地方政府運用退休公務人力之研究—以新北市政府為例

A Study on Retiree Management of Local Government-Taking New Taipei City Government as an Example

蔡杏慧(Sing-Huei Tsai)

指導教授 ： 趙永茂

國立臺灣大學/社會科學院/政治學研究所/碩士(2017年)

https://doi.org/10.6342/NTU201703037

摘要

世界各國積極活化中、高齡人力資源，以提升國家競爭力，其運用退休人力政策普遍從勞動參與（再回任職場）及社會參與（投入志願服務）這二方向著手，而我國在當前退休公務人員再就業的社會輿論爭論仍大之環境下，以志願服務模式推動的公教志工制度，為目前退休公務人力再運用的唯一政策。
然而，我國傳統思維所制定之退休制度及公教志工制度，未與時俱進，限制了地方政府在退休公教人力的運用與發展，本研究以文獻分析法綜析相關國內外退休人力活化之研究成果，發現各國政府運用退休人力之政策發展趨勢，是以「階段性退休」(Phased Retirement)及「時間銀行」(Time Banks)二項創新策略為概念，遂以此二項政策之源起概念為本文之理論基礎。尤其英、美兩國多年之實務經驗，未來勢必將帶動其他國家效仿，做為先進國家因應人口結構老化問題之基礎。
由各國政府運用退休人力之策略與機制中，歸納出各國活化退休人力的策略新趨勢，並以階段性退休及時間銀行之概念及運作模式，論述我國公教志工制度、探究新北市政府退休公教人力運用方案與現況，發現我國公教志工制度需要進行變革的面向，以及新北市退休公教人力運用的特色有以下二方面：一是人力運用現況具有七大特點、二是人事管理者應注意的八項重點問題。
本文將初步結論重點化為討論議題，邀請學者、專家，舉辦焦點座談會議進行意見交流，使本研究結論更具合宜性及妥適性。以研究目的角度，綜合焦點座談之具體建議，提出研究結果：一、退休人力運用的新概念：漸進式的淡出工作＆互惠式的志願服務；二、十三項運用退休人力之策略新趨勢；三、三項政策變革檢視面向；四、主政者勇於突破現狀及不斷創新的變革思維。
最後，本研究為探討階段性退休及時間銀行之概念，運用在我國公教志工制度上的可行性，以新北市政府運用退休公教人力之現況為實例進行研究，驗證結果為具可行性且我國公教志工制度有進行變革之必要性；然而制度變革前，新北市政府遭遇的現況問題，也可能會是其他地方政府，甚至是全國各機關的問題，經參採焦點座談之建議後提出以下建言。
對新北市政府策略上的建議：一、擴大召募對象，提前進行職務設計或專長訓練；二、開發多元的志願服務提供方式；三、培養志工自主管理，有助於網絡發展；四、針對不同的人員性質採取不同的召募及特色策略；五、加強戶政及地政事務所退休人員的聯繫。
對中央相關主管機關的建言：一、運用階段性退休及時間銀行之概念，進行公教志工制度的變革二、建置公教志工人力資源網絡及退休人才資料庫；三、銓敘部研究計畫「漸進式退休人力再運用制度」，宜將退休公務人力資源，定位在更高的目標上。

關鍵字

退休公務人力 ； 公教志工 ； 階段性退休 ； 時間銀行

並列摘要

Middle and old aged manpower has been enthusiastically activated globally to enhance national competitiveness, with the use of retired manpower policies being commenced from the two directions of labor (returning to workplace) and social participation (joining voluntary services). In an environment where public opinions on the currently retired public servants’ reemployment is still controversial in Taiwan, the volunteer system for teachers and civil servants (hereinafter referred to as civil servants) driven by a volunteer service model is currently the only policy for the reuse of retired public manpower.
However, the retirement and civil servant volunteer systems developed from the traditional thinking in Taiwan has not kept pace with times, thus restricting local government’s use and development of retired civil servants. In this study, the research results on the domestic and foreign activation of retired manpower were analyzed through literature review, which discovered that the policy development trends for using retired manpower by national governments are based on the concepts of two innovative strategies: phased retirement and time banks. The originating concepts for these two polices were thus used as the theoretical basis for this study. In particular, the years of practical experience in the United Kingdom and the United States of America will drive other countries to emulate in the future, serving as the foundation for advanced countries to respond to the problem of aging demographic structure.
The new trends in the strategies of activating retired manpower in various countries were summarized from the relevant strategies and mechanisms used by national governments. The concepts and operating models of phased retirement and time banks were used to discuss the civil servant volunteer system in Taiwan, as well as explore the program and status of retired civil servants’ manpower utilization by the New Taipei City Government. According to the results, the aspects of the civil servant volunteer system in Taiwan that require changing, and the characteristics of the retired civil servants’ manpower utilization by the New Taipei City Government are compiled and presented as: (1) seven traits that characterize the current situation of manpower utilization; (2) eight key problems that personnel managers should take note of.
The key points of the preliminary conclusion from this study were turned into discussion topics, and scholars and experts were invited to exchange views in a focus group meeting to further validate the appropriateness of the conclusion for this study. The specific recommendations by the focus group were consolidated from the perspectives of the research purposes to propose the following results: (1) a novel concept for retired manpower utilization: the progressive departure from work and a reciprocal volunteer service; 2. 13 trending strategies for the use of retired manpower; 3. Three reviewing aspects for policy reforms; 4. The policymakers’ courage in the breakthrough of the status quo and their revolutionary thinking for constant innovation.
Finally, this study discussed the feasibility of applying the concepts of phased retirement and time banks on the civil servant volunteer system in Taiwan, with the current status of the retired civil servants’ manpower utilization program by the New Taipei City Government being used as an example for research. The results verified the feasibility of the application and revealed the necessity of reforming the civil servant volunteer system in Taiwan. However, before the reformation of the system, the current problems of the New Taipei City Government could also be the difficulties encountered by other local governments and even by countrywide government agencies. The following suggestions were proposed after referring to the recommendations from the focus group meeting.
Suggestions for the New Taipei City Government policies are as follows: 1. Expand the recruitment target and shift the job designs or expertise trainings to an earlier date; 2. Develop diverse volunteer service provision; 3. Cultivate the volunteers’ self-management, which is conducive to network development; 4. Adopt differing recruitment and characteristic strategies according to distinct personnel natures; 5. Strengthen the communication with the retired staffs in the household registration offices and land offices.
Suggestions for the relevant authorities of the central government are as follows: 1. Reform the civil servant volunteer system through the concepts of phased retirement and time banks; 2. Establish human resource networks for civil servant volunteers and retired talent database; 3. For the “Progressive Retirement Manpower Reuse System”, a research project by the Ministry of Civil Service, the human resource for retired civil servants should be positioned on a higher goal.

並列關鍵字

retired public manpower ； teachers and civil servants ； phased retirement ； time banks

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