從人口結構及從軍意願探討我國「募兵制」面臨之問題

The Volunteer Military Recruitment System of the ROC:Perspectives from the Demographic Structure and Willingness to Enlist

張雄鍵(Shong-Jiann Chang)

指導教授 ： 唐代彪

國立臺灣大學/社會科學院/國家發展研究所/碩士(2019年)

https://doi.org/10.6342/NTU201900777

摘要

我國自2000年起，配合「精實案」、「精進案」兵力精減規劃，義務役常備兵之役期不斷縮減，至2008年僅剩1年（含軍訓折抵1個月），部隊充斥著甫經訓練成熟即面臨退伍的人員，造成國軍各級部隊之戰力值，飽受役期縮短之影響而大幅降低。國防部基於國家長遠發展需要、順應民意高度期盼，依據馬英九總統競選政見，於2008年起著手修正《兵役法》，並配合「精粹案」兵力精減，策訂「募兵制實施計畫」報請行政院核定，期於2014年底前將兵役制度由「徵、募併行制」朝向「募兵制」轉型，同時保留4個月之兵役義務。
惟「募兵制實施計畫」所訂的調整志願役起薪待遇等配套措施，當時行政院及相關部會並未予以支持，且國防預算占GDP之比例不斷下修，以致志願役之招募及留營的工作並不順遂。俟行政院於2014年起開始重視，逐步增加基層志願役人員的待遇時，已錯失志願役「人力增長期」的黃金時間，再加上國軍陸續遭遇「洪仲丘案」等嚴重打擊國軍之士氣之事件，致迄2018年底國軍最後一位服1年義務役士兵離營時，國軍的志願役兵力僅達到編現比的82.8%。
為瞭解我國轉型「募兵制」之問題癥結點，本研究針對募兵之成功典範—美國、遭逢募兵危機—英國、放棄募兵回復徵兵—瑞典，以這3個代表性國家的兵役政策背景及轉型成效，以作為經驗借鏡，來檢討我國募兵成效不佳的問題，並就我國兵役人力供需及從軍、留營意願調查結果，分析當前及未來可能遭遇之挑戰。
經研究發現，人口結構與經濟因素，都會牽動人民從軍心態，尤其我國志願役招募之困難度較先進國家高出9倍以上，若持續輕忽少子化與學制影響，預判自2025年起，志願役人力退伍、補充將開始失衡，且在國防資源有限、分配不均的情形下，嚴重影響建軍目標達成，惟有立即強化志願役人員待遇、尊嚴及出路的配套措施，方能提升從軍及留營意願。故建議政府應檢討在「募兵制」政策上應扮演之角色，期以堅決的態度投注相關資源儘早面對當前的困境，否則就須正視「募兵制」風險預判的結果，適時調整現行兵役制度，以實施風險轉移、化危機為轉機。

關鍵字

人口結構 ； 從軍意願 ； 募兵制

並列摘要

Since the “Armed Forces Jing-shi Streamlining Program” and “Armed Forces Jing-jin Streamlining Program” started to cut compulsory military service in the year 2000, compulsory service had decreased to only lasting for 1 Year in 2008 (including the military training at school, accounting for another month). Troops faced losing manpower, and mature soldiers preparing to be discharged massively declined Armed-Forces combat capabilities because of the service system reduction. MND based on the expected public opinions and long-term development requirements, along with the political election of President Ma Ying-jeou, led to him amending the “Military Service Law” in 2008, cooperating with the “Armed Forces Jing-cui Refining Program” to reduce the strength of the troops. The "Volunteer Military System Implementation Plan" was submitted to the Executive Yuan for approval. The military service system will be levied before the end of 2014 to transform the volunteer military system while retaining military service obligations for 4 months.
However, the supporting measures for adjusting the starting salary of volunteers under the “Volunteer military System Implementation Plan” were not supported by the Executive Yuan and relevant ministries, and the proportion of the national defense budget to GDP was continuously revised, resulting in the recruitment and retention of volunteers. The work of the camp is not smooth. Since the beginning of 2014, the Executive Yuan has begun to pay attention to the gradual increase in the treatment of grassroots volunteers. It has missed the prime time of the “human growth period” of volunteers, and the national army has successively suffered from the “Punishment Corporal Hung Chung-Chou” and other serious attacking countries the event of the morale of the army until the end of 2018 when the last of the national army served as a one-year volunteer; the volunteer force of the national army reached only 82.8% of the ratio.
In order to understand the crux of the problem of our country’s transformation of the “volunteer military system,” this study is aimed at exploring success cases of the recruitment of troops - the United States, the crisis of recruitment - the United Kingdom, abandoning the recruitment of troops - Sweden, with a military service policy background; the transformation effectiveness of these three representative countries’ experiences are used to review the problem of poor effectiveness in recruiting troops in R.O.C, and to analyze the current and future challenges that may be encountered in the investigation of the supply and demand of military personnel and the willingness to stay in the military.
The study found that the demographic structure and economic factors will affect the people's view of the military. In particular, the difficulty of recruiting volunteers in our country is more than 9 times higher than that of advanced countries. If the influence of minorities and the academic system is continuously ignored, volunteers will be forced to start from 2025. If the manpower retires, the supplement will begin to be unbalanced. Under the limited resources of national defense and the uneven distribution of resources, the goals of the army will seriously be affectec. Only by strengthening the treatment can the dignity and the supporting measures of the volunteers increase their willingness. Therefore, it is suggested that the Government should review the role that should be played in the “volunteer military system” policy. The policy should be based on a firm attitude and face the current difficulties as soon as possible. Otherwise, it is necessary to face the results of the risk prediction and adjust the current military service system in a timely manner to implement risk transfer and turn crises into a turning point.

並列關鍵字

Volunteer Military Recruitment ； Demographic Structure ； Willingness to Enlist

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