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

陳敦源; 賴怡樺; 郭昱瑩; 葉馨

doi:10.6209/JORIES.202206_67(2).0005

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P125 - 153

社会科学 > 教育学

DOI： 10.6209/JORIES

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国立大专校院预算员额调控机制之研究：政策问题之建构与分析

The Mechanism of Managing Budgeted Staff in National Universities and Colleges: Problem Construction and Analysis

陈敦源(Don-Yun Chen) ；赖怡桦(Yi-Hua Lai) ；郭昱莹(Yu-Ying Kuo) ；叶馨(Hsin Yeh)

教育科学研究期刊； 67 卷 2 期 (2022 / 06 / 01) ， P125 - 153

繁体中文 DOI： 10.6209/JORIES.202206_67(2).0005

人事管理；员额调控；高等教育；问题建构；编制员额； personnel management ； staff number regulation ； higher education ； problem construction ； authorized complement

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摘要 │ 参考文献 (14) │ 国际计量

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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 integrated into the problem construction process, which was developed using an approach of multiple perspective analysis, referring to technical, organizational, and individual perspectives. The focus of the technical perspective was micro-economics, cost-benefit analysis, input-output analysis, and decision analysis, through which causal relationships and statistical inferences can be determined. The organizational perspective involved the procedures, principles, and routines of engaged organizations. The individual perspective involved individuals' perceptions, needs, and values (Dunn, 2012), which were used to determine individuals' views on specific problems. Research Methods: 1. Document analysis: Documents, laws, rules, and meeting transcripts were collected from the Ministry of Education, the Directorate-General of Personnel Administration, and national universities and colleges to understand and construct problems. 2. Secondary data analysis: To obtain the actual and budgeted numbers of budgeted staff, data from 2020 were collected from the websites of the Ministry of Education and national universities and colleges. Statistical analysis of the secondary data provided basic findings for interviews and focus groups. 3. Interviews: Purposive sampling was used to recruit interview participants. Interviews were conducted with 7 personnel chairs and one accounting chair to understand the personnel operations and related budgets of national universities and colleges. Moreover, interviews were conducted with 4 individuals from the Ministry of Education and the Directorate-General of Personnel Administration to determine decision-makers' thoughts and opinions. 4. Focus groups: Four focus groups were held that included 27 staff members from national universities and colleges to determine the influence of student scale, budget scale, year of establishment of a school, whether the school was a comprehensive or technical university, and the faculty composition on the process of managing budgeted staff. Findings: Findings regarding the construction of the problem underlying the process of managing budgeted staff in national universities and colleges, which was determined from technical, organizational, and individual perspectives, are summarized as follows: 1. Technical perspective: National universities and colleges generally request more budgeted staff from the Ministry of Education when the universities and colleges expand new departments, programs or consider future development in emerging technology. In addition, universities experienced difficulty in reducing their allotted number of budgeted staff after they were allocated to departments or colleges. 2. Organizational perspective: Allocating budgeted staff and a corresponding budget created tension between the Ministry of Education and national universities and colleges with respect to their autonomy. Moreover, tension was present within different agencies of the Ministry of Education, such as those related to personnel, accounting, and higher education. 3. Individual perspective: The insufficiency or inequity of resources among national universities and colleges may contribute to different aspects of managing budgeted staff, which renders unified methods of management from the Ministry of Education impossible. Discussion and Suggestions: According to the findings, clarifying responsibilities for managing budged staff of the Ministry of Education and national universities and colleges should be a priority. The Ministry of Education should empower national universities and colleges to manage their own faculty numbers but retain control over the total staff numbers. Moreover, because national universities and colleges wish to gain autonomy and free themselves of pressure from the Ministry of Education, they must become self-sufficient rather than request additional budgeted staff or budgets as new needs arise. That is, under the circumstance of constrained resources, national universities and colleges should strengthen their capacities to self-support with respect to financial and human resources. In addition, national universities and colleges generally recruit contract-based staff to mitigate their immediate or temporary staff shortages; they must assume responsibility for the budget preparation and allocation of an appropriate combination of budgeted and contact staff. In summary, the prosperity of higher education is dependent on good governance and solid collaboration between the Ministry of Education and national universities and colleges.

参考文献 ( 14 ) 〈TOP〉

林政逸、杨思伟（2011）。我国公立大学策略性人力资源管理模式之建构。高等教育，6（2），33-76。https://doi.org/10.3966/199254762011120602002【Lin, J.-Y., & Yang, S.-W. (2011). Strategic human resource management model for public universities in Taiwan. Journal of Higher Education, 6(2), 33-76. https://doi.org/10.3966/199254762011120602002】
连结：
林峻莹、谢亚恒、陈成宏（2014）。台湾地区大专院校教师对学校评价的影响机制：学校属性与教师分级的区隔作用。教育科学研究期刊，59（3），29-58。https://doi.org/10.6209/　JORIES.2014.59(3).02【Lin, C.-Y., Hsieh, Y.-H., & Chen, C.-H. (2014). Taiwanese college instructors’ evaluation of their schools: The differences among school attributes and instructor ranks. Journal of Research in Education Sciences, 59(3), 29-58. https://doi.org/10.6209/JORIES.2014.59(3).02】
连结：
傅祖坛（2011）。台湾高等教育院校之学校品质、经营效率与最适规模分析。教育科学研究期刊，56（3），181-213。https://doi.org/10.3966/2073753X2011095603007【Fu, T.-T. (2011) School quality, operational efficiency, and optimal size: An analysis of higher education institutions in Taiwan. Journal of Research in Education Sciences, 56(3), 181-213. https://doi.org/10.3966/2073753X2011095603007】
连结：
Checkland, P. (2006). Reply to Eden and Ackermann: Any future for problem structuring methods? Journal of the Operational Research Society, 57(7), 769-771. https://doi.org.10.1057/palgrave.jors.2602111
连结：
Rosenhead, J. (2006). Past, present and future of problem structuring methods. Journal of the Operational Research Society, 57(7), 759-765. https://doi.org.10.1057/palgrave.jors.2602206
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