我國行政機關公務人力流動之初探：以跨職系流動為焦點

Abstract

在行政機關中，公務人力流動是必然的情況，然而以往遷調相關的研究，著重公務人員個人特徵的因素，而不是工作條件的影響。本研究以職系作為工作條件的代表方式，從跨職系流動的情況，探究哪些職系的公務人員，較傾向調離原本所任之職系，從中反思各類職系之工作條件設計，以及專業養成問題，對於我國行政機關專業主義的鞏固乃至於服務品質的穩定有其重要性。為此，本研究綜整國外文官制度對於專業分工與流動之制度設計，以及我國現有職系管理的問題，利用「公務人力資料庫」之資料，首次梳理我國文官跨職系流動的情況，檢視各職系人員轉出職系的比例與職等 ; 留任時間 ; 初任人員轉出職系時之年資，並運用社會網絡分析技術，描繪整體職系流動之概況及相關議題，期能為遷調研究注入新思維，並提供行政機關可思精進的建言。研究發現，我國採取較為彈性之職系管理，且在中低階層人力有專業流失的疑慮，特別是技術類與稀有職系。本研究認為，我國公務人員調任過於著重「點」對「點」職系的規定，忽略「線」性的專業養成觀念。而各職系人力流動更是需進一步探究的議題，建議人事主管機關之思維應從「點」延伸到「線」，並關注各職系發展與公務人員的職涯管理。

It is very usual to see manpower mobility among administrative agencies, but the existing studies only focus on how the factors of personal characteristics influence the mobility without regard to the factors of working conditions. Class series is one of factors of the latter. This study examines the pattern of inter-class-series transfers, identifying those class series in which the turnover rates are high. That can help review the design of working conditions of different class series and the issue of professional development. This is significant for consolidating professionalism and stabilizing service quality of the government administration in Taiwan. For this purpose, this article reviews the design of professional grouping and manpower mobility mechanisms of civil services in foreign countries and assesses the management problems of class series in Taiwan’s government. This study makes use of the official public personnel data bank to analyze the mobility pattern among class series, including the turnover rate, the length of stay, the tenure of first class-series affiliation. Social network analysis is adopted to map the pattern of mobility to shed new light on the issue. That is expected to help offer recommendations to overhaul the mechanism. This study finds that the highly flexible class-series management may lead to a professional drain in the mid-to-junior-level staff, especially for the manpower in the technical and scarce class series. This article argues that the design of professional mobility in the civil service of Taiwan only zeroes in on a point-to-point analysis, ignoring the linear aspect of professional development. Hence, this article suggests that the policy approach of the personnel authority should switch from point to line, developing a career management of civil service.