其經驗，對禁止家內體罰有更積極之作為。

（二）關於國家報告其他禁止體罰作法的評論(#129~#133)

國家報告第129-131點提及校園禁止體罰之作為，附件5-25列舉歷年均

有97%以上的國小、國中學生從未被體罰，此結果和前述兒福聯盟2018年調

5

監察院調查報告-110 社調 0019。 https://www.cy.gov.tw/News_Content.aspx?n=125&s=21978

17

 查五到八年級學生21.1%曾在學校被體罰、人本教育基金會2019年調查6國中

生68.6%曾在校園中看過或受過體罰的結果有很大的落差。教育部門提供的

體罰數據可能受調查方式和問法影響，低估了校園體罰的實際情形。

從國家報告第127~133點也可看出我國禁止體罰法規之不足，僅在學校

和幼兒園禁止體罰，矯正機關禁止體罰的法規尚在研擬中，而在家庭中、居

家托育、托嬰中心、補習班、安置機構等場域則未有禁止體罰的相關規定。

（三）關於高風險家庭方案轉型的評論(#113~#114)

國家報告113~114點，提及全國性兒童保護次級預防方案「高風險家庭

服務方案」的轉型。此為我國兒保政策的重大變革，然於國家報告中，對該

方案拆分為兒保和脆弱家庭服務兩部分後，目前尚未有服務成效的成果報告

或研究公布。甚至，過去高風險家庭方案的案量、開案率、開案原因等資料，

每半年會在社家署網站上公布，而自從2018年服務轉型後，政府從未公布兒

保系統中高風險家庭服務，及脆弱家庭方案中的服務數據，僅於本次國家報

告附件5~13首次看到極為簡化的服務數據，也難以對轉型前後的方案進行比

較。服務情形的不透明，徒增我們對服務品質和執行情形的憂慮。

三、結論與建議

（一）立法並落實禁止在一切場域對兒童體罰

政府應盡速推動在一切場域禁止對兒童體罰之立法或修法，包含家庭中、

居家式托育、托嬰中心、安置機構、矯正機關、課後照顧班與補習班…等，

以在法制層面全面提供兒童免受暴力對待之保障。對於已有法律禁止體罰的

學校和幼兒園，則要透過提升教師、幼保人員的教育訓練、督導、對校園體

罰情形的研究、調查、懲處等作為，來落實法規的執行。

（二）需要專屬的兒童保護次級預防方案及透明的方案評估

兒保政策的重大調整後，因方案分拆、服務對象擴大、個管員不再專責

提供兒童及家庭支持服務等因素，兒保次級預防的功能被弱化。代替的脆弱

家庭方案執行已兩年多，政府迄今未公布方案成效評估，也未如過去執行高

風險方案時，定期公布服務執行數據，令人擔憂政策的劇烈轉變、數據的不

透明，恐損害兒童權益。我們建議政府應恢復設立專屬的兒童保護次級預防

方案和個管服務人力、確實進行方案評估，並定期公布服務相關數據。

6

人本 2019 年校園問卷調查報告。 https://hef.org.tw/20191003news/

18

 3.2 目睹家庭暴力兒少(§12、§19)

結論性意見#39、#53；第二次國家報告#111、#115、#116

~天主教善牧社會福利基金會、

~台北市婦女救援基金會~

一、現況分析

台灣於2015年修訂家庭暴力防治法，將目睹家暴兒少納入保護範圍，制定相

關保護、徵詢其意見等規範，此舉對於提升目睹兒少的保障理應有所助益，然而

目睹兒少仍面臨以下的權利侵害：

（一）目睹兒少服務附屬成人保護系統，安全風險和心理創傷易被忽略

現行目睹兒少通報主要透過家庭暴力成人被害人服務，目睹兒少除非同

時併有肢體受虐之風險，需通報兒童保護調查，其餘則由成人保護社工進行

受案評估。目睹兒少現況多由成人家長自行表述子女目睹暴力情事，僅6歲

前之幼童需進行訪視，並非全面性經由社工進行訪視評估，確認其安全風險、

心理創傷和服務需求。

（二）目睹兒少未能依據適切評估指標，導引至符合其需求之服務資源。

依據民間團體收集資料推估，每年約有1萬多件目睹兒少通報在案，其

中約有5成轉介至教育單位，2成轉介至社福單位，其餘3成則併同成人保護

服務追蹤關懷。觀察面對大量的成人被害人與目睹兒少通報案量，受案評估

主要以兒少在學指標轉知教育單位，對於需通報兒少保護或轉介社福單位的

案件，例如家內高衝突、多次通報，缺乏必要或是重要參考指標，因而未能

經由適切評估，後續銜接至符合其需求之處遇服務資源。

（三）司法審理較重親權之裁量，兒少意見不易納入參酌

民間團體服務統計約有3成目睹兒少會涉入司法案件，現行司法程序雖

設有兒少表達意見管道，徵詢形式仍以口語表達為主，若兒少受限於年齡、

發展能力或是特殊身心狀況，難以表達真實感受，則意見易被忽略。另外，

當前家事法庭以家庭和諧、合作父母為導向的氛圍，法院審理較重家長親權

之裁量，司法人員可能在審理程序中未能敏感覺察家庭暴力的特殊性、目睹

暴力的心理創傷和人身安全，兒少的「最佳利益」和「表意權」等權益則難

以獲得保障。

（四）探視會面之司法保護措施需由成人提出申請，且現行服務使用率低

19

 成人之間的高衝突經常透過兒少探視會面為角力戰場，探視會面應經評

估並提供必須之保護措施，如監督會面，然而此項措施主要透過成人主動申

請，依據司法院服務統計數據，自2015年至2019年，保護令每年平均核發與

未成年子女會面之方式或禁止會面交往僅106.6件1，推估保障目睹兒少探視

會面安全之監督會面服務使用率仍偏低。自行協議探視會面的家長，仍常於

交付會面產生衝突，進而使兒少又陷入目睹暴力的危機或是忠誠兩難的心理

困境。

二、對國家報告的評論(#111、#115、#116)

第二次國家報告於第111點次附件5-10《社安網計畫》兒少保護整體概念圖

示，以及115點次，呈現政府設置目睹兒少的服務，然而該項服務並無相關統計

數據和執行處遇說明，難以評估和檢視目睹兒少及其家庭是否依其需求銜接適當

資源，獲取協助。首次國家報告第83點中曾提出家事事件中維護兒少表意權的措

施，其中有不公開法庭、家事調查官、程序監理人等設置；此次國家報告第116

項次呈現陪同出庭服務之使用數據，然而上述司法措施均未有施行概況與績效說

明，難以了解與評估各項措施的使用情形是否保障目睹兒少之司法權益。

三、結論及建議

(一)家暴保護人員應增進目睹兒少專業知能課程訓練，了解目睹暴力對兒少的

影響，落實安全和需求評估，連結適當資源和服務。

(二)家暴保護系統應重視目睹暴力對兒少的傷害，建立兒童保護系統的相互合

作機制。

(三)司法人員應進行目睹家暴兒少專業知能課程訓練，裁定與家庭暴力相關的

兒少親權案件時，應提升對暴力對兒少造成身心傷害的敏感度。

(四)法院親權事件的司法程序應以兒少為主體，推動友善法庭，徵詢兒少的意

見，接納多元的表達方式，重視兒少表意權和最佳利益。

(五)法院應就目睹兒少的創傷與安全性，評估和提升監督會面的適用性，並參

酌兒少的意願，提供家長親職協助方案，周全服務。

_______________________

1

司法院統計處編制地方法院核發民事保護令內容。資料來源

https://www.judicial.gov.tw/tw/lp-1268-1.html

20

 3.3 受性剝削兒少

第二次國家報告未有相對應點

~台灣展翅協會~

一、現況分析

（一）兒童性販運定義狹隘

根據衛生福利部統計資料，2017至2020年，遭受性剝削的外籍被害兒少

人數總計22人，均為女性，在疫情發生前有逐年增加的趨勢。受害情形包括

被利用為對價之性交、猥褻，坐檯陪酒等，然而現行《人口販運防制法》對

性販運之認定僅限於「有對價之性交、猥褻」，顯然不符人口販運的現況以

及未考慮到線上性剝削的犯罪樣態。

（二）缺少完整網路誘拐法

ECPAT Taiwan服務的性剝削被害兒少中，約有四成為網路誘拐的被害人，

兒少被誘拐傳送性私密影像、或被性侵、被性販運等。然而台灣仍未有防制

網路誘拐的完整法律，也因此缺乏相關數據統計。

（三）未有兒少性剝削犯罪專責調查單位

根據衛生福利部2017年至2020年公佈的兒少性剝削案件統計，平均約有

七成的案件是透過網路發生。目前我國並沒有調查網路兒少性剝削及性誘拐

案件的專責單位，無法累積相關案件調查的經驗、知能與技巧，更完全無法

回應日益增加的網路性剝削及性誘拐案件，也容易使得兒少性剝削犯罪案件

之查緝被邊緣化。

（四）輕忽兒少自製性影像問題之嚴重性

根據衛生福利部統計資料，兒少被誘拐拍攝性私密影像、或兒少性私密

影像遭散布販賣或遭性勒索（Sexual extortion）等通報案件，在2019年及

2020年，已分別達到整體兒少性剝削案件之59%及78%。儘管兒少自製性影像

的問題已清楚可見，目前各縣市政府，無論是對專業人員的培訓或是對家長

及兒少的教育宣導仍不夠普及。

二、對國家報告之評論

雖然《兒少性剝削條例》已於2015年修正，擴大受保護兒少範圍，但被利用

坐檯陪酒或涉及色情之伴遊、伴唱、伴舞等行為之受害兒少，依照現行《人口販

運防制法》卻不被認定為性販運受害者。

21

 此外，第二次國家報告中也未見到關於越來越多的數位/網路兒少性剝削案

件，相關政府部門包括教育部、法務部、內政部等有相關積極預防或查緝之作為。

上述皆顯示我國在制訂保護兒童免於性剝削的相關政策上不夠積極，放任兒童暴

露於高風險環境之中。

三、結論與建議

(一)《人口販運防制法》應比照《兒童及少年性剝削防制條例》第 2 條之定義，

以「性剝削」取代「從事性交易」，以涵蓋各類型的性販運樣態，才能有

效保護兒少免於性販運。

(二)網路誘拐應被視為一個獨立的罪行，我國應當制定相關法律，並且授權執

法人員於性誘拐發生當下即時介入，以有效保護兒少免於性剝削。

(三)政府應建立兒少性剝削犯罪專責調查單位，並有專門的人力與預算，執行

調查、預防等工作，以及與相關網絡成員共同協調合作以保護兒少免於性

剝削及性誘拐。

(四)政府應當正視兒少自製性影像衍生的性勒索、私密影像散布等嚴重的性剝

削問題，普及老師、社工及其他從事兒少工作專業人員的網路性剝削知能

的培訓，同時提升家長、兒少及教育人員的數位素養。

22

 3.4 對兒童的暴力行為─霸凌（§2、§3、§6、§12、§13、§29）

結論性意見#54、#55；第二次國家報告#15、#134~#137

~兒童福利聯盟~

一、現況分析

近幾年在積極宣導下，校園霸凌通報案件數有持續增加，加上校園霸凌防制

準則新制上路，讓現行霸凌案件與處理方式產生一些改變。

（一）校園霸凌現況不明

台灣校園霸凌現況目前僅有教育部的通報數據，以2020年為例一整年確

認是校園霸凌案件僅224件17，顯然存在一定黑數。事實上教育部每年會做兩

次「校園生活問卷」調查校園霸凌狀況，卻未公布數據，台灣校園霸凌現況

不明。

（二）《校園霸凌防制準則》新增「教師霸凌」

根據《校園霸凌防制準則》第3條第5點「指相同或不同學校校長及教師、

職員、工友、學生（以下簡稱教職員工生）對學生，於校園內、外所發生之

霸凌行為。」然教師對學生原本就是權力不對等之關係，與國際認定「霸凌」

顯然不符。

（三）網路霸凌事件增加，但仍缺乏全面性網路霸凌預防與輔導機制

據兒盟2020年調查28國高中生近半數（47.0%）曾涉入網路霸凌事件，遠

高於2016年的22.2%，令人擔憂。其中近三成表示曾網路霸凌別人（28.9%），

另外曾被網路霸凌則有36.3％。另據臺大兒家中心調查39亦顯示兒少在國小

六年級(2016年)、國中二年級(2018年)時有遭受過同儕網路霸凌經驗盛行率

分別為10.2%、16.5%，自陳有施加網路霸凌經驗的則分別為5.8%、13.3%，

顯示隨著兒少年齡增長與近年網路普及化，經歷網路霸凌的比例越高。

在輔導與處理方面，現行網路霸凌主要由iWIN網路內容防護機構協助下

17

CRC 第 2 次國家報告條約專要文件附表 5-28(第 135 點)各學制校園霸凌通報及確認件數統計。

(P.87)

28

兒盟以實體問卷進行，採用分層多階層叢集抽樣方式，依照台灣本島各縣市 13~17 歲之人口比

例抽出相對應樣本數進行調查，總計在 30 所學校共發出 1,702 份問卷，並篩選出 1,589 份有

效學生樣本，回收率為 93.4%，在 95%的信心水準下，誤差不超過正負 2.46 個百分點。

93

臺大兒家中心自 2014 年起持續 10 年共五波，針對全台分層隨機抽樣 6,290 位兒少進行長期追

蹤調查。

23

 架處理，然多數網路霸凌是發生在熟識的同學間，僅下架卻未處理學生衝突，

治標不治本。加上台灣網路匿名爆料文化興盛，若無明確證據顯示網路霸凌

者的身分，學校亦不易介入輔導，學生求助無門。

二、對國家報告之評論(#16、#158)

國 家 報 告 著 重 2020 年 修 正 之 《 校 園 霸 凌 防 制 準 則 》 內 容 (#15) ， 然 報 告

(#134-137)本身對於上次結論性意見(第54點)著墨不多。且準則新增師對生霸凌，

不僅與國際定義不同，處理策略亦不適合；此外，亦未回應2017年結論性意見中

關於校園生活問卷調查霸凌，施測方式的問題。

三、結論與建議

（一）參考兒少建議調整霸凌調查方式

政府應採納2017年結論性意見，正視兒少填寫校園生活問卷之經驗，調

整調查方式，並公布調查數據，以此強化霸凌處理與輔導機制。

（二）修正校園霸凌防制準則「師對生」霸凌相關規定

校園霸凌防制準則納入「師對生」霸凌，然此類型與國際霸凌定義不同，

且排擠學校行政資源，加上師生原就存在權力不對等關係，放進校園霸凌防

制準則顯然不妥，建議應修法將師對生霸凌回歸「不適任教師」處理機制。

（三）著重網路霸凌的預防與輔導

端賴iWIN網路內容防護機構處理並不足夠，應加強校園端著手加強師長

處理能力，包含：加害者與被害者之輔導，並提升學生網路素養，以預防網

路霸凌發生；另可參考日本修法規劃，簡化被害者向網路平台申請誹謗留言

者資料的程序，以利學校進行調查及輔導。

（四）檢視現行處理機制的輔導學生狀況

現行處理機制著重通報與調查，結論性意見第54(4)點提及涉入霸凌案

件學生後續的輔導與修復卻未見成效報告。建議應檢視各校處理、調查霸凌

案件現況，包括:調查過程是否採用輔導觀點，事後是否有落實相關學生輔

導與修復，以及輔導成效。

24

 3.5 兒童救助熱線

第二次國家報告#70

~台灣世界展望會~

一、現況分析

現行在兒少保護服務中，多數為被動式及非自願性、或雖有服務意願，但仍

需取得監護人之同意，或許可能阻礙兒少即時接受專業或緊急服務，而為維護兒

少表意權及受保護權，使兒少了解求助管道，並培養有主動求助的意願與行為的

能力是重要的，故此，首要須了解兒少面對危機事件或解決問題的因應方式之求

助行為樣貌，然而目前臺灣由政府開辦且服務內容包含兒童救助範疇之諮詢專線，

未公開服務數據，無法了解兒少主動求助比例、求助內容、難以評估此求助管道

對兒少是否具有即時性、可及性及適切性。

目前臺灣由政府開辦且服務內容包含兒童救助範疇之專線為：(1)113保護專

線，針對全臺灣兒少保護、家庭暴力、性侵害、性騷擾等保護性議題進行諮詢、

通報與緊急救援服務；(2)1925安心專線，提供民眾24小時全年無休的電話心理

諮詢服務；(3)0800-200-885校園反霸凌專線。而在首次國家報告結論性意見第

20條及第63條，委員建議應建置國家層級的數據資料庫及監測專線服務與通報機

制的實效性，故本聯盟建議中央政府可公開提供根據性質、年齡、性別、城鄉分

布、身分和性傾向等項目分類，以確保兒少救助需求與數據之完整，並建議政府

監測和評估所提供給兒少服務的實效性，包括透過專線尋求協助兒少轉介率及成

效。

二、回應第二次國家報告(#70)

國家報告中說明已針對全國自殺防治中心研析近10年兒少自殺死亡趨勢，兒

少各學齡層變項進行分析，持續推動跨部會資料庫串連以評估相關因素。

而除自殺防治外，報告中未對於113保護專線、校園霸凌、網路霸凌之兒少

主動求助說明與分析，兒少主動求助政府專線之統計數據未公開釋出，故無法得

知兒少主動求助之相關數據資訊，難以了解臺灣兒少救助專線樣貌及兒少求助之

困境，進而難以評估監測所提供給兒少服務的實效性。

三、結論與建議

(一)建議政府於 CRC 數據平台可提供 113 專線、1925 安心專線及 0800-200-885

25

 校園反霸凌專線之兒少自行求助之系統化統計數據，含性別、年齡、縣市

分布、族群、求助類別等，以了解兒少求助樣態，並進一步檢視監督機制

和通報程序。

(二)基於讓兒少的近便性及安全感，以及站在兒少觀點之下，建議政府評估現

今社會大眾、兒少在通訊網路的使用習性，亦建議可增加網路求助報案方

式，以維護兒少權利之受保護權。

26

 第四章 家庭環境與替代性照顧

4.1 家庭環境與替代性照顧─離婚（§9）

結論性意見#39；第二次國家報告#149~#150

~兒童福利聯盟~

一、現況分析

依據官方統計資料，2020年約有51,000多對的離婚伴侶，另也有56,045位兒

少因為父母離婚而面對監護權改定的狀況，由此可見諸多兒少確實深受父母離婚

事件所影響，如何保證兒少的最佳利益確實為不可迴避之重要議題。

（一）現行離婚法規未保障「兒少不與父母分離」之權利

依照民法、兒少權法、家事法等相關規定，父母無須在離婚之時議定未

成年子女的監護權和照顧計畫，導致兒少無法與非同住方保持良好的親子互

動。根據兒福聯盟2020年的調查110，離婚家庭的兒少中，有超過一半表示父

母關係交惡或根本不聯絡；而依據當年度的離婚諮詢服務統計，亦有55.34%

的來電者表達有親子會面上的問題，由此可見離婚家庭維繫親情實屬不易。

（二）離婚支持服務不足

2019年社家署開始將社區家事商談納入社會安全網，但當年度僅有13個

民間團體提供相關服務，而若更進一步盤點社區家事商談的專業團體，以

2018年為例僅有8個民間團體，總計63位的專業人力211，對照全台灣每年新

增近五萬多個離婚家庭，服務量明顯不足；2020年社家署開始正式實施推動

社區式家事商談服務實施計畫，1~6月共計提供327個家庭相關服務，實施成

效須持續關注。

（三）相關統計數據不足

缺少離婚家庭未成年子女的資訊，難以了解離婚家庭中的兒少現況與需

求。

二、回應第二次國家報告(#149~#150)

2020年開始辦理《推動社區式家事商談服務實施計畫》，由地方政府結合民

1

兒童福利聯盟（2021）。2021 年兒少面對父母離婚後的心情感受調查報告。

2

沈瓊桃(2019) 。離婚案件之未成年子女及其家長商談服務成效檢討計畫。 衛生福利部社會及家

庭署委託研究報告。https://www.sfaa.gov.tw/SFAA/Pages/Detail.aspx?nodeid=154&pid=9421

27

間團體運用商談或諮商方式，引導家長以子女利益為依歸，處理父母對子女親權

之行使或負擔爭議，共同合作負擔親職教養之角色與責任。2020年1月至6月計提

供327個家庭服務；但針對各縣市的執行狀況，以及服務項目之統計分析，目前

尚未看到詳細的服務統計和成效呈現。

三、結論與建議

（一）重新研商離婚制度，顧及兒少監護權與撫養事宜

應重新研議離婚制度，在兼顧婦女權益和兒少最佳利益的前提下，促使

離婚家庭在離異前妥善處理兒少之監護權和撫養事宜；同時加強法官、監調

社工等司法相關人員的訓練，亦增加程序監理人的運用，以落實判決離婚中

的兒少表意權（如探視、監護權等）。

（二）普及式社區型離婚商談與親子會面服務

透過兒少權法或相關政策之修訂，明定各縣市應提供未成年子女親權規

劃服務，於父母兩願離婚或有親權爭議時，依未成年子女最佳利益，審酌民

法之規定，協助父母規劃對於未成年子女權利義務之行使或負擔，其中應包

含選定未成年子女權利義務行使或負擔之人、履行扶養義務之內容及方法、

會面交往之方式及期間等事項；將雙親同意後，做成未成年子女照顧計畫，

並囑託該管戶政機關登記，使其有法律效力，以保障CRC中兒少不與父母分

離之權利。

（三）建立並公告未成年子女相關之離婚統計數據

為掌握國家未成年子女之離婚家庭之現況，應定期公布相關統計數，如：

上述家庭數、未成年子女年齡分布、監護權持有狀況、同住狀況、接受相關

服務之現況。

28

 4.2 非法移轉兒童或使其無法返國返家（§10、§11）

結論性意見#40、#41；第二次國家報告#176~#179

~兒童福利聯盟~

根據衛福部呈交第二次國家報告附件6-40的資料顯示，2016年至2019年共有

980 位兒少遭擅帶離家，其中22.04%已出境，另有7.25%無法確認其行蹤。因政府

政策無法防止非法移轉、民眾對遭非法移轉的兒少意識及通報誘因不足，以及外

交資源有限，容易讓協尋親屬孤立無援，難以真正協助遭非法移轉的兒少返家。

一、現況

（一）遭非法移轉的兒少人數不明，難以從統計了解真實情況

根據衛福部的統計，從2014年2月至2019年9月，兒童被親屬非法擅自帶

走，因而被通報失蹤的案件共1,419件。其中有8.52%兒童被帶到大陸及港澳

地區、11.35％被帶到越南、2.33%被帶到印尼、其他國家則有2.89%112。因遭

非法移轉的兒少之詳細資料或分析一直尚無相關公開資料，警政署網站之公

開統計查詢資料也不包括擅帶兒少是否被帶出境，僅能被動等待衛福部活動

辦理時數據公布，故難以以目前數據作更全面評估或相關制度規劃。

（二）民眾意識及通報誘因不足，難以落實通報機制

我國雖已參考《國際兒童拐帶公約》精神訂定《未成年子女遭父母（或

親屬）擅帶離家失蹤案件協尋作業流程》，然而國內民眾對親屬擅帶兒少離

家的觀念仍停留「私人家事」而非「失蹤事件」，加上非法移轉兒少的通報

非強制性、且通報誘因不足，警方容易在認知及動機不足情況下未對其案件

通報或開案偵辦，以致無法真正落實通報機制和掌握實際人數。警政署查詢

失蹤人口統計110年1~9月隨父母離家18歲以下319件，實際通報至失蹤中心

共113件。

（三）現行出境護照申請，無法防止非法移轉

依入出國及移民法第31條規定，外國籍配偶在離婚後，要取得子女的監

護權才有居留權，導致父母爭取孩子監護權的過程中，外國籍的一方擔心無

法取得監護權、無法留在臺灣，而先行將子女帶回母國。又依現行護照條例，

12 1

未成年子女遭父母/親屬擅帶離家失蹤座談會（108 年未成年子女遭父母/親屬擅帶離家失蹤座

談會中心介紹暨案例分享。主辦單位：衛生福利部社會及家庭署。承辦單位：兒童福利聯盟文

教基金會）。

29

 國內未成年子女可由父母單方申請護照，導致一方私下申請未成年子女之護

照，並擅帶離境。

（四）我國外交部提供資源有限，協尋親屬孤立無援

未成年子女遭擅自帶離至國外時，本國外交部皆需要民眾提供遭擅帶至

國外子女明確之地址，但此對於求助方有非常高的難度。且未成年子女遭擅

自帶離至國外時，國內沒有相關單位能協助親屬與國外的子女聯繫及安排會

面；台灣親屬到國外尋訪子女時，會擔心被擅帶方的親友攻擊，或遭遇到詐

騙而求助無門。

（五）尚未簽署《國際兒童拐帶公約》，司法互助管道未落實執行

目前我國雖與美國簽署「台美跨國父母擅帶兒童離家合作備忘錄」

(IPCA MOU)，以強化雙方就相關議題之溝通、協調及資訊分享，但其實我國

兒少遭非法移轉的國家主要為中國、香港或東南亞地區，但因政治原故目前

難以在協尋和訪視機制上能有突破發展。另外，我國雖已與越南簽訂「駐越

南臺北經濟文化辦事處與駐臺北越南經濟文化辦事處關於民事司法互助協

定」，但簽署後並沒有就兒少遭非法移轉的議題落實執行。即使台灣法院已

裁定監護權，該互助協定僅能協助調查查證，不能強制讓兒少回到國內，形

同虛設。

二、回應第二次國家報告(#176~179)

(一)177 點附件 6-40：根據衛福部呈交第二次國家報告附件的資料顯示，2016

年至 2020 年共有 803 個家庭的兒少遭擅帶離家，其中約 11.83%的兒少為

大陸及港澳地區之新住民家庭、15.94%為越南之新住民家庭、2.37%為印

尼之新住民家庭、其他國家則有 3.61% 。兒少被帶到大陸及港澳地區及越

南比例相對其他國家為高，但目前相關政策並未因應此兩個地區及族群作

更有效回應。同時，此資料一直未定期公告且公告地點不明，民間團體難

以監督政府作為。

(二)179 點：目前我國雖與美國簽署「台美跨國父母擅帶兒童離家合作備忘錄」

(IPCA MOU)，但其實從衛福部資料所見，我國兒少遭非法移轉的國家主要

為中國大陸及港澳地區及越南。中國大陸及港澳地區因政治原故目前難以

在協尋和訪視機制上能有突破發展；而越南方面，我國雖已與越南簽訂

「駐越南臺北經濟文化辦事處與駐臺北越南經濟文化辦事處關於民事司法

30

 互助協定」，但簽署後並沒有就兒少遭非法移轉的議題落實執行，未能真

實回應目前非法移轉兒少的主要族群問題。

三、結論與建議

（一）落實通報機制，定期公開相關數據

目前雖已訂定《未成年子女遭父母（或親屬）擅帶離家失蹤案件協尋作

業流程》非強制性，政府仍應要求遭親屬擅帶離家的失蹤案件（不分是否出

境）皆應通報，以利司法與社工提供專業處遇，確保兒少人身安全。另外，

遭非法移轉的兒少之詳細資料或分析應定期公告，以利民間社會監督政府，

以及有更清楚的數據作政策評估或相關制度規劃。

（二）修改「護照條例」

應取得擁有親權父母雙方之同意書，方能替未成年子女申請護照（可排

除家暴保護命令之對象），可參酌美國、加拿大和愛爾蘭等作法。

（三）加強國內司法與國際外交之協助

當國人至國外協尋子女時，建議司法部協助親權訴訟之調查，外交部駐

國外辦事處能提供翻譯、與當地公部門交涉、協尋訪視、交往會面等協助。

可參照「台美跨國父母擅帶兒童離家合作備忘錄」(IPCA MOU)，召開定期會

議促進雙方溝通，同時也應加強落實現有雙邊互助協議的功能及提供了解兩

國法律之專業人才居中協助，讓擅帶至國外之兒少能從此管道回到國內。

（四）施行《國際兒童拐帶公約》以利國際合作

建議台灣政府仍應積極簽署《國際兒童拐帶公約》，以利與他國之正式

合作。

31

 4.3 家庭環境與替代性照顧─收養（§20、§21、§8）

結論性意見#50；第二次國家報告#112~113，#207~#211

~兒童福利聯盟~

根據近五年台灣收出養統計，發現等待收養的兒少數是過去的1.3倍，然而

出養完成的兒少卻逐年遞減，其中過半兒少(51.7%)出養到國外，近七成為特殊

需求兒少。台灣正面臨少子化危機，政府應正視特殊需求兒童照顧問題，研擬支

持收養家庭之政策，減少終止收養及跨國境收養之風險，並協助提供收出養當事

人尋親服務。

一、現況分析

(一) 國內近親及繼親收養終止比率偏高

結論性意見第 50 條指出，國內近親及繼親收養終止比率偏高。根據國內研

究與統計，其終止收養原因主要為養父母離婚、收養原因消失、管教議

題、被收養人健康問題等，其中收養原因消失一項，包含為大人本身目的

而進行之名義收養，非兒少有其出養必要性者。

(二) 特殊需求兒童難以在國內被收養

政府雖挹注少量資源於媒體宣導，或微額補助收出養相關服務，然而並未

制訂全國性的政策或提供實質協助。實際上，特殊需求兒童難以在國內媒

合收養人，需長時間停留在安置體系內，甚至仍須出養至國外。

(三)收養後仍存在風險因子

依據統計，民國 101 年至 107 年國內無血緣關係終止收養案件中，以離

婚、收養原因消失、管教議題為 3 大主要因素，可知收養後仍存在導致終

止收養風險因子，恐導致兒少再次面臨失依的困境。

(四)跨國境收養保護政策不足

居住於我國之外籍人士欲申請收養時，收養程序須不違反其本國法律，否則

其母國將不會認可其收養。收養人若要為子女申請其母國公民身分，須依事

實收養及移民法為之，時間至少 18-24 個月，這段時間，收養人有權隨時帶

被收養人離開台灣，造成兒童國籍身分不明的風險，甚至可能形成人口販賣

32

 的破口。世界各國為保護跨國領養兒童多訂有相關政策，例如：僅允許人民

收養《海牙跨國收養公約締約國》之兒童，或出養本國兒童予其他締約國之

人民，藉以提高保護因子；台灣因政治情勢特殊，非前開公約之締約國，然

針對跨國境收養兒少之保護政策，仍有不足。

二、回應第二次國家報告(#112~113，#207~211)

(一)尋親服務:(#113)

尋親案因其複雜性，需要社政、外交、警政、戶政等跨部門合作，但自 2005 年

收出養資訊管理及使用辦法通過至今，未曾依法設立管理委員會且從未召開會

議；此外，2019 年尋親入兒少權法至今，相關部會並未有系統的建立起是類案件

的協助機制。中央政府雖有成立兒少收養資訊中心保存收出養資料，然當有販嬰

案受害者回國尋親時，因缺乏相關機制而難有進展。

(二)倡導特殊兒少國內收養、收養後服務:( #208、209)

CRC <第 14 號一般性意見書>中曾定義在收養情境中，決策者需盡可能讓兒童延

續其宗教、語言、文化，方符合被收養兒童的最佳利益。政府自 92 年讓國內優

先收養原則入法後，在後續政策上並無鼓勵國人收養措施。在第 2 次國家報告

中，政府自述透過媒合服務者辦理收養特殊需求兒童服務方案、落實/輔導媒合

服務者發展服務方案等，但媒合服務者都是民間組織，可見政府本身並無推動相

關政策。被收養童因早年逆境而有較高身心需求的風險，收養父母缺乏資源時容

易因身心耗竭而造成終止收養的發生。

三、結論與建議

(一) 檢視出養必要性評估並強化收養前準備教育

應加強社工與司法人員之專業訓練和跨專業共識，加強評估無血緣、繼

近親案件中之出養必要性，減少兒少非必要出養，避免當收養原因消失

時，兒少身分又限於不穩定狀態；另建議修法，收養人應接受親職準備

教育課程，提升收養準備度。

(二)提升特殊需求兒少於國內被收養機會

政府應積極研擬全國性政策，提供更多收養支持與保護措施，與收養家庭

共同照顧特殊兒童。建議具體研擬以下福利政策:提供被收養之特殊需求兒

33

 童醫療、福利(如比照福利身分兒童優先進入公托或公立幼兒園)、稅務優

惠或提供特殊收養津貼。

(三)強化收養家庭的支持資源

為避免收養兒少再度失依之風險，政府應多方強化收養後服務資源，提供

醫療、教育、心理諮商等針對收養家庭所需的支持性服務。我們進一步建

議，中央政府應針對被終止收養的兒少制定保護和追蹤政策。

(四)強化跨國境收養兒少保護政策及相關法制作業

為避免跨國境收養兒少面臨國籍不明、失依、轉收養或人口販賣等風險，建

議中央政府通盤檢討現行跨國境收養流程及後續追蹤政策，積極釐清我國收

出養程序如牴觸外籍收養人之本國法應如何處理，並由社政、司法與外交等

單位共同商議跨國境收養兒少之追蹤保護措施及相關法制作業，方能確保被

收養兒少之權益。

34

 4.4 保護安置

結論性意見#45、#46；

第二次國家報告#152、#153、#160、#165、#168、#169、#170

~天主教善牧社會福利基金會~

一、現況分析

2017年第一次國家報告審查後，政府訂頒相關流程避免父母因經濟無法負擔

或無力教養而自行安置子女，但在實務上仍不少脆弱家庭因無力照顧及經濟弱勢，

轉而由主管機關依臨時安置或委託安置方式進入保護安置系統，雖然父母自行安

置的比例降低，但整體兒少家外安置的人數變化不大，突顯兒少保護政策在家庭

支持、維繫及重整工作的缺乏；另一方面，從國家報告的數據可以看到兒少轉由

親屬照顧或寄養家庭的比例提升，國內政策回應推動以家庭環境為主的替代性照

顧，在安置順序上依序為親屬照顧、寄養家庭、機構安置，但當兒少進入青少年

時期，親屬照顧或是寄養家庭無力教養時就會轉介這些孩子到機構安置系統，政

府缺乏兒少在替代性照顧系統中移動的成因與動態分析，忽視了這些兒少在替代

性照顧系統中轉換多次，形成系統性的創傷，尤其青少年個案更為明顯。家庭工

作的未落實也呈現在兒少返家的處遇過程，當孩子的家人或親屬出現時，就被安

排返家，但未看見主管機關對家庭重整的處遇(照顧的能力、意願及面對兒少的

價值態度等)及對兒少返家的充分準備，致使兒少在返家後離家比例高，而社區

支援及返家後服務的中斷，反而讓這些孩子處於高風險且被系統忽略的處境。

二、對國家報告之評論

(一)國家報告附件 6-26 統計報表顯示，歷年父母自行委託的比例雖然減少，但

整體長期安置的兒少人數增減變化不大，顯示兒少家外安置的比例並沒有

明顯下降。

1.這過程如何確保主管機關對委託安置的敏感度訓練及評估檢討？在對兒少

進行安置評估前，是否已對家庭進行相關的服務處遇及支持？對於委託安

置家庭家長的處遇為何？這些兒少在接受臨時安置或保護安置後返家的比

例？主管機關如何確保有積極對家庭進行處遇，而不是僅採取消極地將兒

少安置的方式。

35

 2.12~18 歲長期安置兒少人數逐年遞減，肯定目前國內對於自立配套措施的

發展，但是不同縣市的社區與自立轉銜資源差異大(尤其是住所/經濟)，

譬如有的縣市有自立宿舍/自立住宅，有的縣市則無，縣市政府社工表示

一位難求、資源分配不均。

(二)進入替代性照顧系統，家庭工作與配套措施與資源就應啟動，目的是為了

讓兒少返家。但實際上，返家比例逐年遞減(國家報告附件 6-27 第 2 點兒

少機構結案原因統計)，在實務上我們發現兒少結束機構安置返家後，離

家比例高，約三個月至半年間會再度離家在社區生活，但社區端的支持輔

助措施資源缺乏，在實務上我們發現輕度智能障礙、智力邊緣者等有特殊

需求的兒少，更容易被邊緣化，有快速依附男性、早婚，甚至進入性產業

的高風險。另外，兒少長期安置(2 年以上)的比例高，根據國家報告附件

6-23 統計資料，超過 50%的機構安置兒少安置時間超過 2 年，尤其，當兒

少被安置時的年齡越小，長期安置的比例就更高，且主管機關對長期安置

的兒少缺乏長期輔導計畫及相關的概念。

(三)國家報告第 153 點次提到針對家外安置之兒少及其家庭進行家庭重整服務，

協助原生家庭提升照顧功能、增進親職能力、修復家庭及兒少關係，安置

期間安排會面探親、漸進式返家服務等…。但實際上，各縣市標準及作法

不一且落差大，根據附件 6~16 兒少保護案件處理流程圖，主管機關召開返

家評估會議及相關決策，但是未必會邀請機構及兒少參與返家會議及相關

過程，就算被邀請出席會議，也沒有發言機會，多被發文轉知會議決議說

明兒少要在短期間內(2~3 個月)返家，請機構做兒少的返家準備。或者，

就算是知道兒少還沒準備好返家，也被告知因現在不能長期安置，所以孩

子返家後有問題再處理。

三、結論與建議

(一)積極針對長期安置兒少的返家適應與自立能力培育，提供具體且長期的協

助措施：長期安置兒少因缺乏對生活的現實感，致使離開保護安置機構時

須面臨很大的挑戰，包括經濟、生活及心理適應、就業升學、住所、醫療、

諮商資源等面向，當兒少返家或在社區自立生活後，仍需要國家政策對家

庭及社區環境的協助措施，除了落實後追關懷外，尚須建立更具體積極的

延續措施，建構離開保護安置後的安全網。

36

(二)落實對家庭的支持及重整工作，幫助兒少創傷復原：幼年時期被安置的兒

少結束安置時往往正處於青少年時期，實務上觀察這段期間若未能有效推

展家庭重整與支持服務，返家後反而衍伸家庭暴力議題，因為家庭並未做

好兒少返家的準備，形成雙方彼此無法互相理解，讓兒少再次受創的處境。

因此，我們呼籲在安置期間應落實逐步促進家庭親子關係維繫，才能有效

銜接返家後的生活，這樣的工作推展也絕非是幾次會面就能達到效果，而

是需要在整個過程不斷地提供雙方修復關係的互動場景營造與對話機會，

不論是對安置兒少本身，或者對於家庭成員皆然。

(三)在各樣的決策安排中，納入兒少的想法與意見，減緩與降低對兒少安置安

排或轉換的傷害：目前國內各縣市工作者對 CRC 的敏感度及資源落差大，

這些差異與不一致使兒少在安置轉換的決策過程中的權益被傷害，中央主

管機關有責任協助各縣市健全相關措施及提升對國內縣市主管機關或相關

工作者對兒少權益的敏感度，避免兒少在不一致的系統裡受到不適當的處

遇。

37

 4.5 親屬安置

回應第二次國家報告#159、#160

~台灣世界展望會~

一、現況分析

首次國家報告結論性意見第43、45條，委員會建議政府評估能否透過放寬親

屬照顧者申請資格及補助門檻，促進親屬照顧比率持續增加，推動提倡以家庭環

境為主的替代性照顧，特別是親屬照顧。然臺灣現行親屬安置尋求不易及意願低，

寄養比例低於家庭寄養及機構安置，依據衛福部統計，2017至2019年親屬安置比

例由6.25%增加至8.28%，此則與首次國家報告第158點提到有所落差，主要原因

為政府提供親屬安置支持性不佳，包含：個案管理、經濟協助（安置費用）、支

持性服務方案（喘息服務、心理諮商）、教育訓練（照顧與教養知能）等，僅能

依靠兒少保護社工及親屬安置社工協助；在經濟協助中，部份縣市親屬寄養安置

費用未與家庭寄養費用相同；在支持性服務方案及教育訓練中，於實務工作中經

驗，現行親屬安置所能獲得之資源與支持較少，多數僅能倚靠承接機構及主責社

工提供。

除政府提供之支持性協助不足外，在首次國家報告後至今親屬安置所面臨之

困難包含：

（一）家庭寄養與親屬安置所屬之主管機關不同，形成政策規格差異。

臺灣現行家庭寄養服務之主管機關為衛福部社家署；親屬安置則為衛福

部保護司，因分屬不同主管機關，在於政策擬定、支持性服務提供(如寄養

費用補助標準、專業培訓課程等)、工作模式等皆有規定與不同措施，無法

有一致性。

（二）臺灣國情而言面對親屬安置具有經濟、照顧者特質及法規實務融合之困

難。

以臺灣親屬支持為重的文化而言，現行親屬安置多數視為非正式資源，

常以倫理、親情、傳統觀念文化等方式要求安置，然因協助照顧親屬兒少之

困難多（如經濟條件、教養態度、家族間紛爭等），易造成協助之親屬拒絕，

以臺灣現行親屬安置者的特性，多為年齡偏高、教育程度偏低，而進入兒保

體系的孩子多來自於貧困，他們的親屬也是類似的社經處境，個人及家庭總

收入偏低，而這些特質也影響了其照顧能力及生活條件，綜上，雖現行政府

38

 將親屬安置納入正式兒少保護體系並提供輔助，但尚未能解決其所面臨之困

難及支持性補充，形成政策規範與實務操作無法融合之議題。

二、回應第二次國家報告(#159、#160)

中央針對替代性照顧政策內涵與做為進行說明，包含(#159)：2019年修正

《兒少法》，明定兒少安置除寄養家庭、兒少安置機構外，兒少得交付於親屬或

第三人教養之，並於2020年修正《兒少法施行細則》，明定安置兒少時，以適當

之親屬為優先，次為與兒少有長期正向穩定依附關係之第三人。以及(#160)2019

年成立「兒少替代性照顧政策工小組」，依《聯合國兒童替代性照顧準則》進行

現況檢討，據以擬訂我國兒少替代性照顧政策。

其政府所提供之照顧政策為增加家外安置類別及優先順序，仍未對於親屬安

置所遇之困境及資源提供具體對策及支持。

三、結論與建議

(一)建議親屬安置及家庭寄養之主管機關能共同協議並建立一致性家外安置替

代性照顧措施及支持性服務(如：安置費用、培訓課程、家庭諮商等)，將

二套標準進行整合。

(二)建議中央主管機關制定政策支持地方政府增加親屬安置補助預算，以及協

助地方政府解決親屬安置媒合困難，增加親屬安置之誘因與意願，以提升

親屬安置比率，或可如同家庭寄養進行寄養兒少分級分類之寄養費用補助

標準。

(三)建議將親屬安置視為一種寄養家庭，並提供媒合者指引內容，以協助做出

最適合評估，提供更全面的照顧。

39

 第五章 身心障礙兒少、基本健康與福利

5.1 身心障礙兒少權利(§23)

結論性意見#58、#59；第二次國家報告#192

~中華民國智障者家長總會~

一、現況分析

因應國際潮流趨勢，台灣不論是專家學者的提倡、家長的觀念，皆優先將身

心障礙學前學生以融合為基礎的服務目標列為優先選項，截至 2019 年雖尚有

2,891 名的發展遲緩或身心障礙學生就學於身障或早療機構中，但當有機會時也

皆優先轉銜至融合環境。而從特教通報網中的數據可以發現，學前(一般學校)安

置在融合環境中的學生有 19,866 人(94%)，安置在特教班的人數有 1,289 人(6%)

表示在台灣學前教育階段中的身心障礙兒少已多數接受融合教育。

但對於融合教育環境中的身障兒少使用最直接的支持服務為巡迴輔導服務及

專業團隊服務，現行面臨到的困境如下：

(一)偏遠或交通不便之處巡迴輔導教師招聘不易：尤其若無法在一、二招順利

招到時多只能放寬招聘條件，導致巡迴輔導教師專業不足而失去支持幼兒

園教師教導身心障礙學生專業的本意。

(二)各縣市巡迴輔導教師的師生比不一：導致於一周排課的情況之下，可能部

分縣市的巡迴輔導教師一個月僅能去幼兒園支持同一位學生一次。(最高

台北市 1：36，最低連江縣 1：7 )。

(三)專業團隊使用比例低：專業團隊之治療師多為兼任，能釋放出至校園提供

服務的能量有限，及各縣市申請方式不一，造成幼兒園教師資源連結困難。

二、對國家報告之評論(#192)

學前身心障礙兒童多數已在融合環境中就讀但國家報告中沒有針對於融合環

境中兒童使用各項不同支持服務的現況進行著墨與分析，且附件 7-8 學前身心障

礙學生使用各項專業支持服務採用人次統計，難以掌握確切使用的兒童數量。且

針對師生比國家報告僅針對集中式特教班、幼兒園 2-3 專班及混齡班有進行說明，

未針對屬於支持服務中的巡迴輔導師生比進行說明。

40

三、結論與建議

(一)增加偏鄉巡迴輔導教師合理待遇：提供偏鄉巡迴輔導老師取得偏鄉加級與

執業交通費用補助，透過提高合理待遇吸收優秀服務人力。

(二)結合專業強化巡迴輔導服務：針對偏遠或交通不便之處的特教支持服務除

既有的巡迴輔導服務外，可以採取其他專業支援或結合當地早療服務據點

以團隊合作模式等多元方式提昇服務量能。

(三)教育部應建立合理巡迴輔導服務師生比：針對巡迴輔導教師服務人力比建

議能有合理的標準及同時考量所在地區幅員與交通方式等因素規劃聘用足

額師資以保障學生就學權益。

(四)規劃各縣市統一專業團隊便捷之申請及媒合方式：透過建立便易的申請與

媒合方式，化解第一線服務現場使用之困難度。(現行：部分縣市僅提供

資源名冊需園所逐一與治療師聯絡並約時間，導致園所作業上耗時不便)。

41

 5.2 兒童健康權之改善與環境品質(§24)

結論性意見書#68；第二次國家報告#216~#218

~國立臺灣大學中國信託慈善基金會

兒少暨家庭研究中心~

一、現況分析

聯合國「永續發展目標」 SDGs 目標3：「 確保及促進各年齡層健康生活與

福祉」。空氣污染對人體有許多傷害，兒童比成人受害更嚴重，並造成腦部和系

統發展不可逆的傷害，因兒童體重輕、毒物耐受力較低、呼吸速度比成人快，因

此政府應積極的投入保護與改善政策。台灣中南部空污嚴重，有許多研究顯示空

氣污染與兒童的罹病之顯著關係，然而此問題卻鮮少在台灣受到政策重視，檢視

我國目前法規現況，標準寬鬆、缺乏特殊保護、且校園未有室內監測與改善設備

之預算。以下說明：

(一)《兒童及少年福利與權益保障法》未將環保署納入兒少權利之主管機關。

現行空氣污染防治之相關法規，缺乏對兒少族群之監測與特殊保護標準，

包括「空氣品質標準」、「室內空氣品質標準」、「學校衛生法」等，也

缺乏預算之編列。

(二)校園惡化緊急應變之啟動門檻過高，AQI 超過 200(PM2.5 值為 150.5μg/m3)

才停止室外課，400(PM2.5 值 350.5μg/m3 )才停課。與南韓校園空污防制

政策做比較，台灣之室內和室外空氣品質之監測與防制，整體較南韓寬鬆，

如：測定污染物濃度時，台灣多採一段時間之平均值，而南韓標準為即時

數值之上限值。

(三)當空氣品質達不宜進行室外課標準時，有些學校直接取消室外體育課，卻

未提供合適的替代方案，影響學生之運動權利。

(四)兒少對環境議題表示關注，環保署目前設有「人權工作小組」，關注性別

和弱勢族群等議題，但缺乏兒少參與和表達意見之管道和機制。

二、對國家報告之評論

政府忽略兒少因空污受害之問題，第二次國家報告中未對兒童族群遭受環境

和空氣污染之危害防制提出報告，政府對前一次結論性意見書之回覆，亦未提出

對兒童敏感與易受傷害特質的因應措施，也未見針對改善兒童環境健康之預算。

42

三、結論與建議

兒少對空氣汙染耐受力較成人低，建議相關場所之室內空品應訂定更嚴格之

標準，且投入監測與改善設備之預算。具體建議如下：

(一)建議《兒童及少年福利與權益保障法》第七條之主管機關納入環保署。

(二)環保署針對兒少場所訂定更敏感的室內空品監測標準，並編列預算進行室

內空品之監測與改善。可參採鄰近國家如南韓的相關標準，例如台灣以

AQI 超過 200(PM2.5 值為 150.5μg/m3)才停止室 外課， 400(PM2.5 值

350.5μg/m3) 才 停 課 ， 而 南 韓 停 止 室 外 課 標 準 為 CAI ＞ 250( 即

PM2.5≥75μg/m³或者 PM10≥150μg/m³)，停課標準為 PM2.5≥150μg/m³，

PM10≥300μg/m³。

(三)兒少的環境健康需要環保署、衛福部和教育部強化跨部會合作，透過教育

提升行政官員之兒童權利意識，訂定政策、編列預算，對校園空氣品質進

行監測，並改善室內外空間，並提供兒少因空污被禁止室外運動之替代方

案。

(四)建議環保署建立機制保障兒少表達意見之權利。

43

 5.3 兒少資訊教育與網路成癮(§25)

第二次國家報告#36、#37、#98

~國立臺灣大學中國信託慈善基金會

兒少暨家庭研究中心~

一、現況分析

（一）缺乏學齡前兒童網路使用的規劃以及教學

台灣兒童使用數位產品的年齡逐年下降，學齡前兒童使用網路的比例也

在增加，然而政府尚未提出在幼教場域中的教學模式；或將科技議題納入教

保大綱中，以協助幼教工作者教導幼兒正確的認識和使用科技產品，以保障

兒少身心健康。

（二）「十二年國民基本教育課程綱要總綱」(以下簡稱 108 課綱)課程融入教

學，未考慮到數位落差

108課綱國小將部分資訊課程移除，改成「資訊融入教育」，用意是讓

老師自由發揮，協助兒童進行批判性思考；但未考慮到城鄉差距，及偏遠地

區師資缺乏，應尊重總綱精神，賦予各校彈性自主，以強制規範移除部分資

訊課程，導致未能發揮課綱精神，無法實踐CRC公約中的教育權之實踐，應

立基於機會平等的基礎上。

（三）缺乏政府主責機關導致缺乏預防網路成癮的規劃

WHO將遊戲成癮與網路遊戲疾患列入ICD-11與DSM-5準則中，而未納入整

體網路的成癮行為，主要因為使用者在網路上的行為非常多元，無法逐一定

義。再者，WHO針對遊戲成癮行為亦有強迫性、戒斷性、耐受性、且必須維

持一段時間對個人產生影響的操作型定義，與一般民眾認知「重度使用」網

路仍有差異。上述皆影響我國政府在網路成癮議題中，疾病診斷、健保給付、

福利制度與公共政策的規劃，以及家長處理親子網路使用的態度與方法。

（四）COVID-19 疫情下的數位學習，存在自主學習上的資源落差，影響兒少受

教育之權利

根據台大兒家中心進行的疫情下兒童網路使用調查發現，台灣的兒童數

位學習者落差並非在「硬體」，而是在「軟體」，自主學習上的資源仍然較

少。並約有20%的老師在疫情下，沒有提供學生線上學習的教學或訓練，影

響兒少受教育之權利。

44

二、對國家報告之評論

根據 CRC 公約第 25 條，需要保障兒童在數位環境下的學習以及日常生活中的

實踐，回應兒童在數位環境的受教權，而第二次國家報告(#36、#37)中強調網路

的防護機構，以督促業者自律為目的，但未提到有關兒童的數位權利使用和相關

保護，讓兒童學習在安全且負責任的環境下使用網路。此外，由於網路成癮議題

係近年逐漸成形，以至於綜觀整份國家報告無論在身體健康或心理健康抑或成癮

行為篇章，完全未見針對網路成癮議題之篇幅或論述，導致政府行政單位權責劃

分不清、政策難以制定、落實與評估成效，相關調查研究亦散落各單位(教育部、

衛福部、醫療體系)或由民間團體自行調查倡議，網路成癮預防工作難收實效。

三、結論與建議

（一）技能與資訊教育能力應納入課綱

顧及城鄉學童，技能與資訊教育及幼保大綱應在 108 課綱中補充關於資

訊教育的實施，讓每個地區的兒童得到平等的資訊教育權。同時，提升

幼教師資的資訊能力素養，以融入幼兒教育現場，讓孩子可以更早學習

合適地使用數位科技，預防未來相關心理或成癮問題之發生。

（二）因應疫情，建議教育部應重視學生為中心導向的自主學習，並鼓勵教師

應提供用同步學習教材，幫助學生藉由教師的引導進行課程，強化網路

的合適使用與培養自制能力。

(三) 缺乏政府主責機關導致缺乏預防網路成癮的規劃之建議

網路成癮預防工作目前依照兒少年齡及成癮症狀劃分主管機關(例如學

齡兒少由教育部主管、成癮症狀衡鑑由醫療院所負責治療、衛福部的權

責仍有模糊地帶)。然而，網路成癮工作並非只是單一向度，涉及的對

象亦不只兒少。故建議政府應先確立主管機關及執行單位，並進行權責

分工，以利協助家長、兒少及親子改善網癮議題；再者，提供具有可近

性、可及性、與便利和容易辨識的教育和醫療資源(如具有具體策略和

普及的親職教育和知識)，刻不容緩。

45

 5.4 兒少心理健康(§28)

結論性意見#62、#63；第二次國家報告#70、#72、#219~#220

~國立臺灣大學中國信託慈善基金會

兒少暨家庭研究中心~

一、現況分析

（一）我國兒少自殺率攀升，且近八成事前無求助

過去幾年，12~17歲的自殺之死亡率從2015年的1.3%攀升至2019年的

3.9%，成長3倍且躍升為第二死因。根據教育部分析，近八成學生是非輔導

關懷個案，代表這些學生事前未有徵兆，且未求助。而學生自殺的原因，多

為情緒困擾、負向自我價值、家人情感因素等，而兒童自殺原因也會因為受

到霸凌、情緒調適障礙或是不具解決問題能力之影響。

（二）缺乏可以有效幫助兒少情緒調節的人際及生活技能訓練教材

「十二年國民基本教育課程綱要總綱」雖有明確希望培養孩子情緒調適

的能力，卻沒有一套有脈絡的教材，教導兒少如何在日常生活中實踐。

（三）造成兒少憂鬱和自殺率增加之社會結構因素，仍缺乏研究探究和政策介

入。

二、對國家報告之評論

教育單位雖有「校園學生自我傷害三級預防工作計畫」(#72)，但學校輔導

教師人力不足無法擴及每位學生，致自殺兒少中八成為非輔導室關懷個案，國家

應重視此問題，並檢視學生面臨之社會結構性困境。

有關「國民心理健康計畫」(#219)將兒少心理健康納入健康促進學校計畫，

但並未明確提到處理兒少心理議題，學校恐無法源依據實施。

三、結論與建議

（一）建議教育部提供有脈絡性的生活技能教材

如參採「聯合國毒品與犯罪問題辦公室」(英文簡稱UNODC)的Life Skill

Training (LST)的正向生活人際訓練教材1，藉由培力兒少心理素養的方式，

增進兒少情緒調節能力、提高自我價值的評價，當遇到挫折或負向經驗時，

能夠自我調適，免於自傷或自殺；同時教材提供正向人際溝通協調的技巧，

46

 在面臨人際情感與互動障礙時，有合宜的方式進行溝通與調適。

（二）擴大師資培力，提升教師的敏感度，強化校園之預防功能。

根據台大兒家中心的實證研究，透過生活技能訓練，可以有效幫助兒少

情緒調節能力，降低憂鬱的可能性；在疫情期間有關兒少的焦慮情況調查，

發現PILOT1課程介入的兒少在疫情下焦慮的情況相較於課程未介入的兒少低，

表示在疫情中有相對平穩的情緒，有助於兒少在面臨困難或是問題時，可維

持穩定的情緒，免於極端情緒障礙，乃至於自傷或是自殺。

(三)兒少心理健康需要政府投入更多資源,包含：

1.需要投入少年自殺的社會結構成因之相關研究，了解其面臨的社會文化面

之壓力與壓迫，例如升學與競爭的壓力等；

2.諮商治療以外，建議衛生福利部心理健康司更重視對兒少的公共心理健康

預防工作，編列專為兒少之心理健康預算；

3.納入公衛人員進行社區心理健康促進，規劃對策與服務，以預防自殺或自

傷的行為、物質使用、情緒調節以及霸凌等青少年常見議題；

4.衛生福利部與教育部進行跨部會合作，在校園課程中融入心理調適與溝通

之課程，培養個人的韌力(Resilience)。

1

正向人際及生活訓練課程(Positive Interpersonal & Life Orientation Training, 簡稱 PILOT)，由

臺大兒家中心 2013 年引進由 Life Skill Training(LST)已經實證支持具有預防物質使用、反霸凌

以及預防憂鬱情緒等效果的教材，教材經本土化及在雙北與桃園 22 所國中進行在地化的實證研

究，並數次修正之教材。

47

 5.5 幼兒園之餐點品質與飲食教育 (§24)

第二次國家報告結論性意見#64、#216

~董氏基金會~

一、現況分析

在台灣，糖尿病、高血壓、心血管疾病等慢性疾病常年名列於國人十大死因，

肥胖與慢性病具有密切關聯；根據台灣國民營養健康狀況變遷調查結果顯示，學

齡前兒童過重及肥胖盛行率約 18.1%1-2，這與幼兒時期養成的錯誤飲食習慣及口味

有關，因此應從小建立正確的飲食習慣及口味。

由於現今家庭結構改變，幼兒常需托育至教保服務機構，其中又以幼兒園佔

比最大；據 2018 年「臺灣出生世代研究」結果顯示，兒童 5 歲半時送至托育機構

比例高達 93.3%3。幼兒每天待在教保服務機構長達六至八小時，故機構供應飲食

營養品質對其成長發育、培養良好飲食口味亦具關鍵影響；應同步實施飲食教育，

更可引導幼兒良好飲食行為的養成、向下扎根培養其自發性健康飲食行為及正確

分辨天然食物與加工食品口味的能力，並延續至成人。

相較於中、小學，幼兒園現有的餐點供應與飲食教育規範薄弱且未臻完全，

難以依循及落實。若能建立完善規範，將可確保幼兒園之餐點品質及飲食教育有

效實行。

二、對國家報告之評論

第二次國家報告結論性意見第 64 點肥胖防治（#216），雖然有針對肥胖防治，

但治標而不治本。為避免高血壓、高血糖、高血脂、癌症等多種慢性疾病的機率

增加，應從飲食方面著手避免肥胖，並鑑於成年後許多習慣難以校正，建議針對

幼兒園訂定明確法規作為依據及約束，使孩童從小培養正確飲食、生活習慣及良

好口味，並延續至一生。

三、結論與建議

(一)為保障幼兒餐點飲食營養品質、加強飲食教育，建議修訂法規內容如下：

1.加強餐點品質：建議增修《幼兒教育及照顧法》第 12 條第二項條文，明訂

教保服務機構（幼兒園）供應餐點應依據《幼兒園餐點食物內容及營養基

準及食譜範例》(國教署 2020.12.28 修正公布)，提供衛生安全及營養均衡

之餐點，並藉此機會引起家長重視，期望透過家長回頭重視，師長一起幫

48

 助孩子建立起良好飲食生活習慣，預防肥胖及慢性病，奠定一生健康的基

礎。

2.加強食育內容明確性：教保服務內容應包括健康飲食教育目的與指導內容，

建議於幼照法第 12 條第二項條文，增訂適用於教保服務機構實施飲食教育

之指導內容。

(二)確保幼兒園餐點品質及飲食教育實施狀況，建議內容如下：

1.中央主管機關（比照國民中學、國民小學）每年派員協同各地方縣市政府

單位不定期輔導訪視幼兒園廚房及餐點，以確保落實餐點品質。

2.依循教育部於 2021.08.18 修正之《幼兒教保及照顧服務實施準則》中「第

13 條明訂幼兒園應落實健康教育」，於「幼兒園基礎評鑑指標自評表」中

新增「健康飲食教學」做為自評及輔導訪視指標。

1

衛生福利部（2019）。2013-2016 年國民營養健康狀況變遷調查（NAHSIT）。資料來源

https://reurl.cc/qDrONR

2

衛生福利部國民健康暑 (2018)。台灣肥胖防治策略。資料來源

https://www.hpa.gov.tw/Pages/EBook.aspx?nodeid=3813

3

衛生福利部國民健康暑(2018)。新世紀臺灣學齡前兒童健康圖像。資料來源

https://www.hpa.gov.tw/Pages/Detail.aspx?nodeid=248&pid=1299&sid=1297

49

 5.6 疫情、災變下的兒童權利

結論性意見#68；第二次國家報告#40、#90、#148、#186、#225、#246

~台灣世界展望會~

一、現況分析

依據首次國家報告，因應第 225 條六輕環境汙染，委員提供之結論性意見第

68 條建議，在第二次國家報告中未有相關因應天災災變、傳染病毒、流感等與兒

少健康權相關之行動計畫訂定。然而臺灣位處太平洋火環地震帶、且為熱帶性氣

旋（颱風）移動路徑經過點，因此遭逢各式天災肆虐的機率極高。根據世界銀行

2005 年出版的《天然災害熱點：全球風險分析》（Natural Disaster Hotspots:

A Global Risk Analysis）報告指出，臺灣可能是世界上最易受到天然災害衝擊

國家之一，臺灣約有 73%的人口居住在有三種以上災害可能衝擊的地區，遭受兩

種災害衝擊之國土地區更高達 90%以上。

2020 年臺灣遭逢新冠肺炎(COVID-19)疫情，在經濟、環境、社會有持續性影

響，使得民眾引發恐慌心理反應，因而自公共衛生危機延伸為兒童權利風險：

（一）生存及發展權：

1.兒少因應疫情之心理衛生維護

COVID-19 產生因資訊不明確且媒體的高頻率傳送相關新聞，使得民眾引

發恐慌的心理反應及具體行為，連帶引響兒童對疫情的認知及恐懼，致使兒

少在公共場域對於環境或他人有過度防衛或是衍生霸凌等行為產生。

2.因家庭收入驟減所造成的家庭危機

因疫情造成多數產業衝擊，影響部分國民就業與生計，造成收入不穩或

驟減影響家庭與兒少基本生活需求，尤其為中低收入戶或派遣、時薪工作者，

產生經濟安全議題。

（二）受保護權：因失業、停課所造成的家庭危機

臺灣學生因調整為在家上課待在家中，家中經濟來源者也必須在家工作

或為失業、待業狀態，成人與兒少長時間共同待在家中，除面臨經濟壓力外，

亦有兒少照顧及教養壓力共同並存，使得兒少受到虐待、疏忽照顧之風險逐

漸增加。

（三）受教權：疫情下的低社經家庭數位落差的相對剝削

臺灣兒童的數位落差因著家庭社經地位而有所差異，社經條件居於劣勢

50

 的家庭，有可能因著設備及網路的缺乏，致使現行學習管道產生相對剝削，

形成數位學習資源的落差，影響兒少受教權。

二、對國家報告之評論

(一)在本次國家報告中，已新增與 COVID-19 相關內容包含：

1.健康權（#40、#90、#225）：說明參考歐美國家研發模式，依序收納較低

年齡族群資訊，以及提供疫苗接種作業，並透過多元方式進行衛教宣導。

2.生存及發展權（#148、#186）：家庭生計受影響者，提供國小以下孩童及

國高中身心障礙學生之孩童家庭防疫補貼，及針對經濟弱勢家庭兒少於原

有經濟補助之外，發放 6 個月補助費用。

3.受教權(#246)：學校可採同步、非同步或混成之線上教學方式，學生居家

遠端學習不到校。另支援偏鄉及經濟弱勢學生線上學習所需行動載具、4G

SIM 卡及分享器等設備，透過教育部教育雲平臺匯集公私部門多元數位學

習課程資源，提供線上學習資源服務。

(二)除上述內容外，國家報告未針對 COVID-19 之「心理衛生」、「兒少保護」、

「家庭暴力」之內容及相關作為。

(三)因臺灣發生颱風、水災、地震等天災機率高，國家報告亦無針對此類災變

進行相關預防或應變措施之內涵，然因兒少在災變中有其特殊需求，包含

仰賴成年人照顧、移動安置安排、心理情緒創商輔導需求等，都為在各項

災害應變中須考量之兒少權益與協助。

三、結論與建議

(一)因應疫情而居家上班或失業，以及兒少在家就學，容易形成兒少照顧、經

濟壓力與教養壓力共同並存，衍生兒少受虐之風險，另已在案中之兒少保

護個案，亦因疫情嚴峻校方及社政實際接觸兒少機會減少，對於兒少身心

受虐危機掌握亦下降，期待中央主管機關可針對疫情趨勢進行兒少保護資

料庫數據偵測風險危機，並提供配套可保護實務社工人員安全亦可進行兒

少實地訪查之措施。

(二)為防範天災災變（颱風、水災、地震等）影響兒少健康權、生存發展權等，

亦建請主管機關制定防災、減災、備災、應變政策措施項目，包含穩定生

活、心理重建等項目，特別關注位處偏鄉或高風險潛勢地區之兒少有相關

權益與保護因應。

51

 第六章 教育休閒與文化

6.1 學前教育與托育（§18、§23、§2、§3）

第 7 號一般性意見書結論性意見#71、#72、#73

~兒童福利聯盟、

至善社會福利基金會~

一、現況分析

國家於2019年公布「少子女化對策計畫」，依據其成果報告顯示，雖在準公

共化幼托服務和公共化服務上皆有所增加，似乎有達成部份成效；但事實上，近

年來台灣幼托園所重大違規事件經常成為熱門新聞事件

(一)幼托園所照顧品質堪憂，且無監督機制

依據兒盟2021年之調查，準公托部分有17.38%的家庭反映遇到違規事項，

其中不乏與政府簽約的準公共化園所，準公幼部分則有34.33%；上述違規除

了涉及體罰、暴力對待幼兒的不當照顧外，超收、進用不具資格的教保人員、

巧立名目收費等狀況頻傳，再加上處罰和退場機制明顯不足，且缺乏主動稽

查的量能，顯見政府僅為衝量，卻未顧及照顧品質。

(二)國家 0~6 歲托育體制設計，分散原鄉部落幼兒照顧量能

礙於政府體制分工，0~2歲兒少托育主管機關屬社政體系，由衛生福利

部管轄，然而 2~6歲兒少學齡前教育又歸屬教育部管轄。兩個主管機關訂定2

套法規及實施管理辦法，然而實際操作面上，原鄉本就資源有限，部落實無

力負擔設置2個學齡前互助式托育照顧機構。

二、對國家報告的評論(#239)

依據第二次國家報告之內容，目前國家確實針對公共化教保資源、準公共化

平價教保機制，以及擴大育兒津貼、補助企業設立教保服務等方面，比起過去確

實有長足進步，提供諸多幼兒家庭支持性的服務。

但目前大部分的服務內涵，大多圍繞在減少學前家庭教保支出負擔，或以津

貼補助之方式給予家庭支持，針對居家保母、托育機構、準公共化幼兒園之照顧

品質管理上，除一般性的評鑑外，並未看到明確的稽查、監督和退場機制。

三、結論與建議

(一)持續增設公共化幼托資源

52

 為提供平價近便的幼托服務，政府應說明在0~2歲居家保母、公辦民營

托嬰中心、準公托等不同服務輸送的政策規劃和期待，3~6歲的公幼、準公

共、私幼也應該如實呈現服務的使用現況與未來的政策光譜，並詳加說明各

樣經費使用的情形。

(二)強化不良園所的稽查和輔導機制

更應強化稽查和輔導機制，檢討幼托法規是否能有效嚇阻不良園所，同

時依法要求各縣市政府落實公告違規的幼兒園，或改由中央統一公告，並追

蹤不適任人員是否確認不能於幼兒園和托嬰中心任職，另亦須以確保幼兒學

齡前兒童，以確保幼兒學齡前兒童的幼托照顧品質。

而針對屢次違規的園所，也應該設立退場機制，另考量目前已有民間資

源建置違規幼兒園的查詢地圖，可考慮比照建置或產官合作，促進資訊公開

以提供給家長和相關單位參考。

(三)提供整合式部落教保中心

顧及原鄉部落服務能量有限，應結合教育部、衛福部與原民會資源，由

縣府建立單一窗口簡化行政作業流程，以部落教保中心做為整合式原住民族

0~6歲服務提供者，共同照顧原鄉部落0~6歲之幼兒。

53

 6.2 少數民族與原住民兒童(§30)

結論性意見#87、#88；第二次國家報告#56、#258、#279、#280、#283、#308、

#309、#311、#312、#313、#317

~至善社會福利基金會~

一、現況分析

(一)原住民族新生兒及嬰兒死亡率依然高於全國平均水準近 2 倍

依據原住民族委員會2020年〈106年原住民族人口及健康統計年報〉資

料顯示，2017年原住民族新生兒死亡人數總計為26人，死亡率為每千活產數

3.8人，未滿1歲嬰兒死亡人數總計為52人，死亡率為每千活產數7.6人。相

較於衛生福利部公布2017年全國新生兒死亡人數總計為486人，死亡率為每

千活產數2.5人，未滿1歲嬰兒死亡人數總計為772人，死亡率為每千活產數

4.0人，原住民族新生兒及嬰兒死亡率高於全國平均水準近2倍。而主要死亡

原因依序為：源於週產期的特定病況(40.4%)、先天性畸形變形及染色體異

常(23.1%) 、事故傷害(9.6%)。

(二)符合資格原住民族籍師資不足

雖然〈108課綱〉規定國小、國中(自2022年8月起)每週有一節本土語文

課（閩南語文、客家語文、原住民族語文及閩東語文），國家補助各縣市原

住民族語專職族語老師人數也逐年微幅增加，然台灣原住民族語系眾多，符

合每一族語資格的族語老師聘請不易，加上欠缺媒合機制，學校若未設有專

責原住民籍老師推動，原住民族學生權益易被忽略，原住民族兒少被迫選擇

非本族語文課程之案例時有所聞。

(三)加分制度的設計造成正反兩面的效益衝擊

加分制度的設計，一方面為部分原住民族孩子提供學習機會，打開視野，

進而培育出民族所需人才；然而，也看見另有一群孩子，因此陷入升級後課

業學習壓力，甚至遭受到同儕歧視，自信心逐漸消失，最後中離或休學離開

學校。至善基金會在新竹縣尖石、五峰鄉後山服務25年，以今年為例，2021

年九月，至善社工服務的原住民族兒少中，有24人因加分制度國中畢業後進

入公立高中職就讀，然學期尚未結束已有3名因為學習跟不上或經濟因素中

離，但一路以來也有約莫半數服務過的學生因為加分進入公立高中，因此重

54

 新學習族語，獲得更豐盛的生命。

(四)社工服務網絡間的橫向聯繫斷裂造成社會安全網漏洞

至善基金會接受原住民族委員會委託辦理3個原住民族家庭服務中心，5

年工作經驗發現一旦服務的原住民族兒少進入安置保護系統後，原住民族家

庭服務中心社工往往就被迫中斷服務，無法進一步參與此一兒少相關後續處

遇會議討論，也無管道得知後續處遇結果，造就原住民族兒少結束安置回到

部落、進入社區時，原住民族家庭服務中心社工服務銜接上的難度，也易常

造成漏接，形成社會安全網破洞。

二、對國家報告之評論

〈兒童權利公約第 2 次國家報告〉對於都市原住民族兒童權利，僅著重於教

育文化權利法規制度的訂定及補助金措施的提供敘述(第 258、313 條次)，缺少法

規及政策執行面的定期追蹤與落實、具體的成果數據或成效分析，以及教育文化

權外之其他兒童權利需求探究之敘述，顯見國家對離鄉生活在都市原住民族兒少

現況與相關權利福祉掌握度不夠。

三、結論與建議

(一)建議衛生福利部持續加強對原住民族孕產婦衛教，提供豐富的孕產知識、

衛教文章、及新生兒照護等資源相關訊息，同時考慮將高層次超音波及染

色體篩檢 2 項產前遺傳檢查費用納為原住民族孕婦產檢全民健康保險給付

項目，維護母嬰健康，以降低原住民族新生兒及嬰兒死亡率。

(二)因應符合資格原住民族籍師資不足問題，建議教育部：

1.善用並推廣「族語 E 樂園」數位化教材網站，豐富教學資源及創新教學模

式，在有限族語師資資源條件下，創造出最大學生學習受益可能性，確保

每一原住民族兒少族語受教權。

2.鼓勵學校設有專責原住民籍教師，積極推動族語師資媒合。

3.與原住民族委員會合作，積極發展原住民族師資培育體系，以落實原住民

族教育法校內原住民族師資須達三分之一以上的規定。

(三)建議教育部立即檢討加分制度設計之合宜性，邀請原住民族委員會協作，

針對加分制度之影響做追蹤研究評估，調整制度設計並輔以配套措施，才

不會抹煞加分制度設立的初衷和美意。

(四)建議衛生福利部與原住民族委員會展開對話，討論原住民族家庭服務中心

55

 在社會安全網的制度規劃一環中可以協作的功能和角色，建立社工橫向服

務連結合作機制。

(五)已有過半數原住民為就學、就業離開部落，居住到都市生活，建議國家立

即全面盤點生活在都市原住民族兒少需求，維護並發展都會原住民族兒少

權利之具體措施及配套法案，確實落實國家照顧原住民族政策。

56

 第七章 特別保護措施

7.1 青少年休閒活動與場所明顯不足(§23、§31)

結論性意見#78、#83~#86、#90~#91；

第二次國家報告#223~#225、#292~#297、#333

~中華民國觀護協會~

一、現況分析

《兒童權利公約》重視兒童休息休閒權(§31)，而多位學者的研究也指出休

閒活動對青少年身心發展具有重大影響，諸如：陶冶性情、發展自我、抒解生活

壓力、交友，建立同儕團體與參照標準的機會、預防青少年犯罪等。

另依據2017至2019年之中央政府總預算案顯示，在兒童及青少年預算數方面，

呈現增加的趨勢(增幅 49.73%)(近年我國兒少預算配置與執行成效之探討，2020)。

然而，如進一步檢視我國此三年期間之中央政府總預算案則顯示，中央及地方政

府 兒 少 預 算 ， 以 教 育 （ 60.89% ） 及 福 利 （ 24.43% ） 占 比 最 高 ， 其 次 為 健 康

（11.35%）、發展（2.53%）、保護（0.77%）；而促進兒少遊戲與休閒權之經費

編列於發展類僅占（2.53%）(衛生福利部，2021) 1。顯而易見，我國政府在兒少

發展上之預算投入似嫌偏低。

二、對國家報告之評論

第二次國家報告中針對休閒、娛樂和文化活動，僅偏重於兒童遊樂設施、親

職館、托嬰場所的增設，以及營養午餐的供應方面之政策(#292~#297)。至於，

12歲以上之青少年的休閒活動內容等的措施與經費的編列，卻未有積極作為。

1990 年代，冰島率 先開發了 「物質使 用的初級 預防模式 」 (The Icelandic

Model for Primary Prevention of Substance Use, IPM），大大改善該國青少年酗酒及

吸食大麻的嚴重情形。根據青少年實務工作者發現，國內青少年的吸毒人口，是

以吸食第三級、第四級毒品者，占大多數；而目前我國反毒策略主要以施用第一

級、第二級毒品者的戒毒處置為主要目標，明顯忽略青少年的現況。因此，政府

應亟需回應以預防替代處遇，重視與推展青少年休閒與體育活動，此不僅可呼應

「聯合國預防少年犯罪準則」（1990）（簡稱「利雅得準則」）（united nations

guidelines for the prevention of juvenile delinquency）(riyadh guidelines)第32點~37點

的規定，而且也符合國內青少年戒毒之實際需求，力謀關懷、輔導、協助的介入；

57

而非僅醫療模式的介入。

三、結論與建議

(一)建請政府落實《公約》第 31 條應將兒童休息和休閒、從事遊戲和娛樂活動

的權利，放在高度優先地位，並應增加社年福利的預算。

(二)對於青少年休閒活動與青少年毒品初級預防教育，政府應列在高度優先地

位，並有足夠預算及其他資源，以辦理有關之服務(參考「利雅得準則」

第 45 點)。

(三)冰島的 IPM 模式-倡導青少年的正當休閒活動與運動、課後照顧、父母關懷

社區少年、深宵輔導，讓青少年平時無聊時有地方可去，足堪國內參採。

(四)政府宜建立偏差行為與犯罪熱點的地理資訊系統（Geographic Information

System,簡稱 GIS)，以掌握青少年的毒品使用情況。

(五)應運用少年次文化的特性，培養少年自立生活能力、發現自我能力、培養

其網絡才能；以及提供空間讓少年能有發表多元才能的場所。

1

衛生福利部(2021)。兒少預算占政府總預算比率暨各分類占比。

https://crc.sfaa.gov.tw/Statistics/Detail/1

58

 7.2 少年保護事件持續收容應有最高期間限制(§37、§40)

結論性意見#94、#96；第二次國家報告#359~#361

~中華民國觀護協會~

一、現況分析

收容（detention）是剝奪少年自由的一種手段，這種處置應作為特殊情況

的最後一種手段；如當兒童危及自身或他人，則應適用兒童保護措施。依據「聯

合國預防少年犯罪準則｣（簡稱「利雅得準則｣）第86點規定，法院宜減少拘留措

施的使用，如因特殊狀況需要使用，則應盡可能縮短收容期間。我國《少年事件

處理法》(以下簡稱《少事法》）第 26條之2規定，少年觀護所收容少年之期間，

調查或審理中均不得逾二月、延長收容期間不得逾一月，以一次為限。然而，上

述收容期間，並未考量到ㄧ、二審之實際運作，譬如：不服該裁定，提出抗告，

如遇有接續收容的情事，將導致全部收容期間過久的弊病。此將有害維護兒少之

最佳利益的原則。

以某甲為例，少年某甲曾有二犯竊盜事件之前案紀錄，故於三犯竊盜事件被

移送時，法官乃諭知收容。該案歷經於調查期間裁定收容二個月，延長一個月；

接著，審理期間又裁定收容二個月，又延長一個月。其後，本案移送由二審承辦，

二審法官於調查期間收容二個月，延長一個月。最後二審以因部分疑點沒交代清

楚，而裁定駁回一審。

承辦駁回事件的一審承辦法官，於承辦後因斟酌少年仍有收容之必要，又於

調查期間再裁定收容。此案對少年而言，至此歷經一、二審接續收容，其收容期

間已不止9個月之久。反觀《少事法》第55條第1項、第56條第1項規定，對於保

護管束之執行已逾六月，著有成效；執行感化教育已逾六月，認為繼續執行之必

要者，均得聲請少年法院免除其執行。無可諱言，少年或法定代理人抗告的結果，

反而被法院冗長地收容。而此全部收容期間，算起來反而比保護處分實際執行為

長，而且收容期間越長，少年返回學校就學的可能性越低。

二、對國家報告之評論-

對於觸法兒少，在審理階段，少年法院得責付或命收容於少年觀護所；而責

付期間，少年法院又得交付少年調查官為適當之輔導(急速輔導)（少§26）。另

在審理階段，少年法院得以裁定將少年交付少年調查官為六月以內期間之觀察適

59

當(交付輔導）（少§44）。可見，依法法官可以命為收容之處置，亦可選擇責付

之處置。然而，在國家報告中，對於收容實務中所產生的延長或連續收容期間、

收容事由之妥適性，有所忽視。

三、結論與建議

(一)關於少年司法系統中的兒童權利問題於《公約》(§37)以及「聯合國少年

司法最低限度標準規則」都相當重視。故建議我國政府以某甲事例為例，

檢討現行的收容規定，從而訂定收容最高期限以及不訴諸收容之其他替代

性處置，以落實維護兒少之最佳利益。

(二)日本對於由家庭裁判所移送到少年鑑別所的非行少年，收容期限原則上在

2 週內，最多不超過 4 週，實可作為我國未來修法之參考。

60

 7.3 少觀所應具有觀護與鑑別功能(§40)

結論性意見#94、#96；第二次國家報告#16、#32(b)、#353~#354、#363

~中華民國觀護協會~

一、現況分析

根據1990年「聯合國保護被剝奪自由少年規則」(「哈瓦那規則」)（United

Nations Rules for the Protection of Juveniles Deprived of their Liberty）

(A/RES/45/113）第Ⅰ-2點規定「……剝奪少年的自由應作為最後的一種處置手

段，時間應盡可能短，並只限於特殊情況。制裁的期限應由司法當局確定，同時

不排除今後早日釋放的可能性。」可見，對被收容少年而言，少年觀護所（以下

簡稱「少觀所」）不是少年他(她)本身的永遠的家；但少觀所卻是能讓少年在初

嚐失去自由的滋味時，能自我反思是否要中止犯罪的一個很重要的轉折點。

2019年《少年事件處理法》（以下簡稱《少事法》）修法時，特別有參酌日

本少年鑑別所的鑑別功能，乃將條文修正賦予少觀所應具有個案身心評估及行為

觀察，並提出鑑別報告的功能。2020年「少年法院與相關機關處理少年事件聯繫

辦法」第28條第1項乃進一步規定：「少觀所應對被收容之少年進行身心評估及

行為觀察，並提供鑑別報告，認有必要時，得請相關主管機關提供鑑別所需之精

神醫療等資源，亦得召開資源聯繫會議，……。」

可見，少觀所未來除了仍需具有收容的功能之外，如何提升個案的鑑別功能，

責無旁貸。

二、對國家報告之評論

結論性意見對少觀所評價雖好，但少觀所在國家報告中所揭露的訊息不足。

日本少年鑑別所是專門收容該國違法少年的機構，其主要職能是對違法少年

進行專門鑑別和執行觀護監督措施。該所首先運用醫學、心理學、教育學、社會

學以及其他專門知識，對少年進行生理、心理特質的鑑別，以提供調查、審理、

觀護的實務上需要。其次，該所除接受該國少年院（相當國內的「少年輔育

院」）、保護觀察所等法務省所屬機關委託的鑑別工作之外，亦接受一般家庭和

學校委託的鑑別工作，並給予適當的建議。

反觀，最近《少事法》能在修法時，修正少觀所的專業任務，誠屬基於少年

的最佳利益。因此，少觀所如何早日籌劃好《少事法》所賦予的法定任務，備受

61

關切。

三、結論與建議

(一)少年法院於必要時，對於少年得以裁定責付與收容之處置。其中，收容部

分，依《少事法》第 26 條第 1 項、「少觀所設置及實施通則」第 3 條等

規定，均可確認少觀所應透過身體檢查、會談、觀察、心理測驗等身心評

估及臨床診斷，以提供爾後審理及處遇的依據。

(二)少觀所應妥善辦理少年的分類和收容。根據「哈瓦那規則」第 27 點規定：

「少年入所後，應盡快找專人安排談話，撰寫一份有關其心理及社會狀況

的報告，說明與該少年所需管教方案的特定類型和等級有關的任何因素。

此報告應連同該少年入所時對其進行體格檢查的醫師報告一起送交所長，

以便在所內為該少年確定最適宜的收容方式及其所需和擬採用的特定類型

和等級的管教方案。」

(三)少觀所應使少年享有教育、休息及休閒權利，並應加強少年的基本義務教

育、休閒教育以及每天有適當時間的自由活動。

(四)未來少觀所仍應注意《公約》第 37 條、「哈瓦那規則」之相關規定，以及

做好收容、鑑別與保護的專業功能才是其最核心的事情。尤其如何在監獄

人滿為患之下，基於兒童最佳利益，如何擴展且單獨收容少年的收容場所，

應是長期努力的目標。

62

 7.4 落實少年調查官、保護官分流制度(§3、§36、§40)

第二次國家報告#348

~中華民國觀護協會~

一、現況分析

少年調查保護制度（或稱「少年觀護制度」）係兒童司法系統的一環，其制

度之良窳，實攸關社區犯罪矯治處遇之成效與否。1997年我國為使原有之觀護人

進一步專業分業，乃將《少年事件處理法》(以下簡稱《少事法》）第 9 條加以

修訂，並明文規定少年調查官（簡稱「少調官｣）負責審前調查、少年保護官

（簡稱「少保官｣）則執行少年保護處分。

根據「北京規則」第22.1點的說明表示，「……對於社會工作人員和觀護人

來說，受過在職專業教育應為最低條件，專業資格是確保公正有效地執行少年司

法的一個重要因素。」因此，在兒童司法系統中，如何尊重專業人員的專業分工、

實施專業訓練，進而維持著健全的組織以及久任的專業的人員，誠屬健全少年調

查保護制度的核心議題。

二、對國家報告之評論

「少年調查保護制度」為兒童司法系統的重要一環，而我國則歷經審檢分隸、

觀護一元化、觀護工作得三員相互兼理等多次政策更迭的衝擊，乃衍生諸多不確

定的制度存在，爭論不已。然而國家報告卻未有著墨於未來將如何解決專業人員

養成與運用的議題，此勢必深深影響兒少應有的司法人權以及其所受司法照料是

否符合專業水準的質疑。

三、結論與建議

在司法體系中，少調官與少保官都是維護兒童最佳利益的重要他人，但他們

卻是司法組織內的相對弱勢族群。因此，司法當局應克服困難，積極支持此專業

制度的發展。

以下，謹針對政府如何健全少年調查保護制度，提出以下建議：

(一)明確規劃少調官、少保官各別應有的專業工作準則，以及研擬以少年為本

位的處遇措施。

(二)保障少調官、少保官之健全人事制度及施以長期專業培訓，俾能有效履行

其職務。

63

(三)避免制度內的差別待遇、並寬籌少年調查保護經費，才是維護少年最佳利

益的保證。

(四)少調官、少保官執行職務因涉及少年權益與人身自由的議題，因而少年保

護處分的執行，事關少年權益，自應比照《保安處分執行法》的立法例，

訂定專屬的法律加以規範。反觀司法當局目前以「少年法院與相關機關處

理少年事件聯繫辦法」作為權宜之計，似欠允適。

64

 7.5 少輔會應強化少年偏差行為預防及輔導體系的完整

結論性意見#96、#97；第二次國家報告#340、#342~#344

~中華民國觀護協會~

一、現況分析

2019年《少年事件處理法》(以下簡稱《少事法》）第18條修正通過，賦予

少年輔導委員會負責處理少年曝險行為。其後，「少年法院與相關行政機關處理

少年事件聯繫辦法」(2020)、「少年偏差行為之輔導及預防辦法」(2021)、「少

年輔導委員會設置及輔導實施辦法草案」(2021)，已陸續發布或預告中。

《少事法》第18條係「少年輔導委員會設置及輔導實施辦法草案」（簡稱

「實施辦法草案」）的法源。根據該條第7項規定：「直轄市、縣（市）政府少

年輔導委員會應由具備社會工作、心理、教育、家庭教育或其他相關專業之人員，

辦理第二項至第六項之事務；少年輔導委員會之設置、輔導方式、辦理事務、評

估及請求少年法院處理等事項之辦法，由行政院會同司法院定之」。可見，少年

輔導委員會的設置，除了應肩負少年及兒童偏差行為輔導所事涉少輔會、社會局

（處）、教育局（處）之間的督導協調執行事項之外，依據《少事法》及「少年

偏差行為之輔導及預防辦法」規定，主要是肩負審前轉向以及少年偏差行為之輔

導及預防事宜。

然而，該「實施辦法草案」第 2 條、第 5 條有關少輔會編制與組織，卻偏

向將少輔會的重心放在具有少年及兒童偏差行為之諮詢、聯繫性質的跨機關專業

團隊上。相對地，忽略強化少輔會內部組織在少年偏差行為預防及輔導運作上。

類此規定，從表面上來看，似乎人力濟濟，且深獲各方的參與與協助；但從組織

的運作來說，實窄化專業組織的領導統御與專業人員之專業的發揮空間。很顯然

地說，高層均為兼職無暇關注實務需求，遑論專業領導，實務人員有責無權，下

情又無法上達。尤其專業人員的升遷之路，被上位兼職者所佔據，升遷之路受阻，

專業能力亦顯然難以伸展，勢將無法達成功效。如此之組織規劃，實無法留住專

業人才，將大大降低審前轉向的預期功能。

二、對國家報告之評論

國家報告第340點雖然針對12歲以下兒童各類偏差行為，教育與社政單位對

於輔導機制已有所說明。但對於12歲以上18歲未滿之曝險少年、偏差少年的輔

65

導，除處理對象、接獲個案之轉介原則，業經「少年偏差行為預防及輔導辦法」

第 6 條規定確立之外，有關人員招募、專業講習、如何受案（立案）、如何及

時處理暴力事件、吸食毒品事件、如何處理緊急安置、個案處理流程如何、如何

進行訪視與調查、如何進行接案評估、如何提出輔導服務計畫、如何進行相關犯

罪預防及輔導策略，均仍付之闕如。

三、結論與建議

(一) 「實施辦法草案」第 2 條規定：「直轄市、縣（市）政府應整合所屬警

政、教育、衛生、社政、民政、戶政、勞工、財政、毒品危害防制等機關

（單位）業務及人力，設置少年輔導委員會（以下簡稱少輔會），並統合

金融管理、移民及其他相關資源，辦理下列事項：……」此規定僅偏重規

定少年輔導委員會的設置，應肩負少年及兒童偏差行為之輔導事項所事涉

少輔會、社會局（處）、教育局（處）之間的督導協調執行事項。但對於

《少事法》及「少年偏差行為之輔導及預防辦法」所規定，主要是要肩負

審前轉向以及少年偏差行為之輔導及預防事宜，反而被有意地忽略，似違

背《少事法》第 18 條第 7 項的規定，自應及時修正。

(二)少輔會在實務運作的規劃與建置必須及早完成

對於諸如如何通知少年其有關曝險行為、偏差行為、調查與評估、處

遇的決定、少年修復式司法的引進、多元機構 (a multi-agency team）的

整合團隊、個案管理、預防及輔導、諮詢與服務、專業角色的定位、犯罪

預防的功能，如何與警察機關的協同合作、如何轉介、如何運用相關資源

與福利服務等事宜，均應即時趕辦規劃與建置。

他山之石，可以攻錯，國外立法例，諸如：英國英格蘭和威爾士的少

年犯罪處遇團隊(youth offending team，YOT)、日本的青少年指導中心、

瑞典的少年犯特別調查中心、澳洲新南威爾斯州青年司法部的青年司法社

區辦公室的立法例，均可作為我國規劃未來少輔會體制之參考。

(三) 未來少輔會應積極規劃曝險少年服務，並與警察經常保持聯繫與合作

如澳洲警察局內設置專業青年警官（Specialist Youth Officers）提

供警察、少年和家長相關建議，以及對少年問題作出決定並核實少年指控，

可做為參考。因為，警察是未來少輔會、學校、社會局、社區減害及預防

青少年犯罪、暴力和反社會行為的重要夥伴，迨無疑義。

66