公務人員考績制度變革與評估：以臺中市政府所屬公務人員為例

The Reform and Evaluation of The Civil Service Performance Evaluation System：An Example of Public Servants in Taichung City Government

江國鐘(Chian-Kuo Chung)

指導教授 ： 蔡榮祥

國立中正大學/社會科學院/政治學系/碩士(2014年)

摘要

考績是公務人員人事法制的核心，其與公務人員個人官等的任用、陞任先後、選送訓練排序、俸級晉級結果，乃至於退休給與核敍等均密切相關。因此，考績的設計良窳，不僅直接影響公務人員對其工作投入程度、工作滿足或組織認同等態度或行為都有影響，間接的也都影響到政府運作的成本與績效，還有大眾對公務人員形象的觀感。
我國公務人員考績制度自民國76年實施以來，期間20幾年雖歷經4次修訂。但無論如何修訂，其在法制面上與實際執行面上卻仍存在許多缺失。也因為這些缺失未見改善，導致公務體系長期來給人績效不良，形象欠佳之觀感。
近年來隨著國人質疑公務人員的產出與相對優沃福利不對等的氛圍升高下，考試院乃從善如流，於2010年提出了第5次的公務人員考績法修正案，期望透過再次的對制度變革來達到公平正義、獎優汰劣的目的。本文即藉由大量的文獻蒐集、研究並分析出現行公務人員考績制度的問題，進而再針對考試院於本次所提的考績法修正內涵，分析出相對變革之處。
上開所揭「公務人員考績法修正草案」變革內容，如增訂考績丙等比例設限制度、刪除乙等可為升等之依據、加列「優等」等第並明定優等及甲等所佔比率、修訂考核標準改以工作績效（70％）及工作態度（30％）評分等，因仍備多爭議與質疑，故目前尚於立法院審議中。本文研究目的之一便是欲意了解該制度適用關係者，其數十萬公務人員對修法變革的認知。經由以上文獻檢閱結果，以半結構式及開放式問題來設計訪談題綱，並針對臺中市政府所屬機關學校公務人員進行深度訪談，蒐集、歸納出代表普遍基層人員的看法，進而有效客觀評估、分析本次修法效益，最後歸納出研究結論有：刪除乙等可為考績升等依據的變革，影響公務員權益甚於考列丙等設限制度；考評標準改以工作績效為核心，未能同時重視工作態度；增列「優等」等第，恐淪為酬庸工具；丙等比例措施過度設限，考列丙等條件設定部分未具體等負面效益，嚴重打擊士氣。故本研究也分別提出有部分變革應開啟政策視窗，取得回應與反饋訊息後再行評估實施；考評標準比例占分應再授權各機關調整之；考列優等之人員，應加列規定要求檢附具體事蹟表及考列丙等要件應具體明確、刪除丙等比例設限等具體政策建議，以作為未來考績制度修正進一步之參考。
【關鍵字】公務人員考績法修正草案、制度變革、制度適用、利害關係人

關鍵字

制度適用 ； 制度變革 ； 公務人員考績法修正草案 ； 利害關係人

並列摘要

Performance evaluation is the core of laws governing the employment, promotion priority, training arrangement, salary grade, and even the retirement pension of public servants. The design of a performance evaluation system not only directly affects the job involvement, job satisfaction or organizational identification of public servants but also indirectly affects the cost and performance of the government administration as well as the image of public servants in the eye of general citizens.
The civil service performance evaluation system in Taiwan has undergone four amendments since implemented in 1987. Despite these amendments, many problems still exist in the legal provisions and practice of the system. Because of these problems, the public services system has long suffered a negative image of poor performance.
In recent years, with the rise of public awareness of the imbalance between the performance output of and the relatively more generous benefits for public servants, The Examination Yuan of R.O.C. submitted the fifth amendment to the Civil Service Performance Evaluation Act in 2010, in hope of awarding the superior and eliminating the inferior through another round of system changes. This study reviewed a large body of related literature to analyze problems in the current civil service performance evaluation system and further identify system changes brought about by the latest amendment.
The “Draft Revision of the Civil Service Performance Evaluation Act” has a number of changes to the existing laws, including the addition of a minimum ratio of public servants to be rated Class C, deletion of the legal basis for promoting Class B public servants, addition of Class A+, addition of a fix ratio of public servants to be awarded Class A+ and Class A, and updating the merit evaluation standards to have 70% weight on job performance and 30% on job attitude. Many of these changes are controversial, so this draft revision is still being reviewed by the Legislative Yuan. One of the objectives of this study was to investigate perceptions of system changes among the stakeholders—hundreds of thousands of public servants. Based on previous literature, this study designed a set of semi-structured and open-ended questions for in-depth interview with public servants in schools affiliated with Taichung City Government. Through this interview, this study attempted to collect and summarize general public servants’ views on the potential changes to the current system and further assess the effectiveness of this amendment. The main findings were summarized as follows: Deleting the provision that allows promotion of Class B public servants would affect the rights and benefits for public servants’ more greatly than requiring a minimum ratio of public servants to be rated Class C. The change to the evaluation standards would make job performance a dominant criterion and degrade the importance of job attitude. Class A+ might be used as an instrument for compensation. The excessive limitation on the minimum ratio of public servants to be rated Class C was set without consideration of potential negative effects and might seriously affect the morale of public servants. Based on these findings, this study suggested that a policy window be opened to collect feedbacks and evaluate the feasibility of some changes. Besides, all public departments should be authorized to adjust the ratio of weight for each criterion in the performance evaluation system. Substantive proof of merit or reasons are needed for giving Class A+ or Class C to any public servant. The requirement for a minimum ratio of public servants in the department to be rated Class C should be abolished. These suggestions could be a reference for future modifications of the civil service performance evaluation system.

Keywords: Draft Revision of the Civil Service Performance Evaluation Act, System Change, System Applicability, Stakeholder

並列關鍵字

System Change ； System Applicability ； Draft Revision of the Civil Service Performance Evaluation Act ； Stakeholder

參考文獻

楊安成，2005，（我國公務人員考績項目改進之探討），《考銓季刊》，第43期，162頁

林佩吟，2013，（我國公務人員考績丙等制度之政策論證分析），嘉義：國立中正大學政治學研究所碩士論文。

陳柏瑋，2011，（公務人員丙等考績新制之檢討），桃園：國立中央大學法律與政府研究所碩士論文。

一、書籍部份（按姓氏筆劃排列）

考試院考銓叢書指導委員會，《中華民國銓敘制度（下冊）》，臺北：正中書局，1990年8月，220頁。