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題名 美英文官制度雇用政策變革之研究：政策價值的觀點
作者 熊忠勇
Hsiung, Chung Yung
貢獻者 施能傑
Shih, Jay N.
熊忠勇
Hsiung, Chung Yung
關鍵詞 雇用政策
效率
政治回應
社會公平
個人權利
employment policy
efficiency
political responsiveness
social equity
individual right
日期 2004
上傳時間 18-九月-2009 15:32:06 (UTC+8)
摘要 文官制度所涉及的政策層面相當廣泛，其中雇用政策的設計，連帶影響後續俸給、考績、訓練、退休等政策的規劃，再加上雇用政策涉及職位的分配、組織人力結構的設計與調整等，可說居於文官制度的關鍵地位，因此雇用政策的變革，反應出組織需求的改變，也是政策價值競逐的主要領域，對於雇用政策的價值進行深入分析，有助於了解文官制度中的利益衝突，並藉此尋找可能調和的方法。本文基於這樣的思考，嘗試透過政策價值的觀點，對於美國及英國雇用政策之變革進行分析，希望提供我國未來雇用政策變革之參考，本論文主要探討的問題有三個：

問題一：文官制度雇用政策有那些價值？意涵為何？這些價值在人事管理及雇用政策上的具體應用情形如何？有那些指標適合說明雇用政策的價值變遷呢？

問題二：透過雇用政策變革的指標，探討美英二國在文官制度雇用政策的歷史演進，並說明近年政府再造風潮下，美英二國現階段雇用政策的價值偏好。

問題三：雇用政策的各種價值之間，存在何種衝突與矛盾？應透過何種方式理解，衝突的價值之間是否有調和的可能？又應如何解決？

本論文共計六章，除第一章緒論及第六章結論外，上述三個研究問題，分別在第二章至第五章鋪陳。第二章首先歸納文官制度雇用政策的四大價值理論，分別是效率、政治回應、社會公平及個人權利，然後進一步闡釋這四項價值在公共行政、人事管理及雇用政策上的意涵與應用情形，最後將這些價值在雇用政策上的應用情形加以歸納成四項指標，分別是服務型態與任用型態、文官數量的變化、弱勢族群的雇用政策、雇用的方法與模式。第三章及第四章便是利用這四項指標，來探討美英二國雇用政策的演進及1980年代政府再造風潮下，二個國家雇用政策的價值偏好。本論文研究後發現，這二個國家在新公共管理的理念趨使下，目前雇用政策最重視的價值為效率，其次為政治回應與社會公平，至於個人權利價值則受到弱化。
第五章則是透過辯證的方法，來說明政策價值間的衝突關係，並尋求可能的調和方法，由於文官體制內的充斥著許多價值間的緊張關係，如果將任何一項價值推至極端，相對壓縮其他價值的空間時，便可能發生人力資源管理的扭曲，亦即本論文所謂的病態現象，必須透過其他價值加以抗衡，即本論文所稱抗衡性價值。舉例而言，效率至上的雇用政策，可能產生的病態有目標錯置、菁英主義、濫用管理權，這些病態應分別輔之以政治回應價值、社會公平價值及個人權利價值來化解。事實上，每一種價值在特定環境系絡上，也許是對的，但就另一種價值觀點而言，卻可能是不平衡、不負責任的，我們不能期待某種價值立場能夠提供永久的答案，而應視系絡的需求給予不同的思考。
第六章結論，在研究發現上，有關政策價值層面提出三點發現，分別是政策價值的演進與循環、政策價值的衝突、政策價值的平衡思考。在美英二國的研究中，從服務型態與任用型態而言，美英兩國均透過職位的重新設計或建置新的職位制度，以滿足執政者的需求，例如美國的SES及英國的SCS。其次，二國均強調彈性用人趨勢，尤其英國多數文官已改採契約用人制，但此一趨勢只是推動績效管理的手段，並非以打破文官的永業特性為目的。在文官數量上，二國均試圖精簡員額，以減少人力成本，雖然中央政府文官數量已明顯下降，但就全國雇用數而言，未必達成真正的成效，反而有成為政治操作的情形，近年文官數量的變化，已有回升的現象。在弱勢族裔的雇用政策，主要為優惠女性、身心障礙者與少數族裔，由於它在政治上的熱度下降，近年有轉向多元化管理的趨勢，但目前仍為二國所重視。在雇用方法與模式上，二國均強調分權化、彈性化的運作模式。最後，根據美英二國的經驗，對於我國未來文官制度雇用政策提出若干建議。
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描述 博士
國立政治大學
公共行政研究所
85256503
93
資料來源 http://thesis.lib.nccu.edu.tw/record/#G0085256503
資料類型 thesis
dc.contributor.advisor 施能傑zh_TW
dc.contributor.advisor Shih, Jay N.en_US
dc.contributor.author (作者) 熊忠勇zh_TW
dc.contributor.author (作者) Hsiung, Chung Yungen_US
dc.creator (作者) 熊忠勇zh_TW
dc.creator (作者) Hsiung, Chung Yungen_US
dc.date (日期) 2004en_US
dc.date.accessioned 18-九月-2009 15:32:06 (UTC+8)-
dc.date.available 18-九月-2009 15:32:06 (UTC+8)-
dc.date.issued (上傳時間) 18-九月-2009 15:32:06 (UTC+8)-
dc.identifier (其他 識別碼) G0085256503en_US
dc.identifier.uri (URI) https://nccur.lib.nccu.edu.tw/handle/140.119/35626-
dc.description (描述) 博士zh_TW
dc.description (描述) 國立政治大學zh_TW
dc.description (描述) 公共行政研究所zh_TW
dc.description (描述) 85256503zh_TW
dc.description (描述) 93zh_TW
dc.description.abstract (摘要) 文官制度所涉及的政策層面相當廣泛，其中雇用政策的設計，連帶影響後續俸給、考績、訓練、退休等政策的規劃，再加上雇用政策涉及職位的分配、組織人力結構的設計與調整等，可說居於文官制度的關鍵地位，因此雇用政策的變革，反應出組織需求的改變，也是政策價值競逐的主要領域，對於雇用政策的價值進行深入分析，有助於了解文官制度中的利益衝突，並藉此尋找可能調和的方法。本文基於這樣的思考，嘗試透過政策價值的觀點，對於美國及英國雇用政策之變革進行分析，希望提供我國未來雇用政策變革之參考，本論文主要探討的問題有三個：

問題一：文官制度雇用政策有那些價值？意涵為何？這些價值在人事管理及雇用政策上的具體應用情形如何？有那些指標適合說明雇用政策的價值變遷呢？

問題二：透過雇用政策變革的指標，探討美英二國在文官制度雇用政策的歷史演進，並說明近年政府再造風潮下，美英二國現階段雇用政策的價值偏好。

問題三：雇用政策的各種價值之間，存在何種衝突與矛盾？應透過何種方式理解，衝突的價值之間是否有調和的可能？又應如何解決？

本論文共計六章，除第一章緒論及第六章結論外，上述三個研究問題，分別在第二章至第五章鋪陳。第二章首先歸納文官制度雇用政策的四大價值理論，分別是效率、政治回應、社會公平及個人權利，然後進一步闡釋這四項價值在公共行政、人事管理及雇用政策上的意涵與應用情形，最後將這些價值在雇用政策上的應用情形加以歸納成四項指標，分別是服務型態與任用型態、文官數量的變化、弱勢族群的雇用政策、雇用的方法與模式。第三章及第四章便是利用這四項指標，來探討美英二國雇用政策的演進及1980年代政府再造風潮下，二個國家雇用政策的價值偏好。本論文研究後發現，這二個國家在新公共管理的理念趨使下，目前雇用政策最重視的價值為效率，其次為政治回應與社會公平，至於個人權利價值則受到弱化。
第五章則是透過辯證的方法，來說明政策價值間的衝突關係，並尋求可能的調和方法，由於文官體制內的充斥著許多價值間的緊張關係，如果將任何一項價值推至極端，相對壓縮其他價值的空間時，便可能發生人力資源管理的扭曲，亦即本論文所謂的病態現象，必須透過其他價值加以抗衡，即本論文所稱抗衡性價值。舉例而言，效率至上的雇用政策，可能產生的病態有目標錯置、菁英主義、濫用管理權，這些病態應分別輔之以政治回應價值、社會公平價值及個人權利價值來化解。事實上，每一種價值在特定環境系絡上，也許是對的，但就另一種價值觀點而言，卻可能是不平衡、不負責任的，我們不能期待某種價值立場能夠提供永久的答案，而應視系絡的需求給予不同的思考。
第六章結論，在研究發現上，有關政策價值層面提出三點發現，分別是政策價值的演進與循環、政策價值的衝突、政策價值的平衡思考。在美英二國的研究中，從服務型態與任用型態而言，美英兩國均透過職位的重新設計或建置新的職位制度，以滿足執政者的需求，例如美國的SES及英國的SCS。其次，二國均強調彈性用人趨勢，尤其英國多數文官已改採契約用人制，但此一趨勢只是推動績效管理的手段，並非以打破文官的永業特性為目的。在文官數量上，二國均試圖精簡員額，以減少人力成本，雖然中央政府文官數量已明顯下降，但就全國雇用數而言，未必達成真正的成效，反而有成為政治操作的情形，近年文官數量的變化，已有回升的現象。在弱勢族裔的雇用政策，主要為優惠女性、身心障礙者與少數族裔，由於它在政治上的熱度下降，近年有轉向多元化管理的趨勢，但目前仍為二國所重視。在雇用方法與模式上，二國均強調分權化、彈性化的運作模式。最後，根據美英二國的經驗，對於我國未來文官制度雇用政策提出若干建議。		zh_TW
dc.description.tableofcontents 章 節 目 錄
第一章　緒論…………………………………………………..……..…1
第一節 研究動機…………………………………………..……..…2
第二節 研究問題……………………………………………....…...6
第三節 制度與政策價值…………………………………..….…….9
第四節 研究途徑與方法……………………………………..……18
第五節 研究範圍……………………………………………..……19
第二章　文官制度雇用的四大政策價值理論…………………..……21
第一節 文官制度之政策價值…………………………………....…21
第二節 效率價值……………………………………………………37
第三節 政治回應價值………………………………………………53
第四節 社會公平價值………………………………………………63
第五節 個人權利價值……………………………………….……...74
第六節 本章結語……………………………………………………82
第三章 美國文官制度雇用政策之價值分析……………………..…85
第一節 文官的服務型態與任用型態…………………………..…85
第二節 文官數量的變化………………………………………..…96
第三節 弱勢族群的雇用政策……………………………………108
第四節 文官的雇用方法與模式…………………………………119
第五節 本章結語…………………………………………………131
第四章 英國文官制度雇用政策之價值分析………………………133
第一節 文官的服務型態與任用型態……………………………134
第二節 文官數量的變化…………………………………………145
第三節 弱勢族群的雇用政策……………………………………157
第四節 文官的雇用方法與模式…………………………………166
第五節 本章結語…………………………………………………175
第五章 文官雇用政策價值之辯證…………………………………177
第一節 文官雇用政策效率價值之辯證…………………………180
第二節 文官雇用政策政治回應價值之辯證……………………191
第三節 文官雇用政策社會公平價值之辯證……………………199
第四節 文官雇用政策個人權利價值之辯證……………………206
第五節 本章結語…………………………………………………213
第六章 結論…………………………………………………………217
第一節 研究發現…………………………………………………217
第二節　美英雇用政策變革對我國的啟示………………………225
參考書目………………………………………………………………245
附錄……………………………………………………………………263

圖 目 錄

圖2-1 人力運用的四種模式…………………………………………43
圖3-1 1978年之後美國文官制度雇用政策的價值偏好………….132
圖4-1 1990年到2004年政署文官占全體文官數的比例……………152
圖4-2 英國高級文官之考選程序………………………………..173
圖4-3 1979年之後英國文官制度雇用政策的價值偏好……………176
圖5-1 人事行政的價值衝突………………………………………..178
圖5-2 人事甄選過程中的主要影響因素……………………….….214.


表 目 錄

表2-1 人事政策價值及其對應的人事制度…………………….…22
表2-2 美國公共人事管理價值的演進……………………………..23
表2-3 美國聯邦政府人事政策價值演進…..……………………..26
表2-4 美國文官制度價值的轉換………………………...…….…28
表2-5 文官制度政策價值之歸納整理…….………….………….…30
表2-6 政策價值與雇用的關鍵因素、主要評量指標…………….…36
表2-7 OECD部分國家文官雇用身分之分析……………………….…45
表2-8 各種雇用方法的比較……………………………………….…48
表2-9 文官的課責類型、強調價值與行為期望………………….…57
表2-10 平等就業機會與弱勢優惠行動之比較…………….…….…68
表2-11 四項價值在雇用政策上的應用情形及分析指標之歸類….…83
表3-1 美國聯邦政府文官分類系統………………………...…….…86
表3-2 美國聯邦文官的服務型態、任用型態與其偏好的政策價值……95
表3-3 美國聯邦政府文官總數(1792-1881)……………………………96
表3-4 1884-2004年聯邦政府文職總數、競爭職位數及其占文官總數之比例....97
表3-5 OECD部分國家全國公共服務者統計……………………..99
表3-6 競爭職文官佔聯邦行政部門文官總數的比例(不含郵政人員)…101
表3-7 C俸表與非永業高級行政主管數之統計…………………………103
表3-8 1988年到2002年聯邦行政部門永業任用與永業任用全職人員之比例.105
表3-9 1988年到2002年聯邦行政部門不同工作時間人員之比例……106
表3-10 美國最高法院1979至1987年有關優惠弱勢行動的判決……111
表3-11 1991年民權法推翻1989年最高法院的判決………………….113
表3-12 性別、少數族裔及身心障礙人員占聯邦政府文職人員比例…116
表3-13 具退伍軍人身分者佔聯邦行政部門人力比例…………………118
表3-14 原屬PACE雇用之職位於1993-1997年間採其他雇用方法之比例%…128
表3-15 1991至1998會計年度，美國聯邦政府專業及行政職位雇用的管道…129
表3-16 美國1978年之後雇用政策價值的偏好…………………132
表4-1 英國1971年之後文官職組與等級之劃分……………………138
表4-2 白廳模式與政署模式之對照…………………………………143
表4-3 英國文官改革前後服務型態、任用型態與其偏好的政策價值…144
表4-4 英國文官員額數變動情形(1976-2004)(FTE)……………….146
表4-5 1994-2004年英國文官全職與兼職永業人力之變化…………149
表4-6 英國高級文官相關數據統計(FTE)……………………………154
表4-7 1984、1999-2004年女性占文官各層級之人數與比例(FTE)…161
表4-8 英國文官兼職工作者之比例……………………………………163
表4-9 1989-2004年少數族裔占文官各層級之比例(FTE)……………164
表4-10 1996-2002年經文官委員甄選之高級文官女性錄取人數與比率165
表4-11 1989-2004年身心障礙者占文官各層級之人數與比例(FTE)…165
表4-12 英國1979年之後雇用政策價值的偏好………………………176
表5-1 人事政策的系絡、制度選擇、價值取向及過度發展的結果……178
表5-2 文官雇用政策的可能病態及抗衡性價值………………………179
表5-3 功績制度與弱勢優惠行動之比較………………………………203
表6-1 國家條件如何影響公共人事制度………………………………222
表6-2 全國政務人員人數(民國93年底)………………………………232
表6-3 最近7年全國公務人員人數及成長率…………………………236
表6-4 全國約聘僱人力數(民國93年底)……………………………238
表6-5 女性占全國公務人員比率……………………………………239
表6-6 90年至93年間女性占高級文官人數與比率…………………240
表6-7 91年至93年間原住民族與身心障礙者任公職數……………241		zh_TW
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dc.language.iso en_US-
dc.source.uri (資料來源) http://thesis.lib.nccu.edu.tw/record/#G0085256503en_US
dc.subject (關鍵詞) 雇用政策zh_TW
dc.subject (關鍵詞) 效率zh_TW
dc.subject (關鍵詞) 政治回應zh_TW
dc.subject (關鍵詞) 社會公平zh_TW
dc.subject (關鍵詞) 個人權利zh_TW
dc.subject (關鍵詞) employment policyen_US
dc.subject (關鍵詞) efficiencyen_US
dc.subject (關鍵詞) political responsivenessen_US
dc.subject (關鍵詞) social equityen_US
dc.subject (關鍵詞) individual righten_US
dc.title (題名) 美英文官制度雇用政策變革之研究：政策價值的觀點zh_TW
dc.type (資料類型) thesisen
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