社會福利政策執行之研究--以國民年金保險費收繳為例

Abstract

政策執行為影響政策成果之關鍵，經由多元參與者彼此通力合作，方能達成政策目標。國民年金保險為我國重要的社會福利政策，其執行即涉及多元參與者，主要包含中央主管機關衛生福利部，保險人勞動部勞工保險局，以及地方主管機關各直轄市、縣（市）政府，其運作與互動對政策執行息息相關。 考量國民年金保險被保險人多屬未就業之國民，繳費能力較有困難，爰《國民年金法》訂有相關補助措施，又針對無力一次繳納欠費者，則設有分期繳納保險費及10年緩繳的機制；另因國民年金保險未設有投保單位，其特殊性讓執行機關較難以聯繫被保險人，致保險費收繳產生一定之難度，其收繳情形值得關注。因此，本研究旨從政策執行之角度，探討國民年金保險執行機關（含衛生福利部、勞動部勞工保險局及各地方政府），於執行國民年金保險費收繳業務時之互動情形暨影響因素，以期了解國民年金保險費收繳之現況。 本研究為質性研究，以立意取樣及便利抽樣等抽樣方法，分別邀請衛生福利部、勞動部勞工保險局及各地方政府執行國民年金保險費收繳業務之長官及承辦人員參與訪談，並從Edwards政策執行力模式中之官僚結構、溝通、資源及執行人員意向等面向分析。 研究發現衛生福利部、勞動部勞工保險局及各地方政府於國民年金保險費收繳業務互動密切，惟其間之互動情形仍有進步空間，諸如在官僚結構之權責分工方面，因業務眾多且權責分工細緻，機關間難免自我解讀，致產生模糊空間；標準化作業流程部分，大方向之作業原則由執行機關擬訂，報請上級機關核定，而內部細節性之作業標準，則由基層執行機關自行擬定，上級機關不會多加干涉。在溝通方面，因執行機關間均無隸屬關係，於互動過程中耗費大量時間，增加溝通成本。在資源方面，中央機關（衛生福利部、勞動部勞工保險局）掌握之資源相對較多，主要由中央主管機關衛生福利部主導資源配置。在執行人員意向方面，執行機關對國民年金保險費10年補繳期限之規定與處理方式各有不同看法，雖會適時向上表達相關意見，惟因法律定有明文，較難以改變現狀。至影響執行機關互動因素部分，本研究發現Edwards政策執行力模式中之官僚結構、溝通、資源及執行人員意向等面向均有相當之影響，惟因缺乏相關客觀之數據，難以判斷各項因素對執行機關互動關係之影響力大小。 依據研究發現，本研究提出關於政策執行、政策及未來研究等三方面之建議，在政策執行方面計有三項建議，首先執行機關得於例行公務互動外，定期召開相關會議，建立面對面之溝通聯繫機制；第二將國民年金保險在地性催繳及宣導業務納入各地方政府法定職掌，並以法令方式明定勞保局與地方政府之分工；第三擴增國民年金服務員，適時調整薪資以留住人才。在政策方面同樣提出三項建議，其一主管機關衛生福利部審慎研擬調整國民年金保險費10年補繳期限之規定；其二放寬國民年金保險被保險人加保資格，並落實社會保險強制性之特性；最後將設置社會保險專責機關，負責統籌及辦理社會保險業務一事納入長程規劃，俾使各項保險業務能夠更加事權專一。另在未來研究方面，可將政策執行成效議題作為下一階段之研究主題，從量化研究角度討論國民年金保險之政策執行，以更加地釐清國民年金保險政策執行之全貌。

Policy implementation is the key to influencing policy outcomes, and policy objectives can only be achieved through the cooperation of multiple participants. National Pension Insurance is an important social welfare policy in Taiwan, and its implementation involves multiple participants, mainly including central competent authority Ministry of Health and Welfare, the insurer Bureau of Labor Insurance Ministry of Labor, as well as the local competent authority municipality and county governments. Considering that most of the insured persons in National Pension Insurance are unemployed, they may be difficult to pay premiums. Therefore, National Pension Act provides relevant subsidy measures, and insured are allowed to pay the premiums in ten years. Besides, because of no insured units, which makes it difficult for the executive authority to contact the insured, resulting in difficulties in the collection of insurance premiums. Its collection situation is worthy of attention. Accordingly, the purpose of this study is to explore the interaction and influential factors of the National Pension Insurance executive agencies (including Ministry of Health and Welfare, Bureau of Labor Insurance Ministry of Labor and local governments) from the perspective of policy implementation, in order to understand the situation of National Pension Insurance premium collection. This study is a qualitative research, using sampling methods such as purposive sampling and convenience sampling. The executives and implementers of National Pension Insurance premium collection from Ministry of Health and Welfare, Bureau of Labor Insurance Ministry of Labor and local governments are invited to participate in this study, and will be analyzed by Edwards’ policy implementation model. This study found out that Ministry of Health and Welfare, Bureau of Labor Insurance Ministry of Labor and local governments have close interaction in the collection of national pension insurance premium, but there is still room for improvement in the interaction between them. For example, the fragmentation of bureau structure, due to the large number of businesses and the meticulous division of responsibilities, it is inevitable for agencies to interpret themselves, resulting in a vague space; in the part of standard operating procedures, the operation principles of the general direction are formulated by the executive agency and reported to the higher-level agency for approval, while the internal detailed operation standards are formulated by the grass-roots executive agency, and the higher-level agency will not interfere more. In terms of communication, since there is no affiliation between executive agencies, it takes a lot of time in the interaction process and increases communication costs. In terms of resources, the central authorities (Ministry of Health and Welfare as well as Bureau of Labor Insurance Ministry of Labor) have relatively more resources, and Ministry of Health and Welfare dominates the allocation of resources. In terms of disposition, the executive authorities have different views on the handling of the 10-year repayment period for national pension insurance premiums. Although they will express relevant opinions, it is difficult to change the status quo due to the express provisions of the law. As for the factors affecting the interaction of executive agencies, this study found out that four aspects of Edwards’ policy implementation model have considerable influence. However, due to the lack of relevant objective data, it is difficult to judge the influence on the interaction between executive agencies. Based on the research finding, this study proposes three recommendations on policy implementation, policy and future research respectively. There are three suggestions in terms of policy implementation. First, the executive agency may hold regular meetings and establish a face-to-face communication mechanism in addition to routine official interactions. Second, to incorporate the local government payment and publicity business of the National Pension Insurance into the statutory duties of each local government, and to clarify the fragmentation between Bureau of Labor Insurance Ministry of Labor and the local government, in the form of laws and regulations. Third, increase the national pension insurance servicing staff, timely adjust wages to retain talents. In terms of policy, three suggestions are also made. First one is Ministry of Health and Welfare, the competent authority, carefully studies and adjusts the provisions of the 10-year repayment period for national pension insurance premiums. Secondly, expand the qualifications of the insured and implement the mandatory characteristics of social insurance. Last but not least, a special social insurance agency shall be set up to be responsible for coordinating and handling social insurance business into long-term planning, so that each insurance business can be more specific. In addition, in the future research, the issue of policy implementation effectiveness can be taken as the research topic of the next stage, and the policy implementation of the National Pension Insurance can be discussed from the perspective of quantitative research, so as to better clarify the whole picture of the implementation of the National Pension Insurance policy.