地方政府施政績效管理：政務人員與事務人員認知之比較
黃榮源、張筵儀、王俊元、郭銘峰
《摘要》
公部門績效管理在學理與實務界的發展，近十餘年來在國內外已廣受重視。民國九十三年，行政院研究發展考核委員會參酌中央政府機關施政績效管理制度，頒訂「地方政府施政績效作業手冊」供地方政府參考施行。由於中央與地方政府系絡不同，導致效果不彰，該手冊已於民國九十九年停止適用。惟在政府施政之回應性及績效審計等要求下，地方政府對於其施政績效管理議題仍然非常關注。另一方面，在組織管理制度發展與變革的過程中，其內部成員往往會有不同的認知與反應。文獻中指出，積極的組織成員會從制度發展中尋找新機會，而消極者則易傾向抗拒變革；然而，關於我國地方政府政務人員與事務人員如何看待與因應當前施政績效管理制度之問題，目前仍相當缺乏系統性之檢視。
有鑑於此，本研究旨在瞭解目前我國地方政府中，政務與事務人員對於施政績效管理的看法為何？又其雙方的認知有何不同？在回顧關於地方政府績效管理以及組織行為等相關理論之後，本研究主要貢獻在於從態度面與行為面建構了政治∕行政對於施政績效管理認知的四種分類：即開創型、服從型、漸進型，以及拒斥型。並透過實際問卷調查的方式，針對台灣22個縣市政府中的488個一級機關單位，廣泛蒐集政務人員及事務人員之量化資料。最後將政務人員與事務人員之認知結合地方政府施政績效管理之看法，得出本文研究發現：政務與事務人員對於施政績效管理制度確實有不同的信心、認知與看法。研究建議未來關於落實施政績效管理之制度，則可針對這些不同的看法來發展出不同之策略。
[關鍵詞]：地方政府、績效管理、政務人員、事務人員
Performance Management in Local Governments: A Survey of Political Appointees and Civil Servants in Taiwan
Eric Rong-Yang Huang, Yan-Yi Chang, Chun-Yuan Wang, Ming-Feng Kuo
Abstract
Performance evaluation and management have been adopted by Taiwanese central level authorities since decades ago. Most of local governments did not take action until 2004 when a relevant system was introduced. However, this system was terminated in 2010 due to poor results. From the viewpoint of policy responsiveness and performance audit requirement, local governments still pay close attention to a look for a proper mode of performance management.
In response to the impacts of globalization and new public policy issues, many countries have adopted different kinds of performance measurement mechanism to become more efficient and provide better public services - part of efforts to promote their decision-making and execution abilities. Literature has also shown that local governance has now become one of core issues of public governance in Taiwan. Nevertheless, how do people inside government institutions view the process changing of management mechanism changed? What are the differences between political appointees and civil servants in their attitudes toward and expectations to current local government performance management in Taiwan? Unfortunately, the empirical data and information are insufficient.
This study begins by reviewing literature of governmental performance management and organizational behavior for exploring analytic framework of research. Four categories of political/administrative views of performance management are identified in this research. They are creativeness, compliance, incrementalism, and resistance. Then, some 488 first-level departments in 22 municipals and county (city) governments in Taiwan were been surveyed through the questionnaires. A total of 976 questionnaires comprise for two respondents in every select department including the director or deputy-director and, the staff member responsible for performance management of the department were sent out and 644 valid responses were returned, yielding a return rate of 65.98%. The results show some differences in the beliefs, recognition and attitudes toward government performance management between political appointees and civil servants. Hence, it may identify these divergences can be identified to adopt various strategies for performance management of local governments.
Keywords: local government, performance management, political appointee, civil servant