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題名:公共部門團體協商程序之研究:美國聯邦政府之經驗與啟示
作者:丘周剛 引用關係
校院名稱:國立臺灣大學
系所名稱:國家發展研究所
指導教授:趙守博
蔡政文
學位類別:博士
出版日期:2001
主題關鍵詞:公共部門團體協商僵局程序public sectorcollective bargainingimpasse resolution
原始連結:連回原系統網址new window
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公元二千年,不僅是在我國政黨政治發展史上是一重大改變之一年,在公共行政人事制度上也是重要之關鍵點,蓋以往所謂公職人員選舉在地方上雖然黨派之更迭常見,但所影響之範圍並不大,但中央政府政黨輪替,由於影響之範圍既深也廣,使得傳統所謂「鐵飯碗」的公共部門受雇者,其勞動權受到極大之挑戰,而前些時中山科學研究院約聘僱非軍職人員以及凍省後省府員工之勞動權益問題等等,相較於一般私部門勞動者所擁有之團體協商權,或是受到勞動基準法等相關勞動法規之保障,許多公共部門受雇者恐怕自嘆弗如也﹗
事實上,就民主政治及政黨政治而言,大選後贏者掌權敗者下台固為常規,但就理論而言,這應僅限於政務人員而不及於事務人員,惟隨著選舉之白熱化現像,事實上很難不將選舉恩怨記仇於事務人員,而就公共部門受雇者勞動基本權保障之法理觀之,其取得本項職位之資格本較一般私部門來得嚴格,在品位制度下,又需受到相當之規制,且伴隨著日漸高風險的民主政治遊戲規則下,禁止公共部門受雇者就勞動條件來加以協商,似乎無法理解此項禁止理由之正當性基礎。
在美國當時公共部門勞動關係發展時,亦有類似客觀狀況,自一九六0年代開始,當公共部門受雇者組織呈加速成長及茁壯時,美國國會及數州之立法機關即陸續制定授與公共部門受雇者團體協商之權利。而此項趨勢乃反應著,在一定範圍之內,以團體協商可作為降低勞資爭議之手段。而之所以採取團體協商的作法,也是因為受到如下認知,那就是公共部門管理者在許多方面是與私部門僱主相似,因此全盤否認公共部門受雇者之團體協商權是不合理的,而事實上往往很難區別僱主是屬於公共部門或是私部門。此外,在由與公共部門團體協商之實質經驗中得知,該項措施事實上緩和了立法者以往所擔心公共部門受雇者工會,將會以政府或是公眾作為達到其需求人質之目的。本研究在章節層次上試分為六章,第一章為緒論,主要內容為、研究動機與目的、研究對象以及研究方法與限制等,第二章主題是探討公共部門之基本理論,主要在探討人性尊嚴在勞動關係上之義含,並將公共部門團體協商制度定位在擴大維護勞工權利之曙光位階,第三章內容為探討美國公共部門團體協商之法源與範圍,主要從美國公共部門團體協商權之法源出發,探討團體協商權之憲法法源及團體協商權之制定法規定,進而研究判例法國家中司法對於團體協商範圍之限制,對此,將重點集中在司法所開闢之三理論,即「團體協商及管理權」、「團體協商及公共政策」以及「角色傾向(Role oriented)理論」,本章最後再探討政府義務的契約條款之內容,以研究團體協約之法律地位。第四章起進入美國公共部門團體協商僵局解決程序,由於團體協商過程中難免因雙方認知或主張之不同而產生爭執,為避免動輒發生爭議行為,在此,美國有一完整之處理程序,也是本論文著重在研究團體協商制度而部探討爭議行為之因,因為若有一完善之僵局解決程序,則爭議行為勢必隨之減少,進而降低對建立公共部門團體協商制度之阻力。就此部份而言,需要研究的主題有僵局程序之研究、調解與事實調查以及仲裁程序,在仲裁程序須研究的課題有仲裁之範圍、仲裁者之遴選、仲裁者權力之限制、仲裁發動、仲裁程序與規則、仲裁裁定之法院審查、仲裁聽證及仲裁費用等,另外尚有所謂訴怨(grievance)程序,也是本研究之重心,包括訴怨之發動、展開、調查、訴怨仲裁程序之步驟、活動之限制、訴怨代表等。至於第五章要研究的主題是柯林頓總統的「政府再造」政策對於勞動關係之影響,自一九八○年代以降,美國政在伴隨著府預算赤字及績效赤字的雙重壓力下,再加上雷根政府及布希政府時期專注於外交事務,使得許多國內事務並未受到重視,諸多問題於焉產生,是以美國民眾對政府行政革新有其強烈之渴望,前總統柯林頓在首次競選美國總統之活動中,即以行政改革作為其主要政見。而「國家績效評估(National Performance Review)」小組即是前柯林頓政府成立後為改革聯邦政府工作而成立的。其目標是創造一個政府「工作更好、花費減少(works better & costs less)」!本文主要在探討柯林頓政府所提出之政府再造政策(「國家績效評估」)在公共部門勞動政策上所造成之影響與改革,藉以作為我國日後參考之借鏡。第六則是總結,分析美國經驗以及對我國的啟示,另針對我國業已發生之公共部門勞動問題做個案之探討,並根據美國政府之經驗對我國未來之公共部門勞動關係提出具體性之看法,為我國未來公共部門勞動政策提出前瞻性之政策建議。
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