制度化之痛：從勞權爭議看台灣NGO勞雇關係的形成

中文摘要近十年，台灣NGO/社工領域以「回捐」為代表的勞權爭議屢現報端，愈演愈烈。一般研究者多謂爭議源於社工勞權問題長期積累而社工勞權意識提升。但本文翻轉常見的質問「社工勞權問題為何在此時產生？」，而質問「社工勞權問題為何在此時變得不可忍受？」。本文透過訪談18位台灣NGO/社工工會理事和不同年代入行的社工（跨度30多年），跨度3個月的參與觀察（12個工作日），以及相關文獻分析，考察了台灣NGO/社工勞動體制的變遷。首先，在制度層面，本文援用顧忠華的「公私二重性」概念指明了社會福利民營化導致政府（公）對民營的NGO/社工機構（私）自主管理的介入，製造了兩套管理系統之間的張力，也導致社工勞權爭議源源不斷地產生。其次，本文進一步打破黑箱，深入勞動過程，並指出勞動過程不僅是社工付出的過程，同時也含有重要的非物質收益；並重點闡述了制度化之後，繁重文書工作、與服務對象的疏離這兩大問題極大侵蝕了社工勞動過程中的收益；勞動過程中收益的銳減破壞了社工「付出-收益」的脆弱平衡，這也是社工勞權爭議爆發的原因。最後，本文指出了制度化的勞雇關係大大削弱了NGO/社工機構內部同事之間舊有的網絡關係，減少了機構內部的彈性，導致勞權爭議爆發且不惜曝光；另外，制度關係和網絡關係本是相對而又互補的，而在制度關係大獲全勝之後，弱勢的社工個體透過組建工會的方式營建跨機構的網絡關係以制衡制度關係，本文的相關分析印證了制度關係與網絡關係的消長邏輯，也重新定位了台灣NGO/社工工會的功能。關鍵詞：社工勞權爭議，制度化，勞動過程，勞雇關係，網絡關係

關鍵字

社工勞權爭議；制度化；勞動過程；勞雇關係；網絡關係

並列摘要

Abstract In the past decade, labor disputes, represented by “forced to donate”, have been frequently reported and intensified in Taiwan's NGO / social work field. Most researchers say that the dispute stems from the long-term accumulation of social workers' labor right problems and the promotion of social workers' awareness of labor rights. However, this paper changes the common question “why do social workers' labor disputes arise at this time”, to the question “Why do the problems of social workers' labor rights become intolerable at this time”. Through interviews with 18 Taiwan NGO / social workers union directors and social workers from different fields (spanning more than 30 years), a three-month participant observation (12 working days), and relevant literature analysis, this paper examines the changes of the labor system of NGO / social work in Taiwan. First of all, at the institutional level, this paper uses Gu's concept of “public - private duality” to point out that the privatization of social welfare leads to the intervention of the government (public) in the independent management of private NGO / social work institutions (private), which creates tension between the two management systems, manufacturing endless labor disputes of social workers. Secondly, this paper further breaks the black box, goes deep into the labor process, and points out that the labor process is not only the process of social workers' pay, but also contains important non-material benefits. After institutionalization, the heavy paperwork and the alienation from the service users greatly erode the social workers' benefits in the labor process; the sharp decrease of the benefits in the labor process destroys the social workers' benefits. This is also the reason why labor disputes of social workers broke out. Finally, this paper points out that the institutionalized labor relationship has greatly weakened the old network relationship between colleagues in NGO / social work organizations, reduced the flexibility of the organization, and led to the outbreak of labor disputes at the expense of exposure; in addition, the institutional relationship and network relationship are relatively complementary, but after the triumph of the institutional relationship, the weak individual social workers establish inter-agency labor unions in order to build new network relationship, for checking and balancing institutional relationship. The correlation analysis of this paper confirms the growth and decline logic of institutional relationship and network relationship, and then redefines the function of Taiwan NGO / social workers union. Keywords: Labor disputes of Social Workers, Institutionalization, Labor process, Labor relationship, Network relationship