台灣、韓國積極勞動市場政策之比較分析:以歷史制度論觀點為基礎

Abstract

二十世紀80、90年代，幾乎所有OECD國家都面臨著高失業率的問題，就此，OECD提出「由被動轉為主動」的勞動政策及相關的社會政策長期策略，積極勞動市場政策（Active Labor Market Policies，以下簡稱為ALMP）也因此逐漸成為歐美等已開發國家解決失業問題的主要政策之一。此政策藉由強化勞動市場流動及調適，促進勞工的再開發，使人們及時掌握工作機會，以改善勞動市場的功能運作，換言之，積極勞動市場政策旨在藉由創造就業機會，提供職業訓練與就業服務，以促進失業者之再就業。 台灣、韓國同屬於「亞洲四小龍」，無論在經濟發展還是勞動市場，存在著許多相似之處。另一方面，台、韓的勞動市場展現出不同的樣貌，在面對失業問題及勞動市場政策改革方面也各有特點，卻都在不同程度上推行了積極勞動市場政策。從其發展來看，與當地政府的制度構造、主流理念以及一些「關鍵時間點」等概念緊密相關。特別是在經歷1997年和2008年的先後兩次重大經濟危機（歷史性轉折點）之後，台、韓的ALMP的呈現出不同的發展路徑。本研究以歷史制度論作為理論基礎，並結合政策轉移理論之觀點，以積極勞動市場政策為切入點，深入分析兩國在經濟受創后如何對勞動市場進行調整措施；通過回顧台灣、韓國兩地的積極勞動市場政策經驗背後之發展歷程，發現台灣和韓國均在20世紀中期開始對積極勞動市場政策進行摸索，并隨著經濟景氣的變化而有所起伏，特別是韓國的積極勞動市場政策在1997年亞洲金融危機之後，從「分散」走向「整合」。但無論台、韓之積極勞動市場政策均具有財政支出少、臨時應急式、以促進就業為中心等特點。

During the 80's and 90's of twenty century, almost all OECD countries are faced with the problem of high unemployment rate. Therefore, OECD put forward active labor policy of “changed from passive to positive and related social policy long-term strategy, active Labor Market Policies(ALMP) has gradually become one of the main policies to solve the problem of unemployment in Europe and America and other developed countries. By strengthening the labor market mobility and adjustment, this policy promotes the re development of labor, enable people to grasp the opportunity to work in a timely manner so as to improve the functioning of the labor market. In other words, the active labor market policy is designed to provide vocational training and employment services through the creation of employment opportunities in order to promote the re-employment of the unemployed. Belonging to the “Four Little Dragons of Asia”, there are many similarities in the economic development or the labor market between Taiwan and South Korea. On the other hand, the labor markets of these Taiwan and South Korea show a different appearance, with their own characteristics when facing unemployment and the labor market policy reforms, but they have implemented the active labor market policy to varying degrees. From the perspective of its development, it is closely related to the local government's institutional structure, the mainstream concept as well as some of the key point of time and other concepts. Especially after the two major economic crises (historic turning point) in 1997 and 2008, ALMP of Taiwan and South Korea presented a different development path. On the basis of the theory of historical system, combined with the theory of policy transfer and with active labor market policy as the breakthrough point, this paper makes in-depth analysis of how to adjust measures to the labor market of the two countries in the economy after the record. By reviewing the development of positive labor market policy experience in Taiwan and South Korea, this paper finds that Taiwan and South Korea both began to explore the positive labor market policies in the middle of twentieth Century, and finds out the ups and downs with the economic boom. In particularly, after the Asian financial crisis in 1997, South Korea's active labor market policy changed from 'decentralization' to 'integration'. But both the active labor market policies of Taiwan and South Korea's are presented less fiscal spending, temporary emergency type, promoting employment as the center and other characteristics.