政大機構典藏-National Chengchi University Institutional Repository(NCCUR):Item 140.119/32084

政大機構典藏-National Chengchi University Institutional Repository(NCCUR):Item 140.119/32084

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题名:	英國文官制度改革之研究（1979∼2003）
作者:	范祥偉 Fan, Syang-wei
贡献者:	孫本初 Sun, Ben-chu 范祥偉 Fan, Syang-wei
关键词:	文官制度改革政署高級文官職位新公共服務 Civil Service Reform Agency Senior Civil Service New Public Service
日期:	2003
上传时间:	2009-09-14 13:04:54 (UTC+8)
摘要:	本研究側重於探索性和描述性的研究，討論英國自一九七九年至二○○二年期間的文官制度改革，藉由對於英國文官制度改革的相關文獻的蒐集、整理及分析，能夠讓所研究的主題輪廓更為清晰，並且系統化地呈現出英國文官制度發展的脈絡與內容。本研究之範圍，就研究的時間而言，係自一九七九年至二○○二年期間，涵蓋英國二十餘年來歷經柴契爾、梅傑及布萊爾等三位首相所推動及施行的各項文官制度改革活動為主；就研究的對象而言，係以英國文官為研究對象；就研究的主題而言，則以英國文官制度的主要內容為主，包括文官的考選、任用、陞遷、薪給、福利、考績、保障、培訓、退養及撫卹，乃至文官政策、人事機關等相關活動。本論文之研究目的，在瞭解英國文官改革的背景與內涵、深入瞭解英國文官改革的重大政策變遷以及英國文官制度發展對我國人事制度興革的啟示。本論文第三章及第四章分別先就英國人事管理體制的轉變及中央人事機關的變革，依發展時間序列進行分析，經由對制度的演進及人事決策機制轉變的瞭解，探索英國一九七九年以來文官改革的啟動、發展及轉折的制度系絡及推動機制。第五章到第八章中，則體察「組織變革」、「強化領導」、「績效課責」及「服務傳送」等英國文官管理重要改革課題，分別就政署的創制、高級文官職位的發展、課責制度的變革及新公共服務改革之發展及其對文官管理的影響進行分析，詳細敘述其政策內涵，同時注重各項人事管理政策與公共治理相關理論間的連結，評估各項政策結果，以及未來可能發展。最後，則於第九章中，分別就我國近年來所推動相關之人事興革措施，包括核心價值及核心能力、行政法人化、績效管理制度（考績改革及績效獎金制度）、高階文官甄補等，與英國的文官改革經驗進行比較性的對話，並提出未來我國相關制度的改革方向建議。第一章導論‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥1 第一節研究動機與目的‥‥‥‥‥‥‥‥‥‥‥‥‥‥1 第二節研究範圍、方法與限制 ‥‥‥‥‥‥‥‥ ‥‥6 第三節研究流程與章節安排 ‥‥‥‥‥‥‥‥‥‥ ‥8 第四節重要名詞界定‥‥‥‥‥‥‥‥‥‥‥‥‥‥ 10 第二章文獻探討 ‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥15 第一節文官制度改革的理論基礎 ‥‥‥‥‥‥‥‥‥15 第二節英國文官改革的背景（1979年以前）‥ ‥‥‥22 第三節第一回合的英國文官改革模型（1979∼1997） 34 第四節第二回合的英國文官改革模型（1997∼2004） 40 第三章英國文官制度沿革‥‥‥‥‥‥‥‥‥‥‥ ‥53 第一節保守黨政府文官改革的策略重點‥‥‥‥‥‥ 53 第二節人事管理體制的轉變‥‥‥‥‥‥‥‥‥‥ ‥58 第三節 1979到1997保守黨政府文官改革的特色‥‥ ‥73 第四章中央人事機關之組織變革‥‥‥‥‥‥ ‥‥‥77 第一節第一階段的組織變革（1979∼1987）‥‥‥‥78 第二節第二階段的組織變革（1987∼1995）‥‥‥‥83 第三節第三階段的組織變革（1995∼2002）‥‥‥‥89 第四節三階段組織變革之要點‥‥‥‥‥‥‥‥‥‥93 第五章政署創制與文官制度發展‥‥‥ ‥‥‥‥‥‥99 第一節衣布斯（Ibbs）報告‥‥‥‥‥‥‥‥‥‥‥100 第二節政署創制的理論基礎‥‥‥‥‥‥‥‥‥‥‥105 第三節政署制的起源與制度設計‥‥‥‥‥‥‥‥‥107 第四節政署制的執行成效‥‥‥‥‥ ‥‥‥ ‥‥‥112 第五節政署制的評價‥‥‥‥‥‥‥‥‥‥‥‥‥‥114 第六章高級文官職位新制‥‥‥‥‥‥‥‥‥‥‥‥123 第一節高級文官職位建制背景‥‥‥‥‥‥‥‥‥‥123 第二節高級文官新制的範圍與特色‥‥‥‥‥‥‥‥126 第三節公開競爭的甄補制度‥‥‥‥‥‥‥‥‥‥‥129 第四節績效導向的用人及管理模式‥‥‥‥‥‥‥‥133 第七章文官課責制度的變遷‥‥‥‥‥‥‥‥‥‥‥139 第一節課責的基本概念‥‥‥‥‥‥‥‥‥‥‥‥‥139 第二節英國文官課責的轉變路徑‥‥‥‥‥‥‥‥‥141 第三節高級文官職位的課責機制‥‥‥‥‥‥‥‥‥150 第四節政署的課責機制‥‥‥‥‥‥‥‥‥‥‥‥‥159 第五節布萊爾政府：第三條路的課責績效‥‥‥‥‥163 第六節積極性的課責：核心價值與核心能力‥‥‥‥164 第八章新公共服務與文官制度發展（布萊爾時期）‥171 第一節新公共服務的改革取向‥‥‥‥‥‥‥‥‥‥172 第二節新公共服務的改革措施‥‥‥‥‥‥‥‥‥‥175 第三節新公共服務對文官制度的影響‥‥‥‥‥‥‥187 第九章結論與建議‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥197 第一節我國文官制度現況之策略性分析‥‥‥‥‥‥198 第二節英國經驗對我國文官制度發展之啟示‥‥ ‥205 第三節研究發現與未來研究建議‥‥‥‥‥‥‥ ‥226 參考文獻‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥ ‥‥231 表目錄表2–1 文官制度改革理論基礎之對照表…………………………… 22 表2–2 1860∼1968年英國設置之各種文官改革委員會……… ……23 表2–3 「管理顧問團」與「社會調查小組」的發現…………… …28 表2–4 傳統公共行政、新公共管理、公共服務之比較表………… 47 表5–1英國政署及服務於政署之文官數目的成長情形（1988~2001）104 表5–2 白廳模式與政署模式的對照 ……………………………… 116 表6–1 SCS新制與開放級舊制之比較……………………………… 128 表6–2 1999~2002年間任用高級文官背景分析………… …………131 表6–3 進用高級文官女性比例………………………………………131 表6–4 1999~2002高級文官進用女性、少數民族及原住民情形… 131 表6–5 英國高級文官核心能力與公共服務核心價值的關係………133 表6–6 英國高級文官薪給系統………………………………………135 表6–7 英國高級文官薪給表…………………………………………135 表6–8 英國高級文官調薪情形………………………………………136 表6–9 2003年英國高級文官調薪比例………………………………136 表6–10 2003年英國高級文官績效獎金發放情形………………… 137 表7–1 英國部長與文官間之課責模式………………………………144 表7–2 英國文官課責原則的轉變趨勢………………………………150 表7–3 英國文官公共服務的核心價值………………………………167 表7–4 英國文官快速陞遷計畫的核心能力架構……………………168 表8–1 新工黨、舊工黨與新右派治理理念比較……………………171 表8–2 服務傳送改革團隊組成成員…………………………………178 表8–3 近年英國公共服務支出成長情形……………………………180 表8–4 保守黨與新工黨政府文官成功職涯條件比較………………193 表9–1 我國公務人員教育程度分析表………………………………199 表9–2 各國人事機關比較表…………………………………… …200 表9–3 英國中央人事行政組織演變彙整表…………………………205 表9–4 我國行政法人化機關辦理情形………………………………212 圖目錄圖1–1 研究流程‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥9 圖2–1 研究架構‥‥‥‥‥‥‥‥ ‥‥‥‥‥‥‥‥‥‥‥‥‥51 圖4–1 英國中央人事行政組織1979年-2002年演變情形 ‥‥‥‥97 圖5–1 參與政署設置過程的主管部會互動關係‥‥‥‥‥‥‥‥110 圖5–2 英國政府文官體系近二十年來變革情形‥‥‥‥‥‥‥‥115 圖6–1 英國高級文官管理架構‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥138 圖7–1 英國高級文官職位的績效管理架構‥‥‥‥‥‥‥‥‥‥157 圖7–2 「最佳價值」績效管理架構‥‥‥‥‥‥‥‥‥‥‥‥‥164 圖7–3 核心價值、核心能力與績效關連示意圖‥‥‥‥‥‥‥‥165 圖7–4 英國文官課責制度的變遷過程‥‥‥‥‥‥‥‥‥‥‥‥170 圖8–1 英國布萊爾政府文官專業職涯養成架構‥‥‥‥‥‥‥‥193 圖8–2 英國新工黨政府文官改革的架構‥‥‥‥‥‥‥‥‥‥‥195 圖9–1 我國文官制度改革之SWOT分析圖‥‥‥‥‥‥‥‥ ‥‥204 圖9–2 英國部會與政署關係圖‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥210 圖9–3 我國高級文官甄補來源圖‥‥‥‥‥‥‥‥‥‥‥‥‥‥219 圖9–4 行政核心價值項目考量因素圖‥‥‥‥‥‥‥‥‥‥‥‥226 圖9–5 英國文官制度發展趨勢‥‥‥‥‥‥‥‥‥‥‥‥‥‥‥227
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