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  • 學位論文

勞退新制的制度分析:行動者與生活世界的文化觀

An Analysis of Labor Pension Act: From Cultural Views of Actors and Their Life-worlds

指導教授 : 范雲
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摘要


在人口老化的脈絡下,老年經濟安全保障成了重要的議題,對此,政府亦有各種相應的制度規劃。其中,對照屬社會保險的勞工保險、國民年金,採用個人帳戶制的勞工退休金條例則顯得格外不同。因此,必須追問為什麼勞退新制會採取個人帳戶制,而不是延續其他制度的社會保險原則呢?此外,在政府所提供與宣稱的保障之外,一般人們到底如何理解這個自身退休切身相關的制度呢?基於這樣的問題意識,本研究便從文化的角度理解勞工退休金條例(勞退新制)的形成及其社會效果。從文化角度出發,可以發現政策制定層次的行動者對於退休制度該如何設計,以及一般民眾從自身生活世界出發,都自有一套論述或詮釋。這些論述或詮釋儘管各有異同,彼此甚或有一些因誤認而相合、因誤解而扞格之處,但無論如何制度總會實際涉入一般民眾的生活之中,而制度的社會效果亦在這些詮釋上的異同中被強化或掩蓋。基於這樣的理論觀點,第三章將會分析,勞退新制的形成過程中,個人帳戶制是如何隨著主要政策制訂者的變動而勝出的,在這個制度大轉彎的過程中(這甚至是路徑依賴概念難以解釋的),除了政府的財政節約考量外,相關行動者的理念與論述扮演著關鍵的角色,而且隨著個人帳戶制的勝出,政府對於對政策的正當性主張亦有所改變。然而,勞退新制形成後的政策宣傳,反應了政府對於退休制度的想像與看法,但民眾亦有自己的詮釋方式。因此,在第四章裡,我將指出,個人帳戶制一定程度上符合民眾對於退休的期待,但有趣的是,在政府與民眾對於退休的個人化態度背後,所持理由並不相同。對政府來說,個人帳戶制減少了政府財政負擔,因而這樣的制度設計(確定提撥、個人儲蓄)便是合理措施。對民眾來說,處於由職涯、生涯所構成的身份、意義、社交的網絡之中,個人同時在網絡中付出與獲得(目前或退休後的)經濟保障,其所考量的是個體的付出、收穫與責任,因此退休後的經濟安全保障與當下個人責任有關。因而,在退休上政府與民眾看似達成共識,其實這指只是一種「誤認」,政府與民眾各自形成意見的理由、邏輯並不相同。然而,這樣的誤認有無其後果?若有代價,則必須由誰支付?因此,在第五章我將進一步指出,由於政府對勞退新制的正當性宣傳,以及對民眾的想像方式,勞退新制的社會效果並不一定能達到所宣稱的增進勞工退休生活保障的效果。對於那些職涯、薪資不穩定的勞工,也就是最需要受到保障的行動者,勞退新制的保障效果降低,但對此問題的提問卻消失在各種政策想像之中,成為政策理所當然化的盲點。在結論部分,將總結本論文的分析,並對於研究限制與未來研究方向,提出一些建言。

並列摘要


Old age security becomes an important issue in our aging society. Among all kinds of polices made for dealing with old age security, the Labor Pension Act stands out distinctive from others for its individual account rather than social Insurance which characterizes Labor Insurance Act as well as National Pension Act. The formation process and social effect of the Labor Pension Act are analyzed in this study in a cultural perspective. Actors, based on their context and web of meaning, interpret, then to make sense of effects brought about by the Labor Pension reform. Different data, such as secondary data, interviews, and social surveys, are used to show the difference of interpretations between policy makers and actors who live in their life-worlds. As Chapter 3 shows, in the formation process of the Labor Pension Act, the frame of discourse changes, and the actors involved in the policy debate also change, not to mention the way of claiming legitimacy. The policy makers, or the government, has one way of interpretation toward the Labor Pension Act, pension system, and labor. The actors who live in their own life-worlds have the other ways to interpret the Labor Pension Actor and their own life. Chapter 4 shows that actors living in their life-worlds regard retirement as an individual issue, but with different reasons. Lifeworld actors are embedded in webs of meaning, actors, and identities. Webs change with actors’ life course. Lifeworld actors have to deal with current issues in each stage of lifecourse, and give/gain support from others in webs. So, retirement support, for Lifeworld actors, comes from actors’ webs, not individual account of the Labor Pension. Furthermore, in chapter 5, we can see the government’s claiming and interpretation creates a blind spot so that the deficiencies of the Labor Pension Act become invisible. Will those people with low income and unstable career path, namely the real in need, have enough support when they retire from work? It’s surely the aim claimed by the Labor Pension Act, but this claim has still be left without further problematization and reflection.

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