政府彈性用人制度之研究—析論聘用人員人事條例草案

A Study on Government Flexible Employment System—Analysis of Personnel Management Act for Contract-based Worker (draft)

黃少圻(Huang Shao Chi)

指導教授 ： 朱武獻

國立臺灣大學/社會科學院/國家發展研究所/碩士(2008年)

https://doi.org/10.6342/NTU.2008.10199

摘要

提升政府部門用人彈性為政府改造的方向之一，目前政府部門契約性人力在運作上已經產生諸多問題，其中最重要的問題在於聘僱人員缺乏考核機制，獎優汰劣無法落實，於是產生了「臨時人員永業化」的弊端，這個現象不僅導致機關人力缺乏新陳代謝，更違反了契約性人力因應機關人力彈性運用的設置初衷，亦即制度運作迄今已喪失彈性用人之精神。
為了解決上述問題並對政府部門契約性人力進行通盤的規劃與整建，銓敘部完成「聘用人員人事條例草案」，企圖整合政府機關中聘用、約僱、機要、聘任及派用五類人員，為一套嶄新的人事基準法草案，其創新與突破之處頗多，對我國未來政府部門人事管理制度的發展有重要影響。
本研究即是以「聘用人員人事條例草案」為研究核心，以草案欲整合納入的五類人員為研究範圍，首先分析德、美、日三國政府部門實施彈性用人的現況與優點，再歸納我國目前契約性人力制度的運作缺失，藉著國外制度的優點與國內制度的缺失來對草案進行檢視，分析草案的改革幅度，是否能對現行制度的缺失提出有效的解決方案，最後針對草案較具爭議的條文提出修正建議，並對草案未來推動與實施上可能產生的衝擊預作分析與提醒。
據本研究發現，草案的設計確實有助於解決目前政府部門契約性人力制度的大部分缺失，惟未來在聘用人員的「資格條件」及「監督考核」機制上應再予周延；草案的實施也能小幅度的提升政府彈性用人的深度與廣度，但若要大幅提昇政府彈性用人的規模，基於政府組織改造與人事制度的環環相扣，仍須要其他法案的配套修正方能克竟全功。本研究也認為，在目前常任文官考績制度效果不彰，而政府財政拮据並須負擔龐大退休金給付壓力的情勢下，基於降低施政成本的考量，聘用人員人事條例草案確有加速推動完成立法之必要。

關鍵字

聘用人員人事條例 ； 契約性人力 ； 聘用人員 ； 約僱人員 ； 彈性用人制度

並列摘要

To enhance employment flexibility is an important issue in government reformation. The current contractual manpower in government department has produced numerous problems during operation. In which, the most essential problem is short of staff assessment mechanisms. Thus, reward and penalty system cannot be practiced. As a result, the defect of "contracted personnel works as permanent" generates. This phenomenon not only results to manpower metabolites deficiency, but also violates the original intention of establishing contracted personnel system, which constituted for flexible personnel adjustment. In other words, the system has lost the spirit of flexible employment.
In order to solve the problems mentioned above and further carry out the contractual manpower planning and renovation toward government departments, the Ministry of Civil Service complete “personnel management act for contract-based worker (draft)". The draft attempts to integrate five categories of employee, which includes: contract-based employees, auxiliary-based employees, confidential employees, appointed employees, and temporary limited employees in government agencies. It is an innovative employment standard draft. The innovations and breakthroughs within the draft have a profound impact toward the future development of government personnel management system.
The focus of this study is emphasizing on “personnel management act for contract-based worker (draft)", and the research scope is the five staff categories to be integrated within the draft. First, the advantage and the current situation of flexible employment system being practiced by Germany and the United States and Japan government departments are analyzed. Next, the deficits of present contracted personnel policy of our country are summarized. By reviewing the advantages of foreign system and the disadvantage of domestic system, and the range of renovation, possible effective solutions are proposed. At last, amendments to the controversial provisions are suggested. Also, the possible impacts toward the future promotion and practice of the draft is pre-analyzed and reminded in the context.
According to this research, the implementation of the draft truly helps resolving the deficit of current contracted personnel policy. However, the recruitment mechanism of "qualifications" and "supervision and examination" should be further comprehensive planned. The implementation of the draft can also slightly improve the depth and breadth of flexible employment system. Nevertheless, in order to greatly increase the employment flexibility, on accounts of the close relation of government reformation and personnel system, the amendments of other bills are also required. This study also affirms that the ineffective assessment of current permanent civil service, Government's financial embarrassment and the burden of pension payments. In considering the cost-reducing policy, the acceleration of legislation of “personnel management act for contract-based worker (draft)” is necessary.

並列關鍵字

Personnel management act for contract-based worker ； contracted personnel ； contract-based employees ； auxiliary-based employees ； flexible employment system

參考文獻

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