非正式規則與考績制度-以臺南市政府所屬機關學校為例

Informal Rules and Performance Evaluation System - With Tainan City Government Owned Agencies and Schools as Example

洪誠應(CHENG-YING HUNG)

指導教授 ： 蔡榮祥

國立中正大學/社會科學院/政治學系政府與公共事務碩士在職專班/碩士(2016年)

摘要

摘 要

公務人員考績制度位居文官制度的樞紐，更是對公務人員課責的表現，然而因考績制度長期以來未能達致覈實考核，致使甲等浮濫的問題日益嚴重，而為解決是項問題所為的比例設限規範，更導致考績制度產生目標錯置而偏離原有的目標，也造成各項非正式規則的盛行，因此，藉由檢視考績相關理論、現行規範等，來探討公務人員考績制度所面臨的缺失、非正式規則對於考績制度運作的影響、其比例設限的規範又能否達成考核的目的，另外，考試院所訂定之公務人員考績法修正草案，又能否有效減少非正式規則的發生，使考績制度趨向獎優汰劣的目標邁進，為本研究之主要目的。本研究旨在透過文獻分析與深度訪談法等研究方法，以歸納出考績制度運作所面臨的困境與問題、非正式規則所造成的考績制度的偏差為何，進而釐清公務人員考績制度應然面與實然面的落差，以補足法令、文獻及理論的不足之處，並作為未來法令修正時之建議。
經由分析後發現比例設限雖可快速抑制甲等寬濫的問題，但卻也導致考績制度深受人為主觀判斷的影響，造成不同類別人員的差別待遇，不但難以反映出員工的工作表現，所衍生的非正式規則，更嚴重影響著考績制度的正確性與公平性，而非正式規則在長期的運作下更形成了路徑依賴，導致一時之間積習難改。另外，也發現所連結的獎勵確實影響著考績制度的效用，而平時考核不但流於形式，更未對年終考績發揮實質的影響，在法令與人為的交互作用下造成了現行制度的偏差，人事人員不但未成為考績制度的捍衛者，反而成為非正式規則的執行者。而公務人員考績法修正草案未能納入利害關係人意見，其獎優措施更恐淪為酬庸與政治考量下的獎賞，而不同官等與職務的區別考核立意雖佳，卻因差別待遇而引發質疑，其汰劣措施不但助長非正式規則的盛行，更流於為淘汰而淘汰，恐成為排除異己的工具，而強制性的定期面談也恐成例行文書作業，因此，公務人員考績法修正草案如若比例設限思維不變，獎優汰劣的目標恐將難以達成。而考績制度存在著許多值得探究之議題，本研究僅針對現行考績制度的內容、非正式規則及公務人員考績法修正草案進行探討，以期發現相關問題，並對考績制度的修正作出適度的建議。

關鍵字

考績制度 ； 比例設限 ； 非正式規則

並列摘要

Abstract

Civil servants performance evaluation system as the hub of the civil service system, but is accountable for the performance of civil servants. However, due to the performance evaluation system for a long time we could not really assess, causing increasingly serious problem of excessive Class A. In order to solve such problems and made "the proportion of handicapping" requirements. Performance evaluation system has also led to produce "goal displacement" and deviate from the original target, but also contributed to the prevalence of informal rules. Therefore, by viewing Evaluation theory, the existing norms to discuss the lack of civil servants performance evaluation system facing, effect of informal rules for the operation of the performance evaluation system, the proportion of handicapping specifications and ability to achieve the purpose of the assessment. Additionally, the draft amendments to civil servants Act performance evaluation that the Examination Yuan of ROC setting, whether it can reduce the incidence of informal rules effectively, so that the performance evaluation system towards the target "award and eliminating the inferior" towards the main objective of the present study. This study in " document analysis " and " in-depth interview " and other research methods through to sum up the plight of the performance evaluation system were faced with the problem, and the reason why deviation informal rules for the cause of performance evaluation system. Further clarify the civil servants performance evaluation system ought to have gaps between the Real and to complement the decree, and the inadequacies of the theory of literature, and to recommend future ordinance amendments of Time.

This analysis found thatnot only can the proportion of handicapping quickly suppress excessive Class A issues, but also it led to the performance evaluation system under the human subjective judgment, resulting in differential treatment of different categories of personnel, not only difficult to reflect the employee's work performance, derived via informal rules, a more serious impact on the performance evaluation system correctness and fairness. The informal rules in forming a more long-term operation of path dependence, lead to old habits difficult to change. In addition, our study also found that the link reward does affect the effectiveness of the performance evaluation system. The routine is not only a mere formality, but also it did not have a substantial impact on the annual performance evaluations. Because "the act" and "artificial" are caused by the interaction of the deviation of the current system. Personnel officers not only did not become a defender of the performance appraisal system, but also became become the executor of informal rules. The draft amendments to civil servants Act performance appraisal fail to incorporate interested parties comments. Reward measures becoming recompense and political considerations reward. It’s good for different and other official’s duty of assessment, because of differential treatment and raise questions. Eliminating the inferior measures not only contributes to the prevalence of informal rules, but it becomes phased out and eliminated exclusionary tool. The mandatory periodic interviews also become the routine paperwork. Thus, draft amendments to civil servants Act performance appraisal if the proportion of handicapping thinking the same goal award and eliminating the inferior fear will be difficult to achieve. The performance evaluation system, there are many worth exploring the topic, this study only for the existing performance evaluation system content, informal rules and the draft amendments to civil servants Act performance to explore, In order to find the relevant issues, and to make appropriate recommendations correction performance evaluation system.

並列關鍵字

Performance evaluation system ； The proportion of handicapping ； Informal rules

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