臺北縣立中小學人事人員集中辦公實施情形之研究

Abstract

臺北縣政府為因應國民教育法「國民小學及國民中學應設人事及主計單位」之規定，又宥於財政的困窘，對縣屬中小學人事及主計單位進行組織再造，自九十二年八月一日起實施人事主計集中辦公政策。本研究旨在了解臺北縣政府所屬人事人員及縣立中小學教職員，對實施縣立中小學人事人員集中辦公政策之實施現況、實施所遭遇的問題與困境並探討成因、並研究改進策略，以提供臺北縣政府對「人事人員集中辦公政策」實施檢討之參考。 本研究透過組織再造理論實務之文獻探討，作為本研究架構之概念基礎，並以「人力彈性調整」、「有效執行人事政策」、「提升人事服務效能」、「集中辦公實施方案」、「改進策略」為主軸，編製「臺北縣立中小學人事人員集中辦公實施情形研究調查」問卷作為研究工具，對實施集中辦公之全體人事人員及臺北縣立58所中小學學校人員（每校7人，包括校長、教師兼主任、教師兼組長、職員、人事協辦各1人及教師2人）共602人為問卷調查對象；經由問卷調查、實地訪談後，本研究以次數分配、百分比分析、t檢定、單因子變異數分析及薛費氏事後考驗分析，獲得結論如下： 一、集中辦公成立的區中心是任務編組，其組織編制未能法制化，區中心主任定位不明，使區中心無法發揮組織的應有功能 二、集中辦公採總員額限制，並同時兼辦一所以上機關學校的配置，雖然達到人力精簡的目的，卻造成都會與偏遠地區人力配置的勞逸不均，偏遠地區因人員編制較少，工作壓力更大；都會區因人事人員至區中心辦公異地服務，使原校反無專業人員服務的困境 三、學校因應人事人員集中辦公，派置相對協辦人力，對學校而言增加學校人員 的負擔，但相對能減輕人事人員的工作負擔，一體兩面難以兼得 四、文書作業流程所造成的疏漏增加，公函仍需返校或移區中心簽辦，造成公文 流程處理時效延宕及效率降低；公文及經費核銷必須於區中心及學校兩邊傳 遞陳核，徒增往返時間，並未能有效簡化並縮短作業時效 五、因應集中辦公所訂標準作業流程及以網路或e-mail附加報表，確實幫助人事業務有效執行；加強授權亦有助於效率的提升，但過多的權責下授，則可能發生無法監督之虞 六、實施集中辦公後，規定人事人員每週一次及不定時返校服務，在校時間短，依據法令執行人事政策的效率不彰，無法善盡幕僚職責，未提升以顧客為導向之人事服務效能，已窄化只限於審核的人事功能 七、過於高估可節省之人事經費，反因設置集中辦公區中心，增加所需之硬體設備及辦公事務經費；預期減少原由教師兼辦人事業務的減課鐘點費，並未因此減省，且另需加計人員往返區中心的時間成本及差旅費用，難達預估的實益 八、學校抗拒是項政策，人事人員因往返區中心與學校之間，增加個人在時間、交通費用的負擔、體力負荷及安全性的風險，又因抽離學校集中辦公致使無歸屬感，造成士氣低落 九、包校制及業務分組制之改進策略，因增加學校人力的負擔，並造成人力調配困難，認同程度較低 十、兼辦制、兼任制及聯合數校制之改進策略，人事人員回歸原校不集中辦公，所獲同意度較高 十一、專任人事人員應回歸本職學校辦公，學校規模較小無專任人事人員者，依區域聯合數校設置專任人事人員；戶政、地政等專業機構亦依性質合設一專任人事人員 十二、依照人事、會計兩系統的特性、功能及任務，制訂適宜之組織再造政策 本研究依據研究結論提出以下建議： 一、 對中央人事主管機關之建議 （一）制定更具彈性及多元的組織編制類型，以因應組織再造需要 （二）因應組織的變革，相關法規應予鬆綁 二、對臺北縣政府之建議 （一）應制定合理的員額配置的公式 （二）應賦予集中辦公區中心及區中心主任設置的法源依據 （三）人事作業e化的提升與加強 （四）提升縣屬人事人員的專業能力及團隊合作精神 （五）激勵縣屬人事人員的士氣 三、對臺北縣立中小學之建議 （一）視人事人員為工作伙伴 （二）工作權責明確劃分 四、對人事人員之建議 （一）提升個人專業能力 （二）培養第二專長 五、對進一步研究之建議 （一）可對臺北縣立其他學校、縣政府決策人員、行政人員，以及相關局室人員，並對集中辦公實施的另一對象—主計人員做調查，以瞭解對實施人事人員中辦公情形的看法。 （二）對實施集中辦公從最初政策的形成，經歷政策制定的過程，以及實施後所產生的問題等，均可為後續研究者進一步探討The thesis is aimed to understand current situation and the problems and difficulties occurring during the implementation, and furthermore discuss the causes and improvement strategy to provide as a reference to the Taipei County Government to evaluate the “policy of centralizing human resource personnel’s office”. This research covers five main themes: “Flexibility of Human Resource Adjustment”, “Effective Implementation of Human Resource Policy”, “Improving Human Source Service Efficiency”, “Centralizing Office”, and “Improvement Strategies”. Questionnaire survey of “Research Investigation of Centralizing Human Resource Personnel Office in Taipei County Municipal Elementary School and Junior High School” is administered to the entire personnel staff and the school teachers in 58 elementary and junior high schools. The total subjects conducted are 602 in terms of random sampling. In addition, in-depth interview was undertaken to collect some complementary data. The raw data was analyzed by means of Frequencies , Percentage , t-Test, oneway ANOVA and Scheffe' Method. The conclusions are as follows: 1. The district center of centralizing office is duty-driven. Its format is not legalized and the director of district center is not properly identified and positioned; thus the district center is not able to fully utilize its functions. 2. Centralizing office has limited quota , and can allocate for more than one of the institutions. Even though the human source is streamlined, but has resulted manpower allocation diversity between the urban areas and rural ones. Rural area with less manpower has more pressure. Metropolitan area also sees some problem, when the school institution does not receive professional service because the manpower transfers from time to time. 3. The school has to accommodate the HR personnel to provide assistance. While this is giving extra workload for the school staff, but also reduce the workload for the school’s HR staff. 4. There is increasing amount of omits occur during the documentation procedure. The official documents need to be returned to the school or to the district center for approval stamp. This is causing longer than expected delay or low efficiency in dealing with the official documents. Paperwork and budget reconciliation must be communicated between the district center and the school. The time in this process does not necessarily simplify or shorten the processing time. 5. In accordance with the standard operational procedure of centralizing the office, internet or email attached spreadsheets really does not the HR service become more effective in the process. Proper authorization also helps improve the efficiency. However, on the other hand, excessive power authorized would also have the concern of not able to monitor the procedure. 6. After implementing centralizing office, the HR personnel must return to the school to provide service once a week or at unspecified time. During the short stay in the school, the HR policy is not able be implemented properly because the role of duty is not fully served. Not able to provide customer-first oriented service, the HR function is then limited to approval process only. 7.Over-estimating the cost reduction of HR is actually increasing the cost of equipment and office miscellaneous items. The expected reduction on the hourly pay of the teaching HR personnel is actually not saving the money. The time cost and travel expense incurred for the personnel to commute in between the district center and the school is hard to meet the forecasted plan. 8.The schools are against of this policy. HR personnel commutes between district center and the schools are adding extra personal time, transportation burden, body tolerance and increase safety risks. Due to the fact that the centralized office is isolated from the schools, the morale of the personnel is diminished. 9.From the improvement strategy perspective, the two centralized offices have received low agreement on this policy. This has caused burden to the school’s human resource structure. 10.From the improvement strategy perspective, the three independent office strategies have received agreement leaning to the center. They agree on the HR personnel returning to the school, and the school without HR personnel shall consider alternative improvement strategy. 11.HR personnel should return to the school to work. Small-size schools, which do not have the HR personnel, can get HR personnel in accordance to the regional union of schools regulation. Household Control, Land Control, and such professional agencies can have joint HR personnel. 12.This research is in accordance to the qualities, functions and duties of personnel and accounting systems to work out the system restructure policy.

The following suggestions are provided as follows: 1. Suggestion to the HR supervising department in the central government” (1) To establish more flexible and diverse structure format to meet the needs of restructuring (2) Certain regulations must be loosen up to foresee reform of the structuring 2. Suggestion to the Taipei County Government: (1) To create formula for appropriate system of quota allocation (2) To provide legal reference for the centralized office in district center and the director of the district center. (3) HR procedure must improve electronic procedures (4) To improve county’s professionalism and teamwork cooperation. (5) To encourage the morale of the county HR personnel 3. Suggestions to the Taipei County Municipal elementary schools and junior high schools: (1) To treat HR personnel as a team (2) To clarify the duties between each other 4. Suggestions to the HR personnel: (1) Improve personal professional abilities (2) To develop the second talent 5. Suggestions for further studies: (1) The system must be able to investigate the thinking and comments of the HR personnel in the centralized office, and as well as those of the other schools in the Taipei County, and County Government decision makers, administration staff and related bureau staff. (2) The formation at early stage, policy-making, and the finding of the problems after implementation are all suitable topics for the researchers to study further.