中國大陸公務員聘任制之研究（1980-2023）

Abstract

1980年代以來，全球政治、經濟與社會環境的重大變革，促使西方國家開啟傳統文官制度的改革，以提高政府機構的行政效率和整體競爭力。新公共管理採用了私人企業管理的概念與方式，在政府機構中彈性運用契約人力，期望達成改革文官體制的目標。中國大陸雖然於2006年才開始正式實施國家公務員制度，但1980年代起實施的「幹部人事制度改革」即已採納西方行政改革的經驗，以適應邁入社會主義市場經濟體制的需要。而近年在習近平提出「治理體系與治理能力的現代化」的治國方針後，提升幹部治理能力、發展專業人才等議題躍居其強國發展戰略的重要位置。本文以新公共管理理論作為基礎理論，從現代化治理的角度出發，分別從歷史視角、法制途徑與實務面向，探討當前中共的治理環境中聘任制公務員所扮演的角色，透過對於現行制度與實際試點的成效評估其特色與利弊得失，展望未來並提出研究結論。 研究發現，聘任制公務員雖然採用了西方新公共管理的概念，但在中國黨管幹部的特殊體制下，卻也發展出了具有中國特色的獨特模式。此外，儘管聘任制公務員順應了文官制度改革的世界趨勢，但當前中國高壓政治的內部環境也對公務員的招聘方面產生了阻礙，連帶影響了聘任制度效果的發揮。不過，面對全球積極招募人才的時代來臨，中國也高舉「新時代人才戰略」的大旗，積極推進招才引智工作。本研究認為，儘管聘任制公務員存在一定的困難與挑戰，但隨著中國特殊人才引進和管理的必要性日增，中國大陸公務員的聘任制度仍有一定的發展空間。

Since the 1980s, significant changes in the global political, economic, and social environment have prompted Western countries to initiate reforms in their traditional civil service systems to enhance administrative efficiency and overall competitiveness of government institutions. The New Public Management (NPM) adopted concepts and practices from private enterprise management, flexibly utilizing contractual personnel within government agencies, aiming to reform the civil service system. Although mainland China only formally implemented the national civil service system in 2006, the "Cadre Personnel System Reform" initiated in the 1980s had already adopted experiences from Western administrative reforms to adapt to the needs of transitioning into a socialist market economy system. In recent years, following Xi Jinping's proposal of "modernizing the governance system and governance capacity," issues such as improving cadre governance abilities and developing professional talent have become key components of China's strategy for strengthening the nation. This paper uses NPM theory as the foundational theory, approaching from the perspective of modernized governance, and explores the role of contract-based civil servants in the current governance environment of the Chinese Communist Party (CCP) from historical, legal, and practical viewpoints. It evaluates the characteristics, advantages, and disadvantages of the current system and actual pilot implementations, providing conclusions and future outlooks. The study finds that while contract-based civil servants have adopted the concepts of Western NPM, they have developed a unique model with Chinese characteristics under the CCP's special system of cadre management. Additionally, although the contract-based civil servants align with the global trend of civil service reform, the current high-pressure political environment in China has created obstacles in civil servant recruitment, affecting the effectiveness of the contract system. Nonetheless, as the era of global talent recruitment intensifies, China is also actively promoting talent acquisition and intelligence work under the banner of the "New Era Talent Strategy." This research concludes that despite certain difficulties and challenges, the contract-based civil service system in mainland China still holds development potential given the increasing necessity for special talent introduction and management.