我國中央機關非典型人力運用政策之分析：歷史制度論觀點

Abstract

因應外在環境快速變遷及民眾需求日益提高，在兼顧提升服務品質及減少政府財政負擔下，各國政府紛紛思考公共事務推動是否毋須均由依法任用之公務人員擔任，而發展出多元彈性的用人管道，非典型人力的運用、管理及權益問題，乃成為近年公共行政及人力資源管理領域的新研究課題。 目前多數研究探討公部門運用非典型人力，主要著重其正、負面效應，正面部分包括非典型人力可有效控制人事成本與短期內補足人力缺口，以快速回應外在環境變遷需求，提高用人彈性，並可作為勞動市場調節機制，創造就業機會；負面部分則包括非典型人員的收入、福利與保障相對較少，也容易產生雇主卸責、不當剝削、差別待遇及僱用不安定等問題。然而此些討論均屬聚焦於政策結果的研究與單一時間點之靜態分析，如缺乏探討政府決策過程不同行動者之價值選擇、權力關係與互動情形，以及對於政府政策制訂與變遷過程的影響，將難以解釋政策如何形成，亦難以有效釐清為何政策產生結構性失靈困境。 因此本研究嘗試以歷史制度論觀點，從路徑依循與斷續均衡理論，及個案機關實務運作經驗，分析我國中央機關運用非典型人力的政策緣起、主要行動者的價值假定、權力對應關係，以及行動者互動過程與結果對於政策發展產生的影響。透過理論與文獻之檢閱分析、與本研究議題相關之消息靈通者進行深入訪談、以及分別於三個不同層級、不同性質（政策規劃、試驗研究、第一線為民服務）之機關類型，各挑選一人數較多、業務性質具差異性及代表性機關，就其運作情形比較，進行理論與實務的相互對話。 本研究的主要發現有以下四點： 一、在政府人事制度與政策之既有框架下，運用非典型人力實屬必然：由於我國政府人力資源管理政策受到長期維持文官考試用人、過於僵化缺乏彈性的人事政策、因應全球經濟衰退引發政府財政危機、以及新公共管理思潮影響，對於政府員額採取緊縮與精簡態度、及推動業務委託外包等因素，給予非典型人力出現的誘因與合理性，符合路徑依賴理論主張制度的產生與演變受到過去影響，且限制了未來改革路徑的選擇。 二、因應治理聯盟改變與公民意識萌發，使非典型人力政策產生兩次斷裂式變遷：本研究從時間序列及政策變遷過程觀察，顯示我國政府非典型人力政策在2000年時，因第一次政黨輪替促成治理聯盟改變，並促成兩次大規模精簡正式人力，使中央政府從過去以常任文官為主體的人力結構，轉而逐漸依賴非典型人力的第一次政策斷裂，並在2008年之前維持政策均衡狀態。直到2008年第二次政黨輪替後，受到國內民主轉型與公民意識萌發，大量使用非典型人力所產生之勞資爭議與勞工權益問題，使龐大的反彈與質疑力量集結到足以對抗企業與政府決策，而形成限縮非典型人力運用彈性與朝向加強權益保障之第二次政策斷裂，且迄今尚未進入均衡狀態。 三、主要行動者的權力關係、互動，決定非典型人力政策變遷的方向：2000年的第一次政策斷裂，是由民意機關所主導的精簡正式員額決議所啟動，人事主管機關並配合訂定員額管制措施，及因應實際用人機關需求，鬆綁非典型人力運用規定。2008年的第二次政策斷裂，則是由非典型受僱者與其所組成之勞工團體所發動，透過民意機關施壓勞政主管機關與人事主管機關，要求訂定強化勞工權益與控管非典型人力運用措施，同時實際用人機關則在相關人事制度與法制規範之限制下，僅能以消極更換人力類型因應。 四、個案機關因歷史制度因素影響，於非典型人力運用呈現差異情形：本研究比較教育部、行政院農業委員會農業試驗研究所及原行政院勞工委員會職業訓練局所屬北基宜花金馬就業服務中心等三機關實務運作情形，顯示個別機關因為歷史沿革、預算資源多寡、民意機關關注程度，及非典型受僱者動員強度等因素的差異，在非典型人力運用的時間點、具體作法、以及對於非典型人員的勞動條件與管理上，有不同表現。此驗證歷史制度論所言，不同制度因素牽動不同行動者的互動過程，也塑造不同組織的政策發展歷程。

Responding to swift transition of external environment as well as increasing public needs, in order to improve the quality of service and to release fiscal burden, governments in the world has been considering how public affairs could be executed by employees whom are not hired according to civil service law. This develops a multiple, flexible way to recruit personnel. Accordingly, the practice, management, the rights and interests of atypical employment have become novel research issue of public administration and human resource management in recent years. Currently, studies in general tend to put emphasis on positive/negative effects of public sector’s atypical employment. Positive ones are: atypical employment can help control personnel cost effectively as well as employment rapidly in short term in order to respond to externally environmental changes, enhancing the flexibility of recruitment. In addition, it can be an instrument of creating work opportunities in labor market. Negative parts include that atypical workers’ income, benefits, and job protections are relatively insufficient. It is likely that employers escape their responsibility, such us improperly exploits and treats employees unfairly; also, the job security is unstable. However, these researches mainly focus on policy results and static analysis with specific period. For example, they ignore to discuss different actor’s value option, power relation and interaction while the government is deliberating as well as their influence on government’s policy making and the process of change. They did not well explain how the policy was developed and clarify why structural policy failure happened. Accordingly, this study tries to base on historical institutionalism; by adopting the theory of path dependence and punctuated equilibrium, with case study of several government agency’s experiences. This study analyzes the origin of central authority’s policy of atypical employment in Taiwan, main actor’s value option, power relation, interaction and its influence on the development of policy. Through analyzing based on theory and literature reviews, interviewing key informant closely related to the topic of this study, comparing the operation of three typical agencies with different tasks which employ more atypical workers than other agencies in average. The four major findings in this study are as follows: I .The employment of atypical workers was an unavoidable outcome under the limits of government’s personnel system and policies: Based on the discovery of this study, some factors cause the development of atypical employment policy, contain the policy of employment by examination, the rigor and rigid personnel institutions; government financial crisis resulted from global recession, downsizing pressure and outsourcing trend under the value of new public management. Those factors are incentives for government to adopt atypical employment policy with legitimacy. The theory of path dependence could explain the process of atypical employment policy development. Past experiences influence the evolution of institution, the operation of institution limit the alternatives of its reform. II .There are twice punctuated transitions of atypical employment policy result from the change of governance coalition and the growth of citizenship: Based on the observation on policy change by time series, the first punctuated transitions happened in 2000, government cut amount of manpower twice after the replacement of ruling party and change of governance coalition. The central government gradually relied on atypical workers and changed the manpower structure which mainly constituted by formal personnel. This equilibrium had been maintained until the second party replacement in 2008. After 2008, some problems about labor relationship and labor rights dispute burn out because the massive employment of atypical workers in the circumstance of democratic transition and citizenship growth. Groups of opposition and critics mobilized to resist the policy of government-corporation coalition. The result is the reduction of atypical employment and the improvement of labor welfares. So the second punctuated transitions happen in this period and have not achieve equilibrium until now. III. Power relation and interaction between main actors determine how atypical employment policy change: The first policy punctuation in 2000 was started with the resolution of downsizing the official personnel which made by the Legislative Yuan. The Directorate-General of Personnel Administration Executive Yuan regulated to control the number of civil servant under the demand of the Legislative Yuan. However, in order to meet manpower need of government organization, they deregulated personnel rules about atypical employment prohibition. The second policy punctuation in 2008 was started because atypical employees and labor group allied to form a coalition. They lobbied the representatives pressing on the Minister of Labor and the Directorate-General of Personnel Administration Executive Yuan to strengthen labor rights and control the number of atypical employment. As a result, the government organization just can employ other type of atypical workers. IV. Due to institution and historical context, three government agency of case study were different from each other about the employment of atypical workers: By comparing the Ministry of Education, the Taiwan Agricultural Research Institute Council of Agriculture of Executive Yuan and the Employments Services Center, Taipei-Keelung-Yilan-Hualien-Kinmen-Matsu Region, it shows that the timing of employment, employment pattern, personnel management and the protection of labor rights were different from each other. The causes were various in historical development, the amount of budget resource, and the level of concern from the Legislative Yuan of each agency. The case studies comfirm the viewpoints of historical institutionalism which institution can shape interaction between actors and process of policy development.