中共公務員考核制度中激勵因素研究 ─歷史制度論的分析

Abstract

公務員制度，乃維持一國行政運作的主要關鍵，在面臨全球化下各種議題的複雜性升高，各國於20世紀末期開始改革文官體系，以符合實際社會需求。中共於改革開放後，開始著手建立公務員制度；其中，公務員考核制度也隨之法制化，並加入激勵因素，以期達到獎優汰劣之作用。本論文首先從歷史制度論之觀點，分析考核制度的歷史脈絡。研究回顧中共公務員考核制度，於1979年作為改革的起始點，公務員制度邁入法制化軌道；再於，2000年面臨入世危機，導致制度部分轉變；至今，於2012年習近平上台後，制度轉向強化監督約束作用。本研究主要討論何以考核制度有此路徑上轉變，又受到何種因素影響而產生轉變，發現考核制度受到社會發展、國際環境之影響，導致公務員制度陷入危機，在其變遷過程中，中共中央作為主要政治行動者，在關鍵時刻做出制度改革抉擇，進而造成考核制度之轉變。 此外，本研究更進一步討論，根據激勵理論之觀點，在加入激勵因素的考核制度，受到制度本身設計之缺陷，直至目前為止，在實際運作上仍有許多困難。雖然考核制度已經法制化，並明確規範考核內容，但受到社會文化背景、考核激勵實踐缺乏以及負向激勵的作用不高，導致考核激勵的作用受限，公務員考核難以發揮獎優汰劣之主要功能。最後，針對考核制度中激勵因素的作用缺陷，提出注重考核指標之科學分類、考核結果落實的具體方法，期望提升激勵因素於公務員考核的效果。

System of civil servant is the most important key of maintaining a country's administrative operations. Facing the globalization with the increased complexity of various issues, in the late 20th century, many states began to reform the civil service system to meet the needs of the community. In the wake of People's Republic of China(PRC) establishing the civil servant after reform and open door policy, civil servant's performance appraisal system was also put on a legal basis legislation with added motivation factors, expected to achieve 'awarding the outstanding and eliminating the inferior'. First of all, this paper analyses the changing process of the civil servant's performance of PRC in the historical track by the view point of historical institutionalism. Reviewing the transmutation of civil servants performance, 1979 as the starting point, it was entering a legal system. By the time in 2000, due to the joining WTO, it had to change in some part in order to overcome the crisis. In recently, Xi took office in 2012, it has turning to strengthening the role of the system of supervision and restraint. This paper focus on why civil servants' performance changed in the path, and what is the effects of factors leading to the change. It finds out civil servants performance appraisal system was influenced by the social development and international environment, and causes the system of civil servant into crisis. In the process of its changing, PRC as a major political actors, at critical juncture, made the decision to reform and led the change of civil servants performance appraisal system. In addition, this paper step further discussion, according to the motivation theory, civil servants performance appraisal system added in motivation factors, it was affected by the design defects of system itself, there are still many difficulties in the practical operation so far. In spite of the legal basis legislation and clearly define the content of performance appraisal, the social and cultural background, lack of appraisal and incentive practices, and low performance of negative incentives, all of these not only resulted in the role of performance appraisal limited, but also the civil servants performance appraisal is difficult to play the main function of the 'awarding the outstanding and eliminating the inferior'. Finally, for the defects of motivating factors in appraisal system, this paper proposed some specific methods, such as focus on scientific classification performance appraisal indicators and practice of its results, to expected to enhance the function of motivation factors in the civil servants performance appraisal system.