The Indigenous World 2025: Taiwan

Written on 25 April 2025. Posted in Taiwan

The officially recognized Indigenous population of Taiwan numbers 611,674 people, or 2.6% of the total population in 2024.^[1]

Sixteen distinct Indigenous Peoples are officially recognized: These peoples enjoy representation at all levels of government, from parliament to central government's Council of Indigenous Peoples (CIP) and municipal governments, city and county councillors, and local district and township representatives.

Eleven lowland Indigenous Peoples’ groups (Pingpu) are not recognized as such by the government and hence not extended the same rights as the recognized groups. They are thus also excluded from CIP policies and programmes. The eleven unrecognized peoples are: Babuza, Arikun, Lloa, Kaxabu, Ketagalan, Makatao, Papora, Pazeh, Siraya, Taokas^[2] and Taivoan.

Most of Taiwan’s Indigenous Peoples originally lived in the central mountains, on the east coast and in the south. However, nowadays over half of the Indigenous population lives in the urban areas of the country.

The main challenges facing Indigenous Peoples in Taiwan are their rapidly disappearing cultures and languages, encroachment onto their traditional domain, the denial of their rights and the exclusion of the lowland (Pingpu) Indigenous Peoples.

The CIP is the State agency responsible for Indigenous Peoples. Taiwan has adopted a number of laws designed to protect Indigenous Peoples’ rights, including the Constitutional Amendments on Indigenous representation in the Legislative Assembly, protection of language and culture and political participation (2000); the Indigenous Peoples Basic Law (2005); the Education Act for Indigenous Peoples (2004); the Status Act for Indigenous Peoples (2001); the Regulations regarding Recognition of Indigenous Peoples (2002); the Name Act (2003); and the Indigenous Languages Development Act (2017). Unfortunately, serious discrepancies and contradictions in the legislation, coupled with only partial implementation of these laws, has stymied progress towards the self-governance of Taiwan’s Indigenous Peoples.

Since Taiwan is not a member of the United Nations it is not party to UN human rights instruments.

This article is part of the 39^th edition of The Indigenous World, a yearly overview produced by IWGIA that serves to document and report on the developments Indigenous Peoples have experienced. The photo above is of an Indigenous activist Funa-ay Claver, a Bontok Igorot, standing alongside Indigenous youth activists and others. They are protesting against the repressive laws and human rights violations suffered through the actions and projects of the Government of the Philippines and other actors against Indigenous Peoples at President Marcos Jr’s national address on 22 July 2024 in Quezon City, Philippines. The photo was taken by Katribu Kalipunan ng Katutubong Mamamayan ng Pilipinas and is the cover of The Indigenous World 2025 where this article is featured. Find The Indigenous World 2025 in full here

Recovering Indigenous names

On 14 May, the Taiwanese parliament passed an amendment to the “Name Act” (姓名條例) allowing Indigenous Peoples to have their names listed exclusively in Indigenous languages (Romanized script) on their ID document.^[3]

The struggle started in in 2021 when eight young Indigenous activists filed lawsuits to have their names on ID documents written in Indigenous languages. In November 2023, Bawtu Payen of the Tayal people won the first case and became the first person in Taiwan to have a Romanized Indigenous name on their ID document.^[4] CIP and some other government ministries provided them with support during the lawsuit, arguing that if Indigenous persons had their name listed in their Indigenous language it would help sustain and preserve Taiwan's linguistic and cultural diversity.

The lawsuits and the outcome of Bawtu Payen’s case were studied and referred to by the legislators during the parliamentary deliberations.

Before the court challenge, Taiwan’s Indigenous Peoples were required to have their name converted to Chinese language characters, which distorts how the name is pronounced and bears no relation to its original meaning. This legislation change is a step toward recognizing Indigenous culture and helps to assert their dignity and self-identity.

Plains Indigenous Groups apply for status recognition

Based on the Constitutional Court's Interpretation No. 17 on 28 October 2022^[5] (for more information on the ruling and its implications, see The Indigenous World 2023), seven Indigenous groups that have not yet been officially recognized by Taiwan government: the Plains Indigenous Peoples, also known as Pingpu groups (平埔族群) – including Siraya, Pazeh^[6], Kaxabu, Taokas, Tavorlong, Papora^[7], and Makatao – have separately submitted applications to the CIP to be formally recognized as Indigenous Peoples of Taiwan, along with the other 16 already recognized peoples.

Recognition of the Pingpu groups as Indigenous Peoples still faces many barriers, discrimination, and the government's policy of denial and exclusion, even after three decades of advocacy work fighting for their IP rights, as the CIP and even some of the already recognized Indigenous Peoples continue to object to granting them the formal status of Indigenous Peoples.

In contradiction to the principle of self-identification, the process of formal recognition of a people as an Indigenous group requires a long and complex bureaucratic process in Taiwan that includes an application submitted collectively as an ethnic group, and then an evaluation and verification process.

Yapasuyongu Poiconu, the CIP official receiving the formal application from the Makatao people of southern Taiwan in November,^[8] described the steps required under the Indigenous Peoples Basic Law for a group to be formally recognized as Indigenous. The CIP appoints a committee of experts and academics to conduct studies into each of the applicant Indigenous groups' language, culture, self-identity as an ethnic group, traditions and rituals. After reviewing the studies, the committee comes with a decision on whether the applicant group could be granted Indigenous status. If the decision is to grant the status, the CIP submits a formal report to central government, thus formally recognizing the groups as Indigenous.

Poiconu stated that the Constitutional Court's 2022 ruling requires relevant laws to be established by 18 October 2025. The review is currently underway in the government's Executive branch, with plans to complete it during the first legislative session of 2025. This will proceed alongside the group's application, which cannot be completed before the new laws are passed.

The Plains Indigenous groups hope that their formal recognition by the government will provide legal grounds to protect their cultural, linguistic, and land rights, preserve their identity, and for them to be able to pass this on to future generations.

Safeguarding Indigenous Peoples’ rights in the implementation of 2050 Net-Zero Emissions policy

Taiwan is moving forward with its “Pathway to Net-Zero Emissions in 2050” policy, which requires large enterprises to conduct carbon audits and implement carbon reduction measures.

If companies are unable to reduce their emissions further, they must purchase carbon credits from sellers with natural carbon sinks. While some environmentalists and Indigenous rights activists have been critical as to the carbon credit approach, the mainstream political forces, including some Indigenous politicians have – in the spirit of promoting economic development – been advocating for it with promises of financial benefits to the Indigenous communities, whose forests become a crucial resource.

Experts point out that if 20,000 hectares of Indigenous reserve land are developed for natural carbon sinks, it could account for between 100,000 and several million metric tons of carbon sink by 2030.^[9]

In August, the Taiwanese parliament held a public hearing on Indigenous carbon sinks^[10] at which legislator Saidhai Tahovecahe of the Rukai people pointed out that the “Climate Change Response Act” mandates the government to work together with Indigenous Peoples to promote and manage natural carbon sinks in Indigenous regions. Moreover, Taiwan's 2050 Natural Carbon Sink Key Strategy Plan – Just Transition Strategy outlines the need to safeguard Indigenous Peoples' rights.^[11] Establishing a mechanism for Indigenous participation is thus a key factor in ensuring a just transition for the implementation of Net-Zero actions. However, the availability of means and ensuring work channels for Indigenous Peoples to participate in the formulation of policies around a just transition are issues of concern that require continuous oversight from all sectors.

Parliament denies pay to CIP members

On 13 December, the Taiwanese parliament passed an amendment to the provisions of the Organization Act of the Council of Indigenous Peoples. The amendment stipulates that the Council's chair shall be alternately held by mountain and lowland Indigenous Peoples, and the appointed Council members representing each group would become unpaid positions.^[12]

The statement issued by the CIP points out that the amendment – proposed by the opposition party Kuomintang (KMT) and independent legislators and voted through at its third reading – makes a distinction between mountain and lowland Indigenous Peoples that originated in the colonial-era classification and lacks historical justice and rationale. These classifications contradict the development of Indigenous Peoples' autonomy and violate the spirit of the Constitutional amendment, which ensures “the protection of ethnic rights according to the will of the people”. The CIP said it would make an assessment and take legal action in accordance with Constitutional procedures.^[13]

In response to the passed amendment, representatives from various Indigenous regional assembly councils, including those of the Paiwan, Seediq, and Thao communities, held a joint press conference. They pointed out that, following the amendment, representatives from selected ethnic groups could only serve as advisory consultants and would not be able to perform their duties effectively, nor implement the policies needed for their communities.^[14]

Jason Pan Adawai is a journalist and director of the Indigenous rights activist organization, TARA-Pingpu, and former Executive Council member of the Asia Indigenous Peoples Pact (AIPP). Jason is an Indigenous Pazeh (one of the lowland Pingpu groups) from Liyutan Village, Miaoli County, Taiwan.

Aidu Mali, Papora, Hazoban Community. The Director of International Affairs, Papora Indigenous Development Association (PIDA).

Kaisanan Ahuan, Chief Executive Officer of Central Taiwan Ping Pu Indigenous Groups Youth Alliance. Kaisanan is an Indigenous Taokas (one of the lowland Pingpu groups) from Waraoral Village, Nantou County.

This article is part of the 39^th edition of The Indigenous World, a yearly overview produced by IWGIA that serves to document and report on the developments Indigenous Peoples have experienced. The photo above is of an Indigenous activist Funa-ay Claver, a Bontok Igorot, standing alongside Indigenous youth activists and others. They are protesting against the repressive laws and human rights violations suffered through the actions and projects of the Government of the Philippines and other actors against Indigenous Peoples at President Marcos Jr’s national address on 22 July 2024 in Quezon City, Philippines. The photo was taken by Katribu Kalipunan ng Katutubong Mamamayan ng Pilipinas and is the cover of The Indigenous World 2025 where this article is featured. Find The Indigenous World 2025 in full here

Notes and references

^[1] Taiwan Ministry of the Interior Indigenous Population Information, https://www.moi.gov.tw/News_Content.aspx?n=9&s=325345

^[2] “Taivoan proposed ethnic identification under the name ‘Taivoan’", Taiwan Indigenous Television, 22 August 2024. https://news.ipcf.org.tw/136056

^[3] “The bill on Indigenous people's names, allowing the use of Indigenous scripts for names”, Lawbank,15 May 2024. https://www.lawbank.com.tw/news/NewsContent.aspx?NID=202107.00

^[4] “The first case in Taiwan of an ID card listing an Indigenous name in Romanized Script”, Central News Agency, 17 November 2023 https://www.cna.com.tw/news/ahel/202311170189.aspx

^[5] “Constitutional Interpretation No. 17 of 2022 (Siraya Indigenous Identity Case)”, Constitutional Court Website, 28 October 2022. https://cons.judicial.gov.tw/docdata.aspx?fid=38&id=310021

^[6] “The Pazeh people submits recognition application”, Taiwan Indigenous Television, 9 May 2024.

https://news.ipcf.org.tw/124383

^[7] “The central region's Papora people submits recognition application”, Taiwan Indigenous Television, 6 October 2024. https://news.ipcf.org.tw/141681

^[8] “Makatao community files for official indigenous status”, Taipei Times News, 9 November 2024. https://www.taipeitimes.com/News/taiwan/archives/2024/11/09/2003826630

^[9] 從保留、造林、禁伐邁向種碳的原住民族土地：原鄉碳匯ESG公益平台 “From Conservation, Afforestation, and Logging Bans to Carbon Planting on Indigenous Lands: The Indigenous Carbon Sink ESG Public Welfare Platform”, Sizhi Community College News, 3 August 2024. https://xzcu.org/archives/11897

^[10] “Indigenous Reserved Lands Involved in Natural Carbon Sinks: Legislators Urge Zero-Carbon Transition to Ensure Fair Transformation”, Central News Agency, 2 August 2024. https://netzero.cna.com.tw/news/202408020297/

^[11] “Promoting 2050 Net Zero Emissions: The Key Role of Indigenous Natural Carbon Sinks”, Taiwan Indigenous Television, 02 August 2024. https://news.ipcf.org.tw/133643

^[12] 立院三讀修正原民會組織法 聘用委員改無給職 “Legislative Yuan passed the third reading on amendment to the Council of Indigenous Peoples Organization Act, changing the status of committee members from paid to unpaid positions”, Central News Agency, 13 December 2024. https://www.cna.com.tw/news/aipl/202412130154.aspx

^[13] 立院三讀主委山地平地輪流當，原民會研議覆議或釋憲 “Legislative Yuan passed the third reading on amendment, rotating positions of chairperson between mountain and lowland Indigenous representatives. Council of Indigenous Peoples seeks for reconsideration or constitutional interpretation”, Central News Agency, 13 December 2024. https://www.cna.com.tw/news/aipl/202412130190.aspx

^[14] 民族議會代表：原民會組織法修法應尊重族群意見 “Indigenous Assembly Council Representatives: Amendments to the Council of Indigenous Peoples Organization Act should respect each group’s input and suggestions”, Taiwan Indigenous Television, 6 December 2024. https://news.ipcf.org.tw/149098

Tags: Cultural Integrity , Indigenous Peoples Human Rights Defenders