政府契約人力之政策定位與現實：政府內部人力市場之啟示
蘇偉業
《摘要》
本文是探討我國政府契約人力（指約聘僱人員）之政策定位與現實落差之問題。這包括我國人事機關對契約人力之官方應然性（normative）定位與執行現實之落差，還有就是依據西方公務人力運用理論之策略定位與我國現實之落差。
本文首先比較全球化下的公務人力彈性化與我國的政策取捨，並剖析我國政府在近年人事制度改革當中對契約人力的政策定位，透過對官方及學術文獻分析指出落差之所在。本文強調落差問題本質是牽涉到常任文官與契約人力之間的相對關係。現存的學術文獻反映出一種有趣的現象，就是機關基層常任文官所呈現的高浮動性及低落之組織承諾，而契約人力則反而呈現穩定及對組織高度依附性。這現象違背了國內研究常引用的Lepak及Snell的人力運用策略理論。
就此，本文提出政府內部人力市場命題來勾畫出常任文官與契約人力在我國政府內部人力市場的相對關係。本文認為政府內部人力市場對常任文官的開放性，相對於對契約人力的封閉性，促成上述的有趣現象。這現象有別於國外的一般情況，使我國公務人力生態產生一定的特殊性，因而「內部人力市場」應成為相對於國外而言更為重要但尚待開發的我國人事行政學術議題。故最後，本文提議我國政府的人力資源運用策略應納入內部人力市場作為變項來重新為常任文官與契約人力定位。
[關鍵詞]：契約人力、政府內部人力市場、組織承諾、公務人力、常任文官
The Policy Line towards Government Contract Personnel and Reality in Taiwan: A Perspective from Government Internal Labor Market
Bennis Wai Yip So
Abstract
This paper tries to examine the gaps between the policy line towards government contract personnel system and the reality in Taiwan, which refer to the gap between the normative position of the personnel authority and the reality at the implementation level as well as the gap between the strategic position derived from the western public human resource theory and the real situation in Taiwan.
This paper first compares and contrasts the global trend of public manpower flexibilization with the corresponding policy line in Taiwan, then zeroing in on the policy line of the recent reform of government contract personnel. Policy gaps are identified through an examination of official documents and literature. The author proposes that the policy gaps have formed as a result of the relative positions of career civil servants and contract employees. Existing literature projects an interesting phenomenon that grassroot career civil servants are highly mobile and their organizational commitment is relatively low, while the contract employees are ironically stable and more attached to organization. This phenomenon works against the oft-quoted human resource architecture developed by D. P. Lepak and S. A. Snell.
In response, this paper advances some government internal labor market (GILM) propositions to reframe the relative positions of career civil servants and contract employees. The author argues that the above phenomenon, which is seldom found in other countries, is caused by the accessibility of career civil servants and the inaccessibility of contract employees to the GILM. The GILM should be a significant but underdeveloped issue of public personnel administration for Taiwan. Finally, this paper suggests that the government consider the GLIM as a variable in making the strategy of government human resource management and reposition the manpower of career civil servants and contract employees.
Keywords: contract personnel, government internal labor market, organizational commitment, public manpower system, career civil servant