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題名:美英文官制度雇用政策變革之研究:政策價值的觀點
作者:熊忠勇
作者(外文):Hsiung, Chung Yung
校院名稱:國立政治大學
系所名稱:公共行政研究所
指導教授:施能傑
學位類別:博士
出版日期:2005
主題關鍵詞:雇用政策效率政治回應社會公平個人權利employment policyefficiencypolitical responsivenesssocial equityindividual right
原始連結:連回原系統網址new window
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  • 被引用次數被引用次數:期刊(1) 博士論文(3) 專書(0) 專書論文(2)
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  • 點閱點閱:174
文官制度所涉及的政策層面相當廣泛,其中雇用政策的設計,連帶影響後續俸給、考績、訓練、退休等政策的規劃,再加上雇用政策涉及職位的分配、組織人力結構的設計與調整等,可說居於文官制度的關鍵地位,因此雇用政策的變革,反應出組織需求的改變,也是政策價值競逐的主要領域,對於雇用政策的價值進行深入分析,有助於了解文官制度中的利益衝突,並藉此尋找可能調和的方法。本文基於這樣的思考,嘗試透過政策價值的觀點,對於美國及英國雇用政策之變革進行分析,希望提供我國未來雇用政策變革之參考,本論文主要探討的問題有三個:
問題一:文官制度雇用政策有那些價值?意涵為何?這些價值在人事管理及雇用政策上的具體應用情形如何?有那些指標適合說明雇用政策的價值變遷呢?
問題二:透過雇用政策變革的指標,探討美英二國在文官制度雇用政策的歷史演進,並說明近年政府再造風潮下,美英二國現階段雇用政策的價值偏好。
問題三:雇用政策的各種價值之間,存在何種衝突與矛盾?應透過何種方式理解,衝突的價值之間是否有調和的可能?又應如何解決?
本論文共計六章,除第一章緒論及第六章結論外,上述三個研究問題,分別在第二章至第五章鋪陳。第二章首先歸納文官制度雇用政策的四大價值理論,分別是效率、政治回應、社會公平及個人權利,然後進一步闡釋這四項價值在公共行政、人事管理及雇用政策上的意涵與應用情形,最後將這些價值在雇用政策上的應用情形加以歸納成四項指標,分別是服務型態與任用型態、文官數量的變化、弱勢族群的雇用政策、雇用的方法與模式。第三章及第四章便是利用這四項指標,來探討美英二國雇用政策的演進及1980年代政府再造風潮下,二個國家雇用政策的價值偏好。本論文研究後發現,這二個國家在新公共管理的理念趨使下,目前雇用政策最重視的價值為效率,其次為政治回應與社會公平,至於個人權利價值則受到弱化。
第五章則是透過辯證的方法,來說明政策價值間的衝突關係,並尋求可能的調和方法,由於文官體制內的充斥著許多價值間的緊張關係,如果將任何一項價值推至極端,相對壓縮其他價值的空間時,便可能發生人力資源管理的扭曲,亦即本論文所謂的病態現象,必須透過其他價值加以抗衡,即本論文所稱抗衡性價值。舉例而言,效率至上的雇用政策,可能產生的病態有目標錯置、菁英主義、濫用管理權,這些病態應分別輔之以政治回應價值、社會公平價值及個人權利價值來化解。事實上,每一種價值在特定環境系絡上,也許是對的,但就另一種價值觀點而言,卻可能是不平衡、不負責任的,我們不能期待某種價值立場能夠提供永久的答案,而應視系絡的需求給予不同的思考。
第六章結論,在研究發現上,有關政策價值層面提出三點發現,分別是政策價值的演進與循環、政策價值的衝突、政策價值的平衡思考。在美英二國的研究中,從服務型態與任用型態而言,美英兩國均透過職位的重新設計或建置新的職位制度,以滿足執政者的需求,例如美國的SES及英國的SCS。其次,二國均強調彈性用人趨勢,尤其英國多數文官已改採契約用人制,但此一趨勢只是推動績效管理的手段,並非以打破文官的永業特性為目的。在文官數量上,二國均試圖精簡員額,以減少人力成本,雖然中央政府文官數量已明顯下降,但就全國雇用數而言,未必達成真正的成效,反而有成為政治操作的情形,近年文官數量的變化,已有回升的現象。在弱勢族裔的雇用政策,主要為優惠女性、身心障礙者與少數族裔,由於它在政治上的熱度下降,近年有轉向多元化管理的趨勢,但目前仍為二國所重視。在雇用方法與模式上,二國均強調分權化、彈性化的運作模式。最後,根據美英二國的經驗,對於我國未來文官制度雇用政策提出若干建議。
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