社會工作的「薪」時代？臺灣、香港社工勞動派遣實踐經驗之探討

Is It the "New" Way of Employing in Social Work？ The Dispatching of Social Workers in Taiwan and Hong Kong – Its Impact on Working Conditions and Quality of Service

周珀妘(Po-Yun Chou)

指導教授 ： 汪淑媛

國立暨南國際大學/人文學院/社會政策與社會工作學系/碩士(2015年)

https://doi.org/10.6837/NCNU.2015.00151

摘要

社會福利服務基於成本考量，常採用非典型就業的方式聘僱社工；然而，在眾多的非典型就業型態之社工中，以勞動派遣者最屬弱勢。我國勞動部於2014年2月提出《派遣勞工保護法》草案，該草案是採負面表列之設計，並未將社會福利服務人力予以排除，再加上社會工作是一門人力密集的產業，故研究者認為於該法正式定案前，有重新檢視勞動派遣在社會工作領域實踐之必要。承接上述，本研究旨在探討勞動派遣聘僱方式於社會工作領域的實踐經驗，以臺灣為主、香港為輔，除了探討其實踐方式外，亦關注到勞動派遣中三方的互動關係、政府角色和實踐後對社工個人、社工專業發展所帶來的影響。
本研究採用質性研究典範，一共訪談7位臺灣派遣社工與2位香港派遣單位督導主任、4位派遣社工，並以半預建式編碼對資料進行分析。分析後，以「尊嚴勞動」的概念為基礎，在平等、人性、安全與尊嚴的價值信念上，針對勞動派遣的實踐經驗做討論，研究結論如下：

一、微視層面─派遣社工的勞動條件：勞動派遣的實踐導致社工的薪資結構失衡，社工低薪化日益嚴重，而同工不同酬的現象亦催化勞動力階級化與就業歧視的議題；其次，派遣社工由於僱用與使用分離的方式，使得其產生歸屬與認同感的失落，衍伸存在的焦慮；第三，臺灣部分派遣社工缺乏系統性的督導與訓練資源，然用人單位又要求社工須提供有品質的服務，導致社工如同免洗餐具般遭到快速汰換；最後，臺灣法規的疏漏與契約界定不清，引發社工勞動權益的爭議。

二、中介面─服務對象的福祉與服務的品質：臺灣私部門為了因應評鑑、降低成本，向派遣單位購買社工人力服務的時間多半不足，導致假資料與假服務層出不窮，社工因應評鑑而存在，卻未落實服務的提供，或僅能篩選狀況較佳的服務對象進行服務，無形中將狀況較差的服務對象排除於服務輸送體系之外。此外，因為派遣契約的不穩定，使得服務延續困難，服務多半是沾醬油式的，短暫且片面的服務，以預防性的服務為主，服務的成效大幅降低。

三、鉅視面─政府與相關法規：臺灣政府雖亦使用派遣社工人力，然而其未能區分外包承攬與勞動派遣，導致社工的勞動權益與政府做為雇主的責任義務模糊不清，政府既要握有社工的勞動指揮權，卻又不願意承擔做為雇主的責任，亦為其他民間部門做了最壞的示範；更甚者，今日我國將立法規範勞動派遣的運用，政府同時兼具球員與裁判的雙重身分，如何透過法規來保障派遣勞工的勞動權益，有待商榷。

關鍵字

非典型就業 ； 勞動派遣 ； 生產主義福利體制 ； 彈性安全 ； 尊嚴勞動

並列摘要

Based on the cost considerations, the field of social welfare services often hires social workers with atypical employment. However, the labour dispatching is the worst of the atypical employment types. The Ministry of Labour in Taiwan announced the draft of the Dispatched Labour Protection Act on February 2014, and the Act was designed at the negative list. The field of social welfare services does not excluded in using the dispatched workers, in addition, it is also a kind of labour-intensive industry. Consequently, it is necessary for us to re-examine the practice of labour dispatching in the field of social work. In summary, the purpose of the study is to examine the practice experience of using dispatched social workers in Taiwan and Hong-Kong, not only its practical way, but also its interactive relationship and impact. This study adopts qualitative research model to achieve the purpose. I have interviewed 7 dispatched workers in Taiwan and 2 supervisors, 4 dispatched workers in Hong-Kong to join this study. I used the Template Analysis Style to analysis the data from the interviews, and arguing at the perspective of the Decent Work which belief is the value of equality, humanity, security and dignity. The research conclusions are as follows:

1. About the working conditions of the dispatched social workers: First, the practice of the labour dispatching makes the salary of the workers imbalance, and low pay of social work is increasingly serious. Moreover, the situation of unequal pay for equal work promotes the class of labour and employment discrimination. Second, owing to the hiring and using of dispatched workers are separated, most of the workers would feel lost in the sense of belonging and identity. And the experience of feeling lost would lead to the anxiety of personal existence. Third, a part of the dispatched workers lack of the systematic supervision and training resources. But the employer still request that the workers should provide the service in high quality, and such situation makes the workers be replaced fast. Finally, the regulations in Taiwan do not clear enough, and there have many flaws which causes the controversy of the labour’s working right.

2. About the well-being of cases and the quality of service: Taiwan’s private sector use the dispatched workers’ service in order to pass the evaluation and reduce the cost. But the time they bought is not long enough for the workers to provide integral service. It causes not only the fake data and service becoming prevalent, but also the case whose condition worse would be excluded from the service system. Furthermore, the dispatching contract is so unstable that makes the service hard to continue. The service providing is just like the sauce dipping which is brief and one-sided. Therefore, the service just do to the prevention, and its effectiveness would be significantly reduced.

3. About the government and relevant regulations: Though Taiwan Government has used dispatched workers, it cannot distinguish the outsourcing and dispatching. It leads to the working right of the workers and the obligations as employer becoming indistinct; in addition, the Government does a bad example for the private sectors. However, the Government is going to legislate against in the using of dispatching, and I have no idea that how it can do well as a player and the referee at the same time.

並列關鍵字

Atypical Employment ； Labour Dispatch ； Productivist Welfare Capitalism ； Flexicurity ； Decent Work

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中文文獻