國家菁英.indb

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1 1996 * Associate Research Fellow, Institute of European and American Studies, Academia Sinica Taiwan, and Associate Professor, Department of Political Science, National Taiwan University. 35

2 ( ) Civil Service Developments of UK and U.S.: The implications for Taiwan Examination System Reform Ching-Peng Peng Abstract This paper discusses civil service reform methods among OECD countries in the past two decades. It explores the major developments of UK civil service, including Next Steps program, agency system, and the pay system reform since It then reviews the major problems of U.S. civil service, including recruitment and pay system. Based on these experiences, this paper argues for examination system reform in Taiwan in three dimensions: constitutional arrangement, civil service management type, and examination system. Specific recommendations are proposed. Keywords : civil service, next steps, agency, selection, recruitment, senior civil service, senior executive service, public service, OECD, pay, competency. 36

3 OECD OECD,1996: Senior Executive Service, SES

4 ( ) OECD, 1996: OECD, 1996:18 civil service civil servants public service public servants OECD, 2004:2 careerbased position-based 38

5 OECD, 2004:5 OECD, 2004: OECD, 2004;, 2005 fragmented Senior Civil Service 1854 Northcote-Trevelyan Report Fulton Report Civil Service College, 2005 National School of Government 1980 Next Steps Agency System Horton, 1996:

6 ( ) efficiency scrutiny , , %Civil Service Statistics 1980 Ibbs Report1988 chief executive Next Steps lines 2000: , , ,58073Civil Service Statistics, (1) framework document (2) (3) citizen s charter charter mark (4) (5) (6) Managerialism running cost

7 Senior Civil Service within arm s length non-departmental public bodies, NDPB 50 75OECD, 2003: New Public Management Fast Stream Civil Service Fast Stream Annual Recruitment Report

8 ( ) long listed, general fast stream government communication headquarters, GCHQ secret intelligence service6 5 gov.uk, Accessed Capita Parity qualifying test grade 77 Accessed

9 Cabinet Office, 2005b: 3 10 Office of Civil Service Commissioners 2005: competence Cabinet Office, 2005 skill set delivery skills intellectual capacity interpersonal skills building productive relationship communication with impact focusing on delivery Civil Service Fast Stream, 2005a:

10 ( ) giving purpose and direction making a personal impact 1980 Cabinet Secretary Andrew Turnbull Cabinet Office, 2005b: Foreword joined-up government Cabinet Office, 2005b: Kaufman, Civil Service Act Classification Act Civil Service Reform Act National Security Personnel Act Pendleton Act patronage system Rosenbloom, 1993: ,208 13,780 44

11 a % OPM, 2005: a steps General Schedule (merit system) (demonstration project) 1990 Homeland Security Act of National Defense Authorization Act for Fiscal Year 2004 National Security Personnel System

12 ( ) 1978 designer system % 11% 15% 56%The National Commission on the Public Service, 2003: The National Commission on the Public Service, 2003: MSPB, 2004b: % 30 6% 1990 MSPB, 2004b:

13 46 48 MSPB, 2003: MSPB, 2004b: GAO 2004a: 13 (1) (2) (3) (4) (5) rule of three GAO 102 MSPB, 2004: ACWA MSPB, 2004: 20 excepted service 5 C.F.R C.F.R. 47

14 ( ) Part 213, Subpart C. Luevanoconsent decree Luevano ACWA(Administrative Careers With America 1990 certificate Outstanding Scholar Program ,305 3, ACWA ACWA 2, , , , , , , ,1992GAO,

15 Delegated Examining Operation Handbook recruitment one-stop GAO, 2004a: 21 MSPB, 2003: 23 U S A Staffing MSPB, 2003: MSPB, 2004a Merit System Protection Board, MSPB MSPB 2004a: MSPB 2004a:

16 ( ) 2004 job Profiles MSPB 2004a: 98 ACWA Employment Service, 1999: 25 GAO, 2004b: A Fresh Start For Federal Pay: The Case For Modernization position evaluation system General Schedule 50

17 OPM,2002: OPM, 2002: Quality Step Increases 15OPM, 2002: OPM,2002: v 1980OECD 51

18 ( ) OECD OECD OECD OECD OECD 52

19 53 OECD OECD

20 ( ) A1 OECD

21 work sample tests, 0.54 structured interviews, 0.51 mental ability tests, unstructured interviews, 0.38 biographical data measures, 55

22 ( ) 0.35reference checks, Schmidt and Hunter, 1998: 265 assessment center Schmidt and Hunter, 1998: e 4. 56

23 57 USAJobs 14

24 ( ) 58

25 (2004)( ) (2002) (2005) 83: (1996) 1-42 (1996) (1998a) (1998b) 9: (2000)30 3: (2003)18: (2005) 42: (2005) (2005) (2001) Human Resources Management Working Party. (2002). Assessing performance-oriented HRM activities in selected OECD countries. Paris: OECD. Human Resources Management Working Party. (2004). Trends in human resources management policies in OECD countries: An analysis of the results of the OECD survey on strategic human resources management. Paris: OECD. James, O. (2003). The executive agency revolution in Whitehall. New York: Palgrave Macmillan. Kaufman, D., Kraay, A., Mastruzzi, M. (2005). Governance matters : Governance indicators for Washington, D. C.: World Bank. OECD. (1996). Integrating people management into public service reform. Paris: OECD. Perry, J. L., Wise, L. R. (1990). The motivational bases of public service. PAR, 50, 3: 59

26 ( ) Politt, C. Talbot, C. (Eds.). (2004). Unbundled government: A critical analysis of global trend to agencies, quangos and contractualisation. New York: Routledge. Politt, C., Talbot, C., Caufield, J., Smullen, A. (2004). Agencies: How governments do things through semi-autonomous organizations. New York: Palgrave Macmillan. Schmidt, F. L., Hunter, J. E. (1998). The validity and utility of selection methods in personnel psychology: Practical and theoretical implications of 85 years of research findings. Psychological Bulletin, 24, 2: The Brookings Intitution. March 6, The Civil Service and National Security Personnel Improvement Act. Retrieved July 8, 2005, from light.pdf The National Commission on the Public Service. (2003). Urgent business for America: Revitalizing the federal government for the 21st century. Washington, D. C.: U. S. The National Commission on the Public Service. Tonge, J. (1999). The new civil service. Tisbury, UK: Baseline Book Company. U.K. Cabinet Office. (2003). Delivery and reform: Progress and plans for the future. London: Cabinet Office. U.K. Cabinet Office. (2004). Civil service reform: Delivery and values. London: Cabinet Office. U.K. Cabinet Office. (2005a). Fast Stream in-service: A guide for applicants. London: Cabinet Office. U.K. Cabinet Office. (2005b). Delivery and values: One year on. London: Cabinet Office. U.K. Cabinet Office. Civil Service Statistics 2004/ The civil Service. Retrieved August 17, 2005, from service_statistics_2004_report/the_civil_service U.K. Cabinet Office. Civil Fast Stream annual recruitment report Retrieved July 28, 2005, from U.K. Cabinet Office. Civil Fast Stream annual recruitment report Retrieved December 15, 2004, from U.K. Cabinet Office. Civil Fast Stream annual recruitment report Retrieved July 28, 2005, from U.K. National School of Government. Speaking notes for launch of National School of Government. Retrieved July 26, 2005, from drwe_turnbull_soeech.asp U. S. Merit Systems Protection Board (MSPB). (2003). The federal workforce for the 21st 60

27 century: Results of the merit principles survey Washington, D. C.: U. S. Merit Systems Protection Board. U. S. Merit Systems Protection Board (MSPB). (2004ba). Identifying talent through technology: Automated hiring system in federal agencies. Washington, D. C.: U. S. Merit Systems Protection Board. U. S. Merit Systems Protection Board (MSPB). (2004b). Managing federal recruitment: Issues, insights, and illustrations. Washington, D. C.: U. S. Merit Systems Protection Board. U.S. Government Accountability Office (GAO). (1994). Federal Hiring: Testing for entry-level administrative positions falls short of expectations. Washington, D. C.: U.S. Government Accountability Office. U.S. Government Accountability Office (GAO). (2004a). Human capital: Additional collaboration between OPM and agencies is key to improved federal hiring. Washington, D. C.: U.S. Government Accountability Office. U.S. Government Accountability Office (GAO). (2004b)Human capital: Principles, criteria, and process for governmental federal human capital reform. Washington, D. C.: U.S. Government Accountability Office. U.S. Government Accountability Office (GAO). (2005). Management reform: Assessing the President s Management Agenda. Washington, D. C.: U.S. Government Accountability Office. U.S. Office of Personnel Management (OPM). (1999). Employment solutions. Washington, D. C.: U.S. Office of Personnel Management. U.S. Office of Personnel Management (OPM). (2002). A fresh start for federal pay: The case for modernization. Washington, D. C.: U.S. Office of Personnel Management. U.S. Office of Personnel Management (OPM). (2004). OPM s guiding principles for civil service transformation. Washington, D. C.: U.S. Office of Personnel Management. U.S. Office of Personnel Management (OPM). (2005). Federal civilian workforce statistics : Employment and trends as of November Washington, D. C.: U.S. Office of Personnel Management. 61

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98 7 98 7 1980 98 6 1980 OECD 1 2 8 3 4 5 6 87 94 1 2008 2 3 3 4 1 2 1 2003 2007 2 1 12 2 3 1. 1 A. B. C. D. E. 2 A. B. A. 3 1.5 B. C. 4 A. 5 A. 6 A. B. (Assessment Center) 2. 1 A. B. 12 C. D. E. F. 2