國立大專校院預算員額調控機制之研究：政策問題之建構與分析 The Mechanism of Managing Budgeted Staff in National Universities and Colleges: Problem Construction and Analysis
摘要
現行國立大學進用人力，包含經行政院核定有案的編制內員額及編制外人員，依法並得控留部分編制內員額改進用以校務基金自籌經費支出，即以契約用人方式取代。惟學校如有員額需求，多傾向控留編制員額向教育部請增，而非統籌分配運用校內現有缺額，與少子女化趨勢及政府員額精簡政策違背。本研究旨在針對國立大專校院編制員額調控機制進行問題的建構與分析，以多元觀點分析法的技術觀點、組織觀點與個體觀點為分析架構。透過文件分析法、員額數據的統計分析，並訪談與座談計30所國立大專校院的人事主任，以及行政院 與教育部的相關單位，試圖探討問題及其導因與影響為何，以釐清問題的癥結與嚴重性，作為後續決策的基礎。研究發現，導致國立大專校院預算員額調控機制問題的根本原因有三： 一、教育部與學校員額回收與統籌分配的運作不佳；二、教育部與大學之間的員額控管權責與機制不明；三、學校之間針對員額配置的條件與需求差異。根據研究結論，本研究嘗試提出針對國立大專校院員額調控機制的建議：一、釐清教育部與大學之間員額控管的權責並建 立明確的控管機制；二、鼓勵並協助學校厚實員額調控及經費自籌的能力；三、研發能促進學校之間及其內部人力配置及效率運用的策略。文末並基於研究發現研提政策建議，期能精進國立大專校院員額控管機制之運作，進而提升高等教育治理的效率與效能。 Research Motivation and Objective The staff of national universities and colleges include authorized and contract staff. According to the law, national universities and colleges may maintain positions for authorized staff but hire additional contract-based employees whose salaries can be paid using national university funds. However, instead of improving the efficiency of their management of budgeted staff, universities and colleges generally request authorization for an increase in their allotted number of staff members from the Ministry of Education when they have a higher demand. This practice conflicts with the limitations of the national low-birth rate trend and the government’s policy of downsizing. This study focused on problem construction by incorporating technical, organizational, and individual perspectives to understand the process of managing budgeted staff in national universities and colleges. Literature Review Problem construction is crucial and involves understanding conscious choice through quantitative and qualitative analyses (Checkland, 2006). This study elucidated problems underlying budgeted staff management in national universities and colleges, which are closely associated with the rights and responsibilities of many decision-makers and stakeholders with conflicts of value or interest. In consideration of these ill-structured problems (Dunn, 2012), stakeholders’ views and insights were integrate