政策專題研究系列
Policy Research Series
諮詢文件五：打擊黑工 Consultation Paper 5: Combating Illegal Employment
撮要
黑工問題
1. 從入境事務處的資料顯示，2002年有3534名非法勞工及918名僱主被捕，2003年則有5317名非法勞工及1078名僱主被捕；非法勞工的數字上升逾五成。而非法勞工當中，又以內地人來港非法工作的居多。2003年首9個月的數字已超出2002年的全年總數。此外，2002年10月-2003年9月的過去12個月內，有4745人因在港涉嫌非法工作而被拘捕的內地人士，當中有2830人，即近六成是持內地商務簽證來港，這點亦份外令人關注。
政府措施
2. 針對非法勞工情況，入境事務處與勞工處除加強進行巡查活動外，亦承諾設置容貌鑑別系統，識別企圖以虛假身分入境的訪客，以及加強與內地當局保持密切聯繫，確保凡被懷疑涉及非法活動，或因涉及非法活動而被拘捕或檢控的內地居民日後所提出的入境申請，會被小心審核。
我們的建議
從 “黑工”源頭著手
3.
不過，在政府努力加強巡查的成績之下，內地居民來港非法工作的情況仍如此嚴重，我們建議政府應研究開拓其他方法以防止及阻嚇非法僱用非法勞工的情況，持續惡法下去。政府不應再因循、被動地，等
“黑工”來港然再去捉人，而應從打擊 “黑工”的源頭開始。
加強判刑指引 阻嚇僱主非法聘用 “黑工”
4.
我們建議司法機構應適當地進行一些覆檢，讓較高級的法庭可作出一些判刑指引，如聘請非法勞工在港工作，可判即時入獄一段時期，這能讓各級法庭和社會均能產生一種共識：即
“非法僱用 “黑工”是會坐監的”，因而有效阻嚇僱主因經濟利業而非法聘用 “黑工”。
設定「發牌計分制」 阻嚇僱主聘用 “黑工”
5.
據入境事務處曾就非法勞工的個案作分析，發現被拘捕的人士，除了在建築地盤工作外，有很多是受聘為裝修工人、屋宇維修工人、售貨員、搬運工人、酒樓食肆雜工及清潔工人等低技術性行業，後者有很多是在需要領有牌照的食肆、酒店賓館及公眾娛樂場所等地點工作。
6. 我們建議政府研究參考房委會及政府工程承建商的管理制度，針對需要申領特別經營牌照，包括持牌酒店、賓館、酒樓食肆、食品製造場、安老院的經營者，施加相應的發牌條件，規定經營者不應容許非法勞工在其經營場地非法工作，否則將可按計分制度，按違法的嚴重程度有不同程度的紀律處分，以阻嚇這類行業的僱主僱用非法勞工。
7. 相應的紀律處分包括：
�� 撤銷牌照；
�� 不批准續牌；
�� 暫時吊銷牌照（停牌一段時間），由三個月至六個月不等（視乎違法嚴重程度）；
�� 施加續牌條件；
��
書面警告
8.
我們相信，在現時審批發牌制度中加入「不可僱用非法勞工」的條件，以考慮是否發牌或續牌或其他紀律處分，將令大部份經營者更加審慎考慮僱用非法勞工的後果，除會面對監禁或罰款以外，更可能會直接影響其經營活動，因而放棄僱用非法勞工的想法，不會輕易以身試法。
Abstract
Combat Illegal Employment
Policy
Illegal Employment
1. According to the statistics of the Immigration Department, there are
3534 illegal employees and 918 employers arrested in 2002. The figures
rise to 5317 and 1078 respectively in 2003. As can be seen, the number
of illegal employees rose more than 50% from 2002 to 2003. Also, illegal
employees from the Mainland China are among them the highest percentage.
Moreover, to our surprise, in the past 12 months between October 2002
and September 2003, about 60% of the Mainland illegal employees came to
Hong Kong on Business Visas.
Government
measurements
2. In order to combat illegal employment, the Immigration Department and
the Labour Department have jointly set up anti-illegal employment activities.
The Immigration has promised to implement a facial recognition system
to detect visitors seeking entry on false identities. In addition the
Immigration will maintain close liaison with the Mainland authorities
so as to ensure that future visit applications of Mainland residents suspected,
arrested or prosecuted for involvement in illegal activities would be
carefully scrutinized.
.
Our suggestions
Start from the source of illegal employees
3. However, Mainland residents coming over to Hong Kong and work illegally
is still a problem to us even under the tough anti-illegal employment
actions by the Government. Our Government should not wait for the illegal
employees to come over to Hong Kong and arrest them. Instead, our Government
should consider some positive measures to combat the source of illegal
employees.
Increase
judgement guidelines to immediate imprisonment
4. We suggest that the Judiciary should review some of the illegal employment
court cases so as to allow for judgement guidelines to be made by higher
courts in which employers who employ illegal employees may subject to
imprisonment without delay. Tough guidelines as such will allow for lower
courts and our community to build up consensus that employing illegal
employees will result in immediate imprisonment. Thus, this will prevent
our employers from employing illegal employees more effectively.
Set up Licensing
Point System to prevent licensee from employing illegal employees
5.
Statistics from the Immigration Department has shown that apart from construction
works, illegal employees were also found working in restaurants, hotels,
hostels, food manufacturing sites, Kara OK premises and retailing shops
etc.
6. We propose to the Government to consider setting up a Licensing Point System to allow for the Government to penalize the licensee for having employed illegal employees working in the respected premises. The Government can take away the license in extreme case or to suspend the license for a short period of time depends on the points accumulated based on his bad record of employing illegal employees. This is to make reference from the Works Approval Management System currently implemented by the Housing Authority and Works Department.
7. Other penalties include imposing additional criteria for license approval or license extension or written warning in the beginning.
8. As the illegal employment problem is getting more serious, we believe it is time for us to consider taking into account of illegal employment when we scrutinize license approval given to various types of business. This is to ensure that the businessman or the conductor of the business will pay serious attention not to violate the law, thus not to employ illegal employees after taking into consideration of the possible tough imprisonment penalty as well as the risk of losing the license to conduct business.
