The Military Reform of Republic of China (Taiwan) Yang Chih-Chinag(PSPD Intern)
In December 13, 2011, Taiwan Legislative Yuan (National Assembly) went through the entire three-reading procedure and passed the Military Service Reform Acti. The main purpose of the Military Service Reform Act was to shift Taiwanese military service from conscription to voluntary systemii.
1. Three different Taiwanese military reforms ‧ There were three different Taiwanese military reform programs. Each of them started from different period but they had the similar aims which were to reduce the total among of armed force and change Taiwanese military system from conscription to voluntary.
* KMT – Kuomintang. * DPP – Democratic Progressive Party. Source: Composed by author
2. The reasons of military reform ‧
After the retreat from mainland China in 1949, Republic of China remained the total amount of national armed force in 600 thousands. After almost 20 years, the early military reforms from 1969 to 1996 were cut the amount from 600 thousands to 450 thousandsiii.
‧
According to the 2009 R.O.C (Taiwan) National Defense Report, there are three reasons that government decided to reduce the total armed force and change 1
Taiwanese military service from conscription to voluntary systemiv. 1) The necessary of modernization and specialization for national defense system, in the other word, downsize of the unnecessary of large number traditional military manpowerv 2) The public opinion for reducing the length of compulsory military service and the changed international trend in national military service system toward voluntary system 3) The structural change of Taiwanese population, which Taiwanese population could not afford to maintain the big standing armed force after 2016, according to the Taiwanese Ministry of the Interior’s data
3. Taiwanese Military Reform History 1) Jingshi military reform ：This military reform was separated into three different steps. 1) 1st Step：It started from July 1st, 1997 and it aimed to prepare the military organizations merging and reducing. 2) 2nd Step：It started from July 1st, 1998 and it aimed to merge and reduce the military armed force. 3) 3rd Step：It started from July 1st, 1999 and it aimed to reduce the total armed force into 385,000.
2) Jingjin Military Reform ：This military reform started from January, 2004 and it was separated into two steps. 1) 1st Step：It started from January, 2004 and it aimed to reduce the total among of armed force from 385,000 to 296,000 and adjusted the proportion between commission officer, non-commission officer and solider into 1:2:2. The 1st Step finished at June, 2005vi. 2) 2nd Step：It started from July, 2005 and it aimed to reduce the total among of armed force from 296,000 to 275,000. Moreover, The 2nd Step originally should be ended in 2008 but it was extended to 2011. It was extended because the reform faced some difficulties from the inside of military departments.vii
3) Jingtsi Military Reform 2
：This military reform started from 2011 and it aimed to reduce the total armed force from 275,000 to 215,000. In addition, it aimed to reduce the general officer’s number from 393 to 292 (25%).
4. Taiwanese National Military Service Reform Timetable Year
2008
2009
2010
2011
2012
2013
2014
Voluntary
60%
65%
70%
75%
80%
90%
100%
Compulsory
40%
35%
30%
25%
20%
10%
0%
Source: 蔣才選， 《我國兵役制度之研究-全面募兵制改革的預評估》 ，東海大學，2009 年，81 頁。
5. R.O.C (Taiwan) Military Reform Program Step
Period
Before reform
Before 1997
Jingshi military reform
1997 2001
Jingjin military reform
2004 2011
Armed forces reduced 450,000 450,000 ↓ 385,000
385,000 ↓ 275,000
Length of Military
Reform actions
Service Before 1997 – 24months 2000 15% –22 months
2000 –*Substitute Military Service could be chose to serve
2004 – 20 months
2004 –Started voluntary soldier recruitment
2005 –18 months
2005 –Increased the voluntary’s salary 2008 –Extended the voluntary service contract length from 3 years to 4 years 2008 –Changed the voluntary
29% 2006 –16 months 2007 –14 months 2008 3
recruitment limitation from
Jingtsi military reform
2011 2014
275,000 ↓ 215,000
– 12months
college graduated to high school graduated
2013 22% – 4 months
2013 –Shift the conscription service to voluntary service
* Substitute Military Service – People who fit these five situations as following: 1. People whose health condition is not suitable for military service (confirmed by certain hospital). 2. People who own the professional specialty which is needed in public service. 3. People who own the social worker certificate. 4. People whose family condition is not suitable for military service (confirmed by Conscription Agency Ministry). viii
5. People whose religion (Jehovah’s Witnesses) condition is not suitable for military service . Source: Table composed by author.
6. The Content of Military Service Reform Act ‧ Short time military training：After January 1, 2013, every Taiwanese male citizen who is under the age of 19 can carry out his duty for four months military training instead of one year military serviceix. ‧ Combination of conscription and voluntary system：In order to prevent the insufficiency of voluntary recruitment (according to the military reform program, the total national armed force should remain in 215,000 military personnel), National Defense Department can conduct the conscription to recruit soldiers to fulfill the shortagex.
7. The Military Service after 2013 ‧ Start from January 1, 2013, people who were born after January 1, 1994 must take 4 months military service instead of 1 year military servicexi. ‧ Start from January 1, 2013, people who were born before December 31, 1993 and did not finish the 1 year military service, should serve 1 year in a substitute military servicexii. ‧ After 2013, people can choose either to serve the 4 months military training during summer vacation or to fulfill the duty after their studies. ‧ Four months military training can be divided into 2 months for 2 summer vacation. 4
8. Four Months Military Training Content ‧ Two months basic recruit training and two months specialty training.
9. Total Armed Force in Taiwan after 2013 ‧ Standing armed forces：Maximum 215,000 to minimal 196,000 military personnel (Army, Navy, Air force and Military police)xiii.
Taiwanese military system “Before and After” the Reform ‧ This table shows the different reduce amount in different military reform periods.
Period
Army
Navy
Air force
Military Police
Total armed force
1997
306,000
60,000
60,000
15,000
441,000
↓ 2001
↓ 261,000
↓ 56,000
↓ 55,000
↓ 15,000
↓ 387,000
Reduce %
15.7%
6.5%
8.5%
0%
12.2%
2004 ↓ 2011
261,000 ↓ 156,000
56,000 ↓ 38,000
55,000 ↓ 38,000
15,000 ↓ 13,000
387,000 ↓ 245,000
Reduce %
40.3%
32.2%
31%
13.4%
36.6%
Jingtsi
2011 ↓
156,000 ↓
38,000 ↓
38,000 ↓
13,000 ↓
245,000 ↓
Program
2013
130,000
38,000
35,000
5,000
208,000
Reduce %
16.7%
0%
8.9%
61.4%
17.2%
Program
Jingshi Program
Jingjin Program
Source:《國防部擬實施全募兵制對政府財政及國軍軍力之影響》 ，〈監察院 97 年度專案調查研究 報告〉，中華民國監察院，2008 年，129 頁。
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10. Annual National Defense Budget 1) The Taiwanese annual national defense budget
Year
Military Budget (US$ bill)
% of GDP
% of total gov. spending
2004
7.8
2.4
16.7
2005
8.0
2.3
16.1
2006
7.8
2.1
16.1
2007
9.2
2.4
18.7
2008
10.5
2.5
20.2
2009
9.6
2.7
17.6
2010
9.3
2.2
17.3
2011
10.2
2.1
16.6
Source: Shirley A. Kan, “Congressional Research Service”, Taiwan: Major U.S. Arms Sales Since 1990, June 3, 2011.
‧ After 2008 government changed, KMT (Kuomintang) government increased the military budget to fulfill the requirement of arms deal with U.S in 2008xiv. 2) The Division of the Military Spending Personnel Cost*1
Military Investments*2
Operation Cost*3
Other
2004
50.24%
25.36%
22.54%
1.86%
2005
55.34%
23.21%
19.63%
1.82%
2006
57.04%
21.52%
19.59%
1.85%
2007
45.41%
28.48%
24.57%
1.54%
2008
37.89%
35.94%
24.79%
1.38%
2009
40.02%
28.42%
30.11%
1.45%
2010
45.48%
28.07%
24.90%
1.55%
2011
47.52%
27.73%
23.24%
1.51%
*1. Personnel Cost includes items as following: Salary, insurance, staple and non-staple costs, retirement founds and subsidies for military dependents. *2. Military Investment includes items as following: Procurement, research and development of defensive weapons, and military projects. *3. Operational Cost includes items as following: primary combat equipment maintenance, operational training, logistical preparations and other “war-fighting capability sustainment”
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requirements. Source: Composed by author, referring to 2009 and 2011 R.O.C (Taiwan) National Defense Report.
‧ According to the R.O.C (Taiwan) National Defense Report, the National Defense budget follows the principle balance as 40% Personnel Cost, 30% Military Investment and 30% Operation Cost. ‧ In order to successful shift national military service from conscription to voluntary system, the personnel cost should be maintained around 40%xv. ‧ The high percentage of military investment cost in 2008 (35.94%) was because the arms sale between U.S and Taiwanxvi. After that, the percentage of personnel cost was increased and military investment cost was decreased. 3) The difference between salary in military personnel cost and the total amount in national armed force in different ranks
Commission officer
Non-Commission officer
Soldier
Salary in military personnel Cost*
45%
31%
22%
Armed force in different ranks
40,000
80,000
80,000
% of national total armed force
20%
40%
40%
* Salary in military personnel cost: The military personnel salary standard after 2005 general increased. Source: Composed by author, source referring to 2009 R.O.C (Taiwan) National Defense Report and 鍾 華文、劉德忠， 《第三章 募兵制對國防財力運用之影響》 ， 〈國軍推動全募兵制面臨之困境與策進 方案〉，國防大學，2009 年 9 月。
11. The Treatment of Voluntary Military 1) This table shows the salary difference between Voluntary and Conscription ‧ In order to attract people to join the voluntary military system, the voluntary salary was increased in 2005 by National Defense Ministryxvii.
Ranks
Voluntary
Conscription
Taiwanese
(USD*)
(USD)
minimum wage
7
(2012) Soldier
Non-commis sion officer
Private
933.9
197
Private first class
986.3
215.3
Superior Private
1038.7
234.2
Corporal
1153.3
356.6
Staff sergeant
1268.4
-
Sergeant
1378.4
-
Second lieutenant
1428.9
520.9
Lieutenant
1521.3
-
Captain
1690.6
-
Major
1895.3
-
Lieutenant Colonel
2205
-
Colonel
2846.6
-
Major General
4067.3
-
Lieutenant General
5423
-
General
6100.9
-
Commission officer
628.3 USD
* NTD/USD Referring to the exchange rate in 26 January, 2012. Source: Composed by author, referred to R.O.C Recruitment Center of National Armed Forces Website, http://rdrc.mnd.gov.tw/rdrc/index.aspx.
2) Voluntary Military service parents income between officer and soldier Parents Yearly Income (USD)
Over 50,000
33,000 – 50,000
26,000 – 33,000
16,000 – 26,000
Under 16,000
Commissioned officer
1%
16%
43%
30%
9%
Non-commissioned officer
2.8%
6.7%
14.4%
32.7%
43.3%
Soldier
11.4%
11.4%
18.1%
26.2%
32.9%
Average rate
5.1%
11.4%
25.2%
29.6%
28.4%
Source: 蔣才選， 《我國兵役制度之研究-全面募兵制改革的預評估》 ，東海大學，2009 年，106 頁。
3) This table shows the parent educational background difference between voluntary officer and soldier： Parents
Maste
University
College 8
High
Junior
Elementary
Educational Background
r degre e
degree
degree
School
High School
School
Commissioned officer
1.5%
22.2%
6.7%
32.3%
23.6%
13%
Non-commissione d officer
0.9%
5%
6.4%
42.5%
28.2%
16.1%
Soldier
3.9%
13.1%
11.7%
34.3%
22%
11.9%
Average rate
2.1%
13.4%
8.3%
36.4%
24.6%
13.7%
Source: 蔣才選， 《我國兵役制度之研究-全面募兵制改革的預評估》 ，東海大學，2009 年，106 頁。
12. Attitude towards the Military Service and Military Service Reform Act 1) After the Military Service Reform Act was passed, Taiwanese Common Wealth Magazine conducted a survey about military service in 2011.The survey showed that the percentage of people who willing to fight in the battle ground for the country was 38.7, on the other hand, people who do not willing to fight for Taiwan when war break out was 44.3xviii. 2) According to the survey, people who agree and are willing to serve one year military service was over 60 percentxix. 3) According to U.S Defense Department’s “Military and Security Developments Involving the People’s Republic of China 2011”, it mentioned the Taiwanese military reform and military service is going to be changed from conscription to voluntary system. In the order word, Taiwanese defense ability would be different from the in the near futurexx. 4) According to the former Premier of R.O.C (Taiwan) Tang Fei’s memoirs, he mentioned the Taiwanese military reform was been conducted hastily. The combination of conscription and voluntary system would be more suitable for the current situation in Taiwan, on the other hand, voluntary system would increase a huge amount of military personnel cost which government might not able to afford itxxi.
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<Footnote> i
中國時報，《兵役法修正案三讀 停徵兵制後役男改服四個月軍訓役》 ，2011 年 12 月 14 日， http://news.chinatimes.com/focus/11050105/112011121400095.html。 ii 中華民國立法院國會圖書館， 《修正兵役法》 ，2011 年 12 月 13 日， http://npl.ly.gov.tw/do/www/FileViewer?id=95。 iii 蔣才選，《我國兵役制度之研究-全面募兵制改革的預評估》，東海大學，2009 年，70 頁。 iv 中華民國九十八年國防報告書， 《第二篇、第五章 兵役制度》 ，http://163.29.3.66/index_01.html。 v 華夏經緯網， 《台灣軍隊推廣募兵制度暗藏玄機》 ，2003 年 07 月 08 日， http://www.huaxia.com/20030708/00041217.html。 vi 韓曜庭，《國軍組織的在精進與調整 四年期國防總檢討 的觀察》 ，〈八十六週年校慶基礎學術 暨通識教育研討會〉，國防大學，2006 年月 5 月 14 日， http://www2.cma.edu.tw/u_edu/dep_politics/file/paper/86PO20.pdf。 vii 中國新聞網， 《精進案推動受阻 台軍減裁將延至 2011 年實施》 ，2003 年 8 月 6 日， http://big5.chinanews.com:89/n/2003-08-06/26/332485.html。 viii Republic of China National Conscription Agency Ministry of the Interior, Substitute Military Service, http://www.nca.gov.tw/web/page.asp?t=M0601. ix 中華民國立法院國會圖書館， 《修正兵役法》 ，2011 年 12 月 13 日， http://npl.ly.gov.tw/do/www/FileViewer?id=95。 x Ibid. xi 今日新聞網， 《新募兵制！大專兵服四個月軍事訓練 可選暑假或畢業後》 ，2011 年 12 月 30 日， http://www.nownews.com/2011/12/30/91-2771513.htm。 xii Ibid. xiii 中華民國國防部網站，《重大政策》 ，〈募兵制〉， http://www.mnd.gov.tw/Publish.aspx?cnid=2577&p=33571。 xiv September, 2008, under Gorge W. Bush Administration, 6.4 billions arms sale to Taiwanese government was passed by U.S congress. CNN, “U.S to sell $6.4 billion in weapons to Taiwan” 10, 03, 2008, http://articles.cnn.com/2008-10-03/world/us.taiwan.arms.deal_1_taiwan-relations-act-taiwan-strait-chin a-claims-taiwan?_s=PM:WORLD. xv 徐中慶，《我國最適兵役制度之研究》 ，國立暨南大學，2008 年 6 月，頁 82。 xvi September, 2008, under Gorge W. Bush Administration, 6.4 billions arms sale to Taiwanese government was passed by U.S congress. CNN, “U.S to sell $6.4 billion in weapons to Taiwan” 10, 03, 2008, http://articles.cnn.com/2008-10-03/world/us.taiwan.arms.deal_1_taiwan-relations-act-taiwan-strait-chin a-claims-taiwan?_s=PM:WORLD. xvii 中民國國防部網站，《人力司役政處「國軍擴大招募志願役士兵」說明會》， 〈記者會參考資 料〉 ，http://www.cw.com.tw/article/article.action?id=5028243&idSubChannel=58。 xviii 天下雜誌，《不一樣愛國觀，近五成年輕人不願為國上戰場》，2011 年 12 月期， http://www.cw.com.tw/article/article.action?id=5028358。 xix Ibid. xx “Annual Report to Congress”, Military and Security Developments Involving the People’s Republic of China 2011,p 47, http://www.defense.gov/pubs/pdfs/2011_cmpr_final.pdf. xxi 聯合晚報，《唐飛籲國人莫要求限時實施募兵制》 ，2011 年 8 月 17 日， http://www.wretch.cc/blog/chaoyisun/18945966。
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