我國公務倫理的困境與出路：從政務官與事務官的關係談起

我國在2000年歷經第一次政黨輪替，但在輪替之初，政務首長與常任文官彼此均無法適應，當時執政的民進黨提出「新政府、舊官僚」、「撤換不配合的事務官」等想法。但同一時間，政務官卻更換頻頻，文官體系便反譏政務官有權力傲慢、無能等情形。第二次政黨輪替後，也發生行政院副秘書長陳美伶拒絕調職而選擇退休的事件，綠營人士指責這是藍營整肅前朝官員。類此相互的批評不僅無助於建立合理的公務倫理規範，更影響國家施政。民進黨的執政普遍認為是失敗的，其中原因有很多，但令筆者感興趣的是民進黨執政期間政務官與事務官的關係一直不佳，國民黨拿回政權後，是否亦有類似情形呢？本文從理論出發，說明事務官與政務官應扮演的角色。其次，從實務上說明我國二次政黨輪替期間，政務官及事務官的關係及互動情形，並解釋發生這些現象的原因。最後提出政務官及事務官的倫理架構，說明雙方「當為」與「不當為」之事，以期我國在政黨輪替的常態中，政務官及事務官之間有一套適切的公務倫理規範共同遵循。

關鍵字

公務倫理；政黨輪替；政務官；事務官；信任

並列摘要

Taiwan experienced the first party rotation in 2000, but political appointees and civil servants did not establish cooperative relations at the beginning stage. The ruling party-Democratic Progressive Party (DPP)-charged the new administration was trapped in old bureaucracy so that it replaced disobedient civil servants. Meanwhile, the term of political appointees were very short and civil servants complained those political appointees incapable and abuse of power. After the second rotation in 2008, the deputy secretary-general of the Executive Yuan refused to be transferred to a new position, and then she chose to retire. The DPP censured that the ruling party-Kuomintang (KMT)-carried out a purge of previous administration's officials. Such criticisms are harmful to the establishment of appropriate relations between political appointees and civil servants, and affect the operation of the administration. The article describes the role and the responsibilities of political appointees and permanent civil servants and the dilemma they have to face. Then, it demonstrates some examples about the bad interaction between political appointees and civil servants and their reasons during the two party rotations. Finally, it brings up an ethical framework for political appointees and civil servants to illustrate what they ”should do” and ”should not do”, and tries to build up the suitable relations between them and set up an appropriate norm.