從保訓會受理之保障事件研析我國公務員降調制度

Researching the Public Officials' Job Demotion System in the Republic of China by Analyzing Cases Reviewed by the Civil Service Protection and Training Commission

趙達瑜(Dar-Yu Chao)

《公共行政學報》 17期 (2005/12) Pp. 37-82

https://doi.org/10.30409/JPA.200512_(17).0002

摘要

晚近，世界各國在人事行政的發展史上，公務員制度均逐步走向功績制及永業制，公務員之身分及基於身分之請求權均予保障，非依法定原因，非經法定程序，不得剝奪，就理論與法制的發展而言，這已是吾人能共同接受的發展趨勢，惟實務上，有關公務人員之降調仍非罕見，且時有所聞，因此，引發筆者的研究興趣，欲探究在功績制與永業制的指導原則下，實務上職務調動時，尤其是降調案，我國公務員享有的法制保障為何？筆者認為在今後政黨輪替日益頻繁，且要求文官中立的呼聲愈來愈高的情況下，此問題值得探究。
詳言之，本研究欲透過保訓會有關公務員降調案之審理，佐以大法官會議解釋、行政法院之實務見解及學者的看法，解答下列問題：第一，現行公務員法令有關降調的規定為何？公務員降調案之合法要件為何？我國公務員降調法制之特色為何？第二，公務員被機關降調之原因為何？降調對公務員之不利影響為何？第三，公務員不服降調而提起救濟之原因為何？第四，行政機關主管對所屬公務員發布降調命令之法律性質為何？對被降調之公務員而言，若不服之救濟途徑為何？此類案件之救濟結果為何？保訓會審理此類案件作成撤銷與駁回決定之原因分別為何？第五，美、德等先進國家的相關做法為何？有無值得我國參採之處？
本研究探文獻分析法及內容分析法進行資料之蒐集與分析，期能為提昇我國公務員之降調制度合法性與適當性提供改進建議。
本研究根據相關文獻資料及30件降調保障事件內容進行分析後，分為「行政作為面」與「法制面」，嘗試提出初步的建議：「行政作為面」包括：機關應加強並重視溝通工作、調職程序應符合正當法律程序之要求、保訓會與機關應善盡釐清事實真相之責；「法制面」包括：降調應遵守法律保留或授權明確性原則、合法之降調程序應儘速明確規範、德國及美國之相關做法值得參採。

關鍵字

申訴 ； 復審 ； 公務人員保障法 ； 降調 ； 高資低用

並列摘要

In recent years, the merit system and life-long career system have become dominant initiatives in the personnel reform of global civic service. The status and rights of public employees are all legally protected and thus can not be deprived without authorization of laws. This trend of development is now well recognized in terms of theory and practice. However, in reality public employee's being illegally demoted still occur constantly, which inspires the author to further investigate to what extent the merit system and life-long career system can ensure job security for civic officials.
By reviewing demotion judgment of Civic Service Protection and Training Commission, interpretations of justices of constitutional court, practical considerations of the administrative court, and scholarly perspectives, this research is intended to answer the following questions: (1) What are the current laws and regulations for demotion of public servants? What constitutes a legal demotion case? What are the features of the laws and regulations? (2) What are the possible causes for demotion? How demotion undermines public employees' career? (3) What are the major causes for an appeal? (4) What is the legal essence of demotion mandates issued by administration department? How can a demoted employee appeal? What factors might affect the result of the appeal? What would be the possible reason for overturning the demotion decision? (5) What regulations do other nations have for demotion of public employees?
This research adopts the literature review analysis and the content analysis methods to analyze 30 demotion cases of public employees. Based upon the research findings, suggestions are offered to balance the organizational leadership and the protection rights of public employees and also to improve the current public employees' demotion system.

並列關鍵字

Civil service ； Civil service protection ； Civil Service Protection Law ； Job demotion ； Appeal

參考文獻

Cann, Steven J.(1998).(Administrative Law).

Ware, A.(1989).(Between Profit and States: Intermediate Organization in Britain and the United States).

公務人員保障暨培訓委員會()。

聯合晚報

司法院()。