為何臺灣的企業提供職業訓練的比例偏低？ 一個技能形成取徑的歷史分析

Why is the proportion of firms providing trainings low in Taiwan? A historical analysis of skill formation approach

林凱衡(Kai-Heng Lin)

指導教授 ： 林國明

國立臺灣大學/社會科學院/社會學研究所/博士(2021年)

https://doi.org/10.6342/NTU202102728

摘要

本文主要研究的是臺灣在1960-1990年代之間企業與職業訓練的關係，其中又以1966-1983年的職業訓練金條例為主要的研究對象。既有的文獻主要採用發展型國家概念，強調臺灣人力政策的成功源自於官僚的規劃。然而發展型國家理論卻沒有辦法解釋臺灣的技能形成體制特徵，為什麼跟其他OECD國家以及東亞國家相比，臺灣的企業參與訓練的比重卻這麼低？
本文發現在1980年代以前，政府曾經推動大規模的企業辦訓政策但沒有成功。在1960年代，當經合會面對工業化與技能工人需求時，試著由企業參與辦訓來解決政府財政不足和工人流動帶來的人力投資損失，職業訓練金條例是主要的解決方案。
以企業為中心的觀點來解釋政府推動企業辦訓政策的失敗，是因為從職業訓練金條例到職業訓練法，政府無法回應與平衡臺灣二元企業結構下不同的人力投資需求，導致企業對職業訓練政策的反彈，所以最後通過的職業訓練法放棄了企業辦訓的方向，職業訓練主要由公共機構提供，這個結果也導致臺灣的技能形成體制是由學校而非企業為主要的技能供給者。
雖然1966-1983年之間，臺灣並沒有在全國層次成功建立起企業辦訓的制度，但是仍然摸索出適合中小企業辦訓的輪調式建教合作方案，與全國統一的職業訓練金條例相比，輪調式建教合作更具彈性也降低中小企業負擔，所以在1970-1990年代之間成為臺灣機械業重要的技能形成管道。

關鍵字

技能形成 ； 發展型國家 ； 職業訓練金條例

並列摘要

This thesis focuses on the relationship between vocational training and enterprises in Taiwan, especially the Vocational Training Fund Statute from 1966 to 1983. Current literature has used the developmental state concept to emphasize that bureaucracies’ plans established the successful manpower policy. But the developmental state can’t explain the characteristics of skill formation in Taiwan. In comparison with the proportion of firms providing training in the OECD and East Asia Countries, why the proportion of firms providing training in Taiwan is low?
I had found out that before the 1980s, the government had unsuccessfully promoted the enterprises to hold vocational training. In the 1960s, when the Council for International Economic Cooperation and Development faced industrialization and the need for more skilled workers, they tried to encourage the enterprises to join vocational training because of the deficit of finance and the loss of human capital investment caused by high turnover rate. The Vocational Training Fund Statute was the primary solution.
I use the firm-centered view to explain why the government had failed to promote vocational training with the companies from the Vocational Training Fund Statute to the Vocational Training Act. In this view, the government was unable to respond and balance the preferences of human capital investment in the dualism of enterprises. This failure had led to opposition from enterprises. In the end, the government had given up the way to promote the enterprises to hold training. Public institutes provided primarily vocational training services. As a result, the main skill provider in the skill formation regime in Taiwan are schools, not companies.
Even the promotion of vocational training by enterprises was failed in the entire country. The government had explored a successful program for the SME. This program was named “Rotary Co-operative Education.” Because this program was more flexible and lower cost than the VTFS, this program had become one of the main skill formation routes in the machinery industry from 1970 to 1990.

並列關鍵字

skill formation ； developmental state ； Vocational Training Fund Statute

參考文獻

一、檔案史料

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立法院公報處，「立法院內政委員會第四十六會期第六次全體委員會議紀錄」，《立法院公報》，60卷26期，委員會紀錄。

立法院公報處，「立法院內政委員會第四十六會期第七次全體委員會議紀錄」，《立法院公報》，60卷34期，委員會紀錄。