臺灣開放公務員滿意度調查的可行性研究

Abstract

Covid-19疫情期間臺灣表現亮眼，根據近年多項國際指標及評比，臺灣已然擠身民主開放國家之列，公務員是守護民主的第一線，國家競爭力的關鍵。國家除了領頭加薪，更應改善公部門職場環境及制度，落實多元民主價值，提升工作滿意度，保障其意見表達的管道，且能包容、傾聽及回應。 研究採文獻探討及深度訪談法，立意抽樣訪談制度之利害關係人，包含世代公務員、開源協作參與者、業務主管機關、學者與專家，並針對不同性質受訪者設計訪談問題，探討「開放調查」的可行性。所謂「開放調查」，係指不僅要做全國公務員滿意度調查，更要將結果向大眾公開，資料開放下載應用，促進外部參與，結合眾人智慧，讓政府、公務員與社會都受益。 研究發現，公部門不透明與封閉的文化，加上法規未能與時俱進，使得不合時宜的潛規則，在不公開與言論自由受限下惡性循環，讓公務員更難以「做自己」；開放資料可以避免資訊落差，改善權力不對等，應善用跨機關、跨領域資料的協作整合，增進公務員福祉，讓公務員做更好的自己，更多人才願意為國效力。 服從長官就是服從民主，而民主是服從也是監督，主管的管理方式需要監督把關；公務員服從的既是民主，自當以民主的方式教公務員信服；當公門文化越民主開放，公務員越能施展創意和熱忱，才能期待臺灣民主更為鞏固，發展更具競爭力。此外，公部門的形式主義，導致政策多流於形式，透過外部監督機制和完整配套，提升政府可課責性，可以避免流於形式。可行性的關鍵在於政治，而為舒緩過度期之衝擊，可採漸進式開放；搭配揭弊者保護及相關法規修正，讓公務員多一層保護，也提升可行性。 研究最後，本文提出四項建議供政策推動參考：資料適度開放，支持開放文化；具體完整配套，專業公正公開；管理帶人帶心，服務連結民意；盤整員額加給，彌平待遇落差。

Taiwan has performed well during the Covid-19 pandemic. According to a number of international indicators and rankings in recent years, Taiwan has already joined the ranks of democratic and open countries. Civil servants are the front line in protecting democracy and the key to national competitiveness. In addition to taking the lead in raising wages, the country should also improve the workplace environment and systems in the public sector, implement the values of pluralistic democracy, enhance job satisfaction, ensure channels for expressing opinions, and be inclusive, listening and responsive. The study adopted literature review and in-depth interview methods, and intentionally sampled stakeholders of the interview system, including civil servants of different generations, open source collaboration participants, business authorities, scholars and experts. Interview questions were designed for interviewees of different natures to explore the feasibility of "open survey". The so-called "open survey" means not only conducting a national civil servant satisfaction survey, but also making the results public to the public, making the data available for download and application, promoting external participation, combining the wisdom of everyone, and benefiting the government, civil servants and society. The study found that the opaque and closed culture of the public sector, coupled with the failure of laws and regulations to keep pace with the times, has led to outdated unspoken rules, which have become a vicious cycle of non-disclosure and restricted freedom of speech, making it more difficult for civil servants to "be themselves". Open data can avoid information gaps and improve power asymmetry. We should make good use of the collaborative integration of cross-agency and cross-field data to enhance the welfare of civil servants and allow them to be better versions of themselves, more talents to be willing to serve the country. Obeying superiors is obeying democracy, and democracy is both obedience and supervision. The management style of supervisors needs to be supervised and checked. Civil servants obey democracy, so they should be taught to believe in it in a democratic way. The more democratic and open the public culture is, the more civil servants can display their creativity and enthusiasm, and only then can we expect Taiwan's democracy to be more consolidated and its development to be more competitive. In addition, formalism in the public sector has led to policies becoming more formalistic than reality. This can be avoided by improving government accountability through external supervision mechanisms and a complete supporting package. The key to feasibility lies in politics, and in order to ease the impact of the transition period, a gradual opening can be adopted; combined with whistleblower protection and relevant legal amendments, civil servants can be given an extra layer of protection, which also enhances feasibility. At the end of the study, this article puts forward four suggestions for reference in policy promotion: moderate openness of information to support open culture; specific and complete supporting facilities, professional fairness and openness; management with people and hearts, and service connected with public opinion; consolidation of quotas and increase of allowances to make up for the gap in treatment.