身心障礙者定額進用政策之回應性評估~以臺北市公立國民小學為例

The Responsive Evaluation of Quota Employment Policy for Disable Persons： A Case Study of the Public Elementary school in Taipei

劉春蓉(chun-rung liu)

指導教授 ： 張四明

國立臺北大學/公共事務學院/公共行政暨政策學系/碩士(2010年)

摘要

本研究針對臺北市公立國民小學實施身心障礙者「定額進用」政策的個案進行探討，以深度訪談法為主，文獻分析法、焦點團體法為輔，從中央政策制定機關行政院勞工委員會職業訓練局、地方政策監督機關臺北市政府勞工局、政策執行臺北市公立國民小學、與政策標的團體學校身心障礙職工及尚未僱用殘障團體等相關利害關係人角度，對定額進用政策進行回應性評估，從「目標達成度」、「政策適當性」、「執行者意向」、「身障者滿意度」四個指標面向，作為分析與評估政策的基準與依據，以瞭解主要利害關係人對身心障礙定額進用政策主張與關切的議題，建構具有共識之項目及歸納缺乏共識與猶待討論的題議，獲得以下研究發現，並針對中央機關、地方機關及身障者提出政策建議：
壹、 研究發現
一、目前臺北市公立國民小學進用身障者大多為未具任用資格之職工或約聘僱人員，但遴補具任用資格身障教師或公務人員相當不容易。
二、定額進用政策是有效提高身心障礙者就業機會。
三、相關利害關係人對定額進用政策是否應以機關屬性訂定不同比率或考量專業及特殊性擴大例外適用範圍意見兩極，顯示政策執行是科層體制的控制過程。
四、以每月一日參加公勞保數為進用身心障礙者人數計算基準尚有調整空間。
五、身心障礙者大多擔任庶務性工作，對於學校行政運作並未產生太大困擾。
六、基層執行者對於國民小學適用定額進用政策認為具有正向教育意義，但倘若未採取強制性政策，並不會積極進用身障者，顯見政策工具的選擇，影響執行意願與成效。
七、相關利害關係人皆主張定額進用政策立意良善，惟對政策建議因立場不同各具異觀。
八、身障職工專業知能較不足，工作表現滿意度大都獲得認同，惟人際關係差強人意。
九、身心障礙者職業訓練有待加強。
貳、政策建議
一、對行政院勞委會職訓建議：1.基於公平性原則，學校聘任之部分工時人員，應比照進用身心障礙人數計算方式，進用二人得以一人計入員工總人數應建立完善身心障礙人力資料庫。2.提供就業媒合途徑，以達人與事之適切配合。
二、對教育部建議：應儘速建置身障教師人力資料庫，並比照離島地區及原住民籍學生，建立身障生升學師範及教育大學保送甄試制度。
三、對行政院人事行政局建議：授權地方主管機關，對於無職缺可足額進用者，得運用應繳納之罰款進用身障臨時人員。
四、對臺北市政府勞工局建議：專責開設身障者職業訓練課程，並結合事業機構建立產訓合作關係，以達到訓用合一目標。
五、對臺北市公立國民小學建議：應儘量釋出適缺提報身障人員特考，增加身心障礙者擔任公職機會，以落實考試用人政策。
六、對身心障礙者建議：應有正確的人生態度，強化自我工作技能，提升職場競爭力。

關鍵字

身心障礙者、定額進用政策、回應性評估

並列摘要

This research approaches the subject in view of the case that the public elementary schools in Taipei implement quota employment policy for disabled persons to carry on the discussion. The research takes depth interview primarily, and documentary analysis and focal organization as auxiliary. This research also puts quota employment policy to responsive evaluation from different angles of vary relative interested parties, which are the central policy formulation authority, Bureau Of Employment and Vocational Training, Executive Yuan, the local policy surveillance authority, Labor Affairs Bureau of Taipei City Government, the policy executive authority, the public elementary schools in Taipei and the policy target, both the disable persons employed by schools and those not employed. The four indexes-goal achievements, policy appropriateness, executive authority intention and satisfaction of disable persons are took as the reference and basis to understand the agenda of the proposal and concern of quota employment policy, and the agenda of common-viewed items to be constructed and non- common-viewed ones to be concluded and discussed to the primary interested party. This research leads to the discovery as the following and gives some policy suggestions in accordance with central government agency, local government agency and disable persons.

Discovery from the research
First, at present, most disable persons employees or assistants at public schools in Taipei are not qualified but it’s difficult to appoint qualified disable teachers or government functionaries.
Second, quota employment policy offers disable persons more job opportunities effectively.
Third, by the interested parties’ polarization to the agenda that if it should be set different employment rate according to different agency attributes or if it should be enlarged exception scope of application according to profession and particularity in quota employment policy, it displays that policy execution is the control procedure of the system of a division or subdivision of an administrative unit.
Fourth, there still room to adjust employment calculation basis for disable persons according to public employee insurance or labor insurance on the first day in every month.
Fifth, most disable persons work as general affairs officers and don’t perplex the work of school administration too much.
Sixth, the executive persons at the grass-roots level regard it as positive educational value that quota employment policy is appropriate to elementary schools. However, if a mandatory policy is not taken on quota employment policy, disable persons are not employed positively. It is obvious that the choice of policy influences the executive will and performance.
Seventh, all the relative interested parties agree it is a good approach to put quota employment policy into force. However, the parties have different views on policy suggestions because of their different standpoints.
Eight, the professional knowledge and skills of disable staff and workers are insufficient. Most of them are agreed with their work performance but their interpersonal relationship is barely satisfactory.
Ninth, The vocational and employment training for disable persons has much room for improvement.

Suggestions for the policy
First, suggestions to Bureau of Employment And Vocational Training, Executive Yuan: 1. on the basis of the fairness doctrine, when employing some man-hour employees, the school party should include every other one into total number of staff according to the calculation method of the number of disable employees and the school party should construct complete disable manpower database. 2. to offer approaches to employment matching for employees to match the jobs perfectly.
Second, suggestions to Ministry Of Education: to construct disable teacher manpower database as soon as possible. According to the existing regulations for offshore-island students and indigenous students, to establish regulations for disable students to be granted recommended admission to normal universities or educational universities.
Third, suggestions to Central Personnel Administration, Executive Yuan: to authorize local governing authority to make use of penalty to employ disable persons as temporary workers in case of no vacancy of positions.
Fourth, suggestions to Taipei City Labor Affairs Bureau: specially to open courses of Employment And Vocational Training for disable persons and associate business organizations to establish relation of producing and training and to achieve the goal of training and making use of personnel.
Fifth, suggestions to public schools in Taipei: to release as much proper vacancy of positions for disable examination act of public functionaries as possible to increase public employment opportunities for disable persons. Thus, it can put examination-based employment policy into effect.
Sixth, suggestions to disable persons: to have positive life attitude, to strengthen working skills and to promote ability of competition in working place.

並列關鍵字

disabled person , quota employment policy , responsive evaluation

參考文獻

翁興利（2004），政策規劃與行銷，臺北：華泰文化事業股份有限公司。

Drucker, P. F.(1980).”The Deadly Sins in Public Administration”, Public Administration Review,March-April,1980,pp103-106

Guba, E.G. and Y.S. Lincoln.(1981).Effective Evaluation. San Francisco, Jossey-Bass.

壹、中文部分

一、書籍