論政府機關職務代理之法制化
梁永興
《摘要》
查行政組織，必須由自然人擔任各種職務，始能讓組織正常運作，但自然人有休養生息需要，故職務代理制度存在有其必要性。
現行政府機關公務員請假或職務出缺，係依「各機關職務代理應行注意事項」辦理職務代理事宜，惟因該規定屬行政規則位階，內容規範並不完整，且考試院會同行政院送立法院審議之「公務員基準法」草案第四十五條，訂有授權考試院會同行政院訂定職務代理之管理辦法，故實有重新架構職務代理制度之必要。
各機關職務代理應行注意事項著重在現職人員代理資格，及聘僱非現職人員代理出缺職務之條件，於職務代理定義、代理人及被代理人權利義務之規範、工作責任歸屬及法律效果，並不明確，致實務操作上常生困擾，亦減損政府運作效能。
又除國外立法例外，私法人不論為營利之公司法人，或非營利之財團法人，同樣須自然人擔任各種職務，推動法人業務運作，也多設有職務代理制度，雖與政府組織不盡相同，但於目前政府治理參考公司治理精神下，仍有參考之價值；本文藉由文獻研究法，從實務學說及相關國內外立法例，探討政府機關完整職務代理架構之雛型，並試擬職務代理管理辦法草案，供主管機關及各界之參考。
[關鍵詞]：職務代理、法定代理、指定代理
A Research on the Legalization of Job Substitute in the Government
Yung-Hsing Liang
Abstract
In a government organization, every task needs to be assigned to a staff worker so the organization can operate normally. However, a worker by nature needs to take a rest whenever necessary. Therefore, a system of job substitute is required to operate a government organization.
When government employees ask for leave or when a job vacancy opens, the government needs to follow “the directions of job substitute in the government” to handle the job duties. However, this directive is part of administrative regulations and its content is not defined clearly.
The Executive Yuan and the Examination Yuan have sent their draft “Standards Act of Government employees” to the Legislative Yuan for review. Article 45 of the Standards Act authorizes the Examination Yuan to design measures for job substitute. This shows it is necessary to create a new regulation governing job substitute in the government.
The content of “the directions of job substitute in the government” emphasizes the qualifications for substituting current employees and the conditions for recruiting replacements when job vacancies are available. However, the definitions are not clear about job substitute, the responsibility, legal effects and the rights and obligations of proxies and the employees on leave. This may result in trouble in practice -- in other words, it may reduce the effectiveness of government operation.
Other than legislative exceptions, the private sectors also need workers to operate the organization and require a job substitute system for the same purpose as the government. Although their organizations are not exactly the same as the government, their job substitute system is still worth the reference by the government in the spirit of learning from the private sector.
By analyzing literature, including practice doctrines and related legislations, this paper explores the prototype model of government employee job substitute structure. Also, draft job substitute regulations are provided for reference.
Keywords: job substitute, statutory agents, the agent of the authority