东盟农民工管理法律政策比较研究

1、 Comparative Study on Laws and Policies in the Management of Migrant Workers in ASEANApril 2021ACKNOWLEDGEMENTSThe Comparative Study on Laws and Policies in the Management of Migrant Workers in ASEAN was initiated by the Ministry of Labour, Invalids and Social Affairs (MOLISA) of Viet Nam and planne

2、d in the Senior Labour Officials Meeting Working Group on Progressive Labour Practices to Enhance the Competitiveness of ASEAN (SLOM-WG) Work Plan 2016-2020. The Study was conducted with the support of the ASEAN Secretariat and the Enhanced Regional EU-ASEAN Dialogue Instrument (E-READI), a developm

3、ent cooperation program funded by the European Union. E-READI facilitates dialogues between the EU and ASEAN in priority policy areas of joint interest.The Study, conducted at regional level and across ten ASEAN Member States, has fulfilled its objective of offering comprehensive analysis on how ASE

4、AN Member States have dealt with the movement of migrant workers into their labour markets, covering all skill levels and including those occupations under the 8 ASEAN Mutual Recognition Arrangements (MRAs), and providing recommendations as feedback for ASEAN policy makers and practitioners in impro

5、ving policies and measures pertaining to the mobility of migrant workers.The Regional Report and ten Country Reports were produced and endorsed following a series of extensive consultations with SLOM-WG since 2019. The Regional and Country Reports were launched at the High- Level Dialogue Forum and

6、Launching Ceremony conducted virtually on 20 April 2021.Acknowledgment and sincere appreciation go to the following individuals for their technical support to thisStudy:To the SLOM-WG focal points, all of whom cannot be acknowledged individually, from the labour ministries of ASEAN Member States for

7、 your invaluable time and efforts to review draft Reports, provide data and information, and share insights;To the International Cooperation Department of MOLISA Viet Nam, led by Dr. Ha Thi Minh Duc (Deputy Director General) for the leadership and guidance leading to the realisation of this Study, a

8、nd her team members particularly Ms. Tran Thanh Minh, Mr. Phan Nhat Minh, and Ms. Le Thu Huong;To the ASEAN Secretariat under the leadership of H.E. Kung Phoak, Deputy Secretary-General for ASEAN Socio-Cultural Community including Director Rodora T. Babaran, Labour and Civil Service Division led by

9、Ms. Mega Irena (Head and Assistant Director) and her team members, in particular Ms. Madyah Rahmi Lukri, Mr. Carl Rookie O. Daquio, Mr. Alvin Pahlevi and Ms. Felicia Clarissa for the professional coordination, facilitation of consultations and stakeholder participation, and feedback to the draft Rep

10、orts;To the EU Delegation to ASEAN, the EU Commissions Directorate-General for Employment and the team of E-READI, for the unwavering support throughout the Study and feedback to the draft Regional Report;To Ms. Dovelyn Rannveig Mendoza of the Migration Policy Analysis as the consultant for this Stu

11、dy and author of the Regional Report. This Study would not have been possible without her expertise and support;To the following national researchers and authors of the Country Reports: Dr. Paryono (Brunei Darussalam) Mr. Khoun Bunny (Cambodia) Dr. Rina Shahriyani Shahrullah (Indonesia) Mr. Tingthon

12、g Phetsavong (Lao PDR) Ms. Maimunah Aminuddin (Malaysia) Dr. Khin Mar Yee (Myanmar) Dr. Fernando Tiongson Aldaba (the Philippines) Dr. Brenda S.A. Yeoh and Dr. Theodora Lam (Singapore) Dr. Ruttiya Bhula-or and Dr. Ratchada Jayagupta (Thailand) Dr. Le Kim Dzung (Viet Nam)TABLE OF CONTENTS HYPERLINK l

13、 _bookmark0 EXECUTIVE SUMMARY 13 HYPERLINK l _bookmark1 1.INTRODUCTION HYPERLINK l _bookmark1 17 HYPERLINK l _bookmark6 2. CONCEPTUAL FRAMEWORK HYPERLINK l _bookmark6 22 HYPERLINK l _bookmark6 2.1. Immigration Measures Across Four Categories HYPERLINK l _bookmark6 22 HYPERLINK l _bookmark6 2.1.1. En

14、try and stay measures HYPERLINK l _bookmark6 22 HYPERLINK l _bookmark7 2.1.2. Incorporation measures HYPERLINK l _bookmark7 23 HYPERLINK l _bookmark7 2.1.3. Exit measures HYPERLINK l _bookmark7 23 HYPERLINK l _bookmark7 2.1.4. Enforcement measures HYPERLINK l _bookmark7 23 HYPERLINK l _bookmark9 2.2

15、. Level of Analysis: Employment Permits HYPERLINK l _bookmark9 25 HYPERLINK l _bookmark11 3. METHODOLOGY HYPERLINK l _bookmark11 29 HYPERLINK l _bookmark11 3.1. Data Collection Methods HYPERLINK l _bookmark11 29 HYPERLINK l _bookmark11 3.1.1. Qualitative survey HYPERLINK l _bookmark11 29 HYPERLINK l

16、 _bookmark12 3.1.2. Structured key informant interviews HYPERLINK l _bookmark12 30 HYPERLINK l _bookmark12 3.1.3. National case study reports HYPERLINK l _bookmark12 30 HYPERLINK l _bookmark12 3.1.4. Inception, expert and validation meetings HYPERLINK l _bookmark12 30 HYPERLINK l _bookmark13 3.2. Ma

17、nagement, Research and Review Team HYPERLINK l _bookmark13 31 HYPERLINK l _bookmark14 4. MIGRATION MEASURES IN THE ASEAN REGION: A COMPARATIVE ANALYSIS ACROSS FOUR CATEGORIES HYPERLINK l _bookmark14 32 HYPERLINK l _bookmark15 4.1. Entry and Stay Measures HYPERLINK l _bookmark15 34 HYPERLINK l _bookm

18、ark15 4.1.1. Eligibility requirements HYPERLINK l _bookmark15 34 HYPERLINK l _bookmark25 4.1.2. Procedural requirements HYPERLINK l _bookmark25 57 HYPERLINK l _bookmark35 4.1.3. Terms of stay HYPERLINK l _bookmark35 78 HYPERLINK l _bookmark42 4.2. Incorporation measures HYPERLINK l _bookmark42 93 HY

19、PERLINK l _bookmark42 4.2.1. Social and health rights HYPERLINK l _bookmark42 93 HYPERLINK l _bookmark47 4.2.2. Judicial rights HYPERLINK l _bookmark47 104 HYPERLINK l _bookmark48 4.2.3. Civil rights HYPERLINK l _bookmark48 106 HYPERLINK l _bookmark55 4.3. Exit measures HYPERLINK l _bookmark55 120 H

20、YPERLINK l _bookmark55 4.3.1. Entry ban HYPERLINK l _bookmark55 120 HYPERLINK l _bookmark56 4.3.2. Requirement of prior permission to leave the country HYPERLINK l _bookmark56 121 HYPERLINK l _bookmark56 4.3.3. Penalties to employers/migrant workers returning to country of origin before contract exp

21、iration HYPERLINK l _bookmark56 121 HYPERLINK l _bookmark58 4.4. Enforcement Measures HYPERLINK l _bookmark58 123 HYPERLINK l _bookmark60 4.4.1. Registration controls HYPERLINK l _bookmark60 125 HYPERLINK l _bookmark62 4.4.2. Penalties on the migrant HYPERLINK l _bookmark62 127 HYPERLINK l _bookmark

22、64 4.4.3. Penalties for other actors HYPERLINK l _bookmark64 131 HYPERLINK l _bookmark66 5. MIGRATION MEASURES IN THE ASEAN REGION: AN ANALYSIS USING THE ILMA INDEX HYPERLINK l _bookmark66 135 HYPERLINK l _bookmark67 5.1. Score variations across all permits HYPERLINK l _bookmark67 136 HYPERLINK l _b

23、ookmark69 5.2. Score variations along skill levels HYPERLINK l _bookmark69 138 HYPERLINK l _bookmark72 5.3. Absolute and relative accessibility and corresponding benefits and rights HYPERLINK l _bookmark72 141 HYPERLINK l _bookmark73 5.4. Distribution of ILMA scores in ASEAN HYPERLINK l _bookmark73

24、142 HYPERLINK l _bookmark74 6. PROGRESS AND CHALLENGES IN IMPLEMENTATION 143 HYPERLINK l _bookmark74 6.1. Progress HYPERLINK l _bookmark74 143 HYPERLINK l _bookmark74 6.1.1. Regulatory and legal reforms and overhaul HYPERLINK l _bookmark74 143 HYPERLINK l _bookmark75 6.1.2. Creation of coordination

25、structures at various levels HYPERLINK l _bookmark75 145 HYPERLINK l _bookmark76 6.1.3. Investment in information technology (IT) infrastructure HYPERLINK l _bookmark76 146 HYPERLINK l _bookmark77 6.1.4. Achievement of key policy objectives HYPERLINK l _bookmark77 148 HYPERLINK l _bookmark79 6.2. Ch

26、allenges . HYPERLINK l _bookmark79 150 HYPERLINK l _bookmark79 6.2.1. Improving day-to-day management and operational efficiency HYPERLINK l _bookmark79 150 HYPERLINK l _bookmark80 6.2.3. Reducing regulatory non-compliance and strengthening enforcement efforts HYPERLINK l _bookmark80 154 HYPERLINK l

27、 _bookmark81 6.2.3. Addressing the presence of undocumented workers HYPERLINK l _bookmark81 157 HYPERLINK l _bookmark82 6.2.4. Mitigating the negative effect of increased immigration HYPERLINK l _bookmark82 158 HYPERLINK l _bookmark83 7.FORGING AN ASEAN WAY FORWARD: RECOMMENDATIONS AND OPPORTUNITIES

28、 FOR COOPERATION . HYPERLINK l _bookmark83 160 HYPERLINK l _bookmark84 8. ANNEXES HYPERLINK l _bookmark84 164LIST OF FIGURES HYPERLINK l _bookmark1 Figure 1: Number of Immigrants and Emigrants from the ASEAN Region, 1960-2017 HYPERLINK l _bookmark1 17 HYPERLINK l _bookmark2 Figure 2: Immigrant Popul

29、ation in ASEAN Member States, 1960-2017 HYPERLINK l _bookmark2 18 HYPERLINK l _bookmark2 Figure 3: Emigrant Population in ASEAN Member States, 1960-2017 HYPERLINK l _bookmark2 18 HYPERLINK l _bookmark3 Figure 4: Net Migration Rates in ASEAN Member States, As Percentage of Population, 1950-2020 HYPER

30、LINK l _bookmark3 19 HYPERLINK l _bookmark4 Figure 5: Purpose and Scope of the Study HYPERLINK l _bookmark4 20 HYPERLINK l _bookmark5 Figure 6: Definitions Used: Migrant Worker and Migration Measures HYPERLINK l _bookmark5 21 HYPERLINK l _bookmark9 Figure 7: Four Approaches in Migration Management i

31、n the ASEAN Region HYPERLINK l _bookmark9 25 HYPERLINK l _bookmark16 Figure 8: Eligibility Measures in ASEAN, Most Common to Least Common HYPERLINK l _bookmark16 35 HYPERLINK l _bookmark26 Figure 9: Procedural Measures in ASEAN, Most Common to Least Common HYPERLINK l _bookmark26 58 HYPERLINK l _boo

32、kmark29 Figure 10: Application Fees per AMS, Converted to Euros HYPERLINK l _bookmark29 66 HYPERLINK l _bookmark32 Figure 11: Labour Market Test, Quota, Levy and Security Deposit HYPERLINK l _bookmark32 72 HYPERLINK l _bookmark36 Figure 12: Terms of Stay Measures in ASEAN, Most Common to Least Commo

33、n HYPERLINK l _bookmark36 79 HYPERLINK l _bookmark43 Figure 13: Social and Health Rights Measures in ASEAN, Most Common to Least Common HYPERLINK l _bookmark43 94 HYPERLINK l _bookmark49 Figure 14: Civil Rights in ASEAN, Most Common to Least Common HYPERLINK l _bookmark49 107 HYPERLINK l _bookmark59

34、 Figure 15: Enforcement measures in ASEAN, Most Common to Least Common HYPERLINK l _bookmark59 124 HYPERLINK l _bookmark68 Figure 16: International Labour Market Access Index (ILMA) in the ASEAN Region HYPERLINK l _bookmark68 137 HYPERLINK l _bookmark69 Figure 17: International Labour Market Access

35、Index (ILMA), by skill level HYPERLINK l _bookmark69 138 HYPERLINK l _bookmark69 Figure 18: ILMA Scores on Main Policy Categories, by Skill Level HYPERLINK l _bookmark69 138 HYPERLINK l _bookmark70 Figure 19: ILMA Scores on Main Entry and Stay and Incorporation Measures, by Skill Level HYPERLINK l _

36、bookmark70 139 HYPERLINK l _bookmark71 Figure 20: Highest Prevalence of Selected Measures and Requirement, by Skill Levels HYPERLINK l _bookmark71 140 HYPERLINK l _bookmark73 Figure 21: Distribution of Labour Market Accessibility Scores HYPERLINK l _bookmark73 142 HYPERLINK l _bookmark78 Figure 22:

37、Progress and Challenges in Implementation HYPERLINK l _bookmark78 149LIST OF BOXES HYPERLINK l _bookmark17 Box 1: At par with the locals: Working in Myanmar as a migrant worker HYPERLINK l _bookmark17 36 HYPERLINK l _bookmark34 Box 2: Singapores Dependency Ratio Ceiling HYPERLINK l _bookmark34 76LIS

38、T OF TABLES HYPERLINK l _bookmark8 Table 1:Migration Measures Across Four Categories 24 HYPERLINK l _bookmark10 Table 2:Number, Name and Target Group of Employment Permit/s Issued in AMS 26 HYPERLINK l _bookmark12 Table 3:Methodology 30 HYPERLINK l _bookmark13 Table 4:Research Team 31 HYPERLINK l _b

39、ookmark15 Table 5:Frequency of Eligibility Measures, by Number of Permits and Countries 34 HYPERLINK l _bookmark18 Table 6:Requirement on Job Offer and Work Conditions 38 HYPERLINK l _bookmark19 Table 7:Restrictions Based on Sector or Occupation 41 HYPERLINK l _bookmark20 Table 8:Financial Capacity

40、Requirements, including Wage Threshold 45 HYPERLINK l _bookmark21 Table 9:Age Requirements 49 HYPERLINK l _bookmark22 Table 10: Eligibility Requirements by Nationality 51 HYPERLINK l _bookmark23 Table 11: MRA Related Restrictions in ASEAN 54 HYPERLINK l _bookmark24 Table 12: Gender, Marital and Lang

41、uage Requirements 56 HYPERLINK l _bookmark26 Table 13: Frequency of Measures under Procedural Requirements 58 HYPERLINK l _bookmark27 Table 14: Eligibility Requirements by Health 60 HYPERLINK l _bookmark28 Table 15: Types of Medical Checks Conducted 63 HYPERLINK l _bookmark30 Table 16: Recognition o

42、f Qualification Requirements 68 HYPERLINK l _bookmark31 Table 17: Issuance of Employment Permit and Special Visa/Permit for Entry 69 HYPERLINK l _bookmark33 Table 18: Bond Rates for Domestic Workers in Malaysia 75 HYPERLINK l _bookmark35 Table 19: Frequency of Terms of Stay Measures 78 HYPERLINK l _

43、bookmark37 Table 20: Initial Length and Total Length of Stay 80 HYPERLINK l _bookmark38 Table 21: Portability of Stay and Additional Requirements 83 HYPERLINK l _bookmark39 Table 22: Loss of Employment and Right to Stay 87 HYPERLINK l _bookmark40 Table 23: Timing and Frequency of Medical Tests 89 HY

44、PERLINK l _bookmark41 Table 24: Cap on the Total Length of Stay 91 HYPERLINK l _bookmark42 Table 25: Frequency of Measures under Social and Health Rights 93 HYPERLINK l _bookmark44 Table 26: Access to Social Security 97 HYPERLINK l _bookmark45 Table 27: Right to Equal Access to Public Educational In

45、stitutions and Services 99 HYPERLINK l _bookmark46 Table 28: Employers Obligation to Provide Adequate or Reasonable Accomodation 102 HYPERLINK l _bookmark47 Table 29: Access to Judicial Rights 104 HYPERLINK l _bookmark49 Table 30: Frequency of Measures Under Civil Rights 107 HYPERLINK l _bookmark50

46、Table 31: Eligibility to Apply to Permanent Residency and Citizenship 109 HYPERLINK l _bookmark51 Table 32: Family Reunification Rules in Singapore 111 HYPERLINK l _bookmark52 Table 33: Rights to Family Reunion and Spouse Access to Work 113 HYPERLINK l _bookmark53 Table 34: Right to Join or Form Tra

47、de Unions 116 HYPERLINK l _bookmark54 Table 35: Rights to Apply to Marry Citizens 118 HYPERLINK l _bookmark55 Table 36: Frequency of Measures under the Exit category 120 HYPERLINK l _bookmark57 Table 37: Exit Measures 122 HYPERLINK l _bookmark59 Table 38: Frequency of Measures under the Enforcement

48、Category 124 HYPERLINK l _bookmark61 Table 39: Presence of Registration Controls 126 HYPERLINK l _bookmark62 Table 40: Illegal Residence as Criminal or Administrative Offence 127 HYPERLINK l _bookmark63 Table 41: Penalties on Migrant Workers 129 HYPERLINK l _bookmark65 Table 42: Penalties for Other

49、Actors 133LIST OF ABBREVIATIONSACRAAccounting and Corporate Regulatory AuthorityAEPAlien Employment PermitAMSASEAN Member StatesASEANAssociation of Southeast Asian NationsASECASEAN SecretariatBRIBelt and Road InitiativeCPFCentral Provident FundDICADirectorate of Investment and Company Administration

50、E-READIEnhanced Regional EU-ASEAN Dialogue InstrumentEFMAEmployment of the Foreign Manpower ActEPEmployment PassEUEuropean UnionFRCForeigner Registration CertificateFWCMSForeign Workers Centralized Management SystemFWRCForeign Worker Registration CardHMOHealth Maintenance OrganisationICAImmigrant an

51、d Checkpoints AuthorityILMAInternational Labour Market Access IndexITInformation technologyMICMyanmar Investment CommissionMOLISAMinistry of Labour, Invalids and Social AffairsMOMMinistry of ManpowerMPAMigration Policy AnalysisMRAsMutual Recognition ArrangementsMYEMan-year entitlementNTSNon-traditio

52、nal sourcesOECDOrganisation for Economic Cooperation and DevelopmentOSOSOne Start One Stop ServicesPEPPersonalised Employment PassPRPermanent residencyPRCPhilippine Regulatory CommissionSLOM WGSenior Labour Officials Meetings Working Group on Progressive Labour Practices to Enhance the Competitivene

53、ss ofASEANSOCSOSocial Security OrganisationSSOSocial Security OfficeTKATenaga Kerja AsingWICAWork Injury Compensation ActWPLNWorkplace Literacy and NumeracyForeword byH.E. DAO NGOC DUNGMinister, Ministry of Labour, Invalids and Social Affairs of Viet NamI am very happy to note the finalization of th

54、e Comparative Study Report on the Law and Policies in the Management of Migrant workers in the ASEAN region which has provided a much needed comprehensive and cross-cutting view on the current handling of all migrant workers across skill levels in ASEAN Community.In 2019, The United Nation Departmen

55、t of Economic and Social Affairs estimated that there are currently 10 million international migrants residing in the ASEAN region, among whom nearly 6.8 million have migrated from another ASEAN Member State, the number will only continue to grow ever larger as the countries of ASEAN move closer tog

56、ether and all ASEAN countries are now becoming countries of destination. Therefore, the management of foreign workers in ASEAN is paid more attention by the Governments toward ensuring the promotion and protection of the rights of migrant workers.In this context, the Comparative Study Report on the

57、Law and Policies in the Management of Migrant workers in the ASEAN region have put forward the overall snapshots of the laws and regulations of migrant workers in ASEAN Member States as well as outlined the challenges unique to each national context as well as those common in the region. With the re

58、sult of these findings, we, the ASEAN labour sector, immigration, public security and other relevant sectoral bodies, can now looking forward to many areas of potential cooperation among ASEAN Member States to address the complex challenges created by the increasing immigration to ASEAN countries, b

59、ut also to benefit more fully from the skills and talents of incoming migrant workers.On this occasion, I would like to extend my appreciation for the support of the Enhanced Regional EU- ASEAN Dialogue Instrument (E-READI), the cooperation and participation of the ASEAN Member States, the efficient

60、 coordination of the ASEAN Secretariat and the active involvement of national and international experts all of them have been together with Ministry of Labour, Invalids and Social Affairs of Viet Nam in this initiative.With the aspiration to promote greater mobility of workers within the ASEAN regio