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1、河南大学 硕士学位论文 我国政府雇员制试行中问题及对策研究 姓名：冯静 申请学位级别：硕士 专业：管理学、行政管理 指导教师：关学增 2011-05 I 摘 要 20 世纪 50 年代，前联邦德国第一个在政府公共行政组织中推行政府雇员制，随着 制度的顺利实施，美国、新西兰、英国、澳大利亚、日本等国也相继开展改革实践。这 种新的政府人事管理制度，对传统的公务员管理制度产生了巨大的冲击，在实践中也受 到了越来越多国家的重视。 2002 年 6 月吉林省人民政府雇员管理试行办法的出台，标志着吉林省成为我国 首个“吃螃蟹”的地区。紧接着，武汉、珠海、深圳、广州、上海、江苏、湖北等地也 都纷纷开始推行这
2、一新的用人制度， 相当一段时间内政府雇员制在社会上成为一个热门 话题。 我国政府雇员制的出现， 从积极的角度来看， 是我国政治文明建设的一项新的尝试， 在一定程度上为解决政府工作人员能进不能出、终身制和不能合理流动等一系列问题； 突破传统的政府工作人员录用流程，引进新的具有市场化和契约化特点的理念和方法， 开拓了一条新的探索道路，是对我国现行行政管理体制的完善补充，也是党政机关用人 制度深入改革的勇敢探索。 政府雇员制作为一项还处于探索和试行阶段的政府用人机制， 在试行中由于对制度 的本质缺乏相对科学、 深入的研究和认识， 同时制度设计本身也存在着一定的不适应性， 该制度在实施过程中也面临种种
3、困难。我国学术界对其适用范围、管理制度以及实施效 果等也存在着一些争议。因此，本文以现有的理论研究成果为基础，特别是对其实施过 程中存在问题及原因加以分析，同时借鉴国外实行政府雇员制的经验，提出我国完善政 府雇员制的对策，以助于实现提升政府部门公共服务质量与效率。全文共分五个部分。 第一部分：理论概述。本部分首先根据国外相关定义对政府雇员进行概念界定，并 进一步阐述政府雇员与公务员、政府雇员制与公务员制的区别和联系。 第二部分：政府雇员制在我国的实行现状。本部分对我国三个具有代表性的地区实 践模式进行分析，通过比较理出模式之间的联系与区别，同时提出我国实施政府雇员的 必要性。 第三部分：国外政
4、府雇员制实施概况及启示。针对四个实行政府雇员制的国家进行 分析研究，在总结其发展状况之后提出对我国政府雇员制产生的启示。 II 第四部分：我国政府雇员制实施过程中的问题及原因分析。通过系统分析指出我国 政府雇员制在试行过程中存在的问题以及制度设计本身的不完善之处， 并进行相关原因 分析。 第五部分：我国政府雇员制的对策研究。本部分针对政府雇员制试行过程中出现的 问题提出对策建议，首先要对理论加以深入研究，其次对政府雇员制度本身进行较为详 细的设计，包括招聘录用、薪酬管理、雇员培训、绩效考核、法律规范建设等五个方面。 关键词：政府雇员制，公务员，公务员制，制度构建 III ABSTRACT In
5、 the 1950s, former federal Germany first carried out the government employee system in government organizations for public administration. With the smooth implementation of the system, the United States, New Zealand, Britain, Australia, Japan and other countries have also developed the practice of r
6、eform. This new government personnel management system, has had a huge impact to the traditional civil service management system, and has called attention of more and more nations in practice. In June 2002, “The trial procedures of the employee management for the peoples government of Jilin province
7、“ came on stage, which marked the Jilin province became Chinas first “eating crab” area. Then, many areas, such as Wuhan, Zhuhai, Shenzhen, Guangzhou, Shanghai, Jiangsu, Hubei, etc, began to carry out this new employment system. In a quite long period of time, the government employee system, became
8、a hot topic in society. The appearance of the government employee system in China, from positive perspective, is a new attempt in our political civilization construction. To some extent, it solved a series of problem, such as the government employees can enter and cannot go out, the tenure of the em
9、ployees, and they can not reasonably flow; By breaking through the traditional offer process for the government employees, and introducing new concepts and methods with characteristics of the marketization and contractation, a new exploration road is developed. And it is perfect complement of the cu
10、rrent administration management system, also the brave exploring of the personnel system reform in party and government organizations. As the government employee system is still in exploration and implementation phase of government personnel mechanism, this system also confronted with various diffic
11、ulties in the process of implementing, because of lack of relative scientific, depth research and understanding of the systems essence in the trial process, and the unadaptability of the system design itself. Chinese scholars also have some controversy to the scope, management system and implementat
12、ion effect of the system. Therefore, based on the current theory and research result, the existing problems and reasons of the system in the implementation process is analyzed, and the strategy to improve our countrys government employee system is raised, implemented the reference of foreign governm
13、ent employee systems. It will help enhance the public service quality and efficiency of the government departments. The article is divided into five parts. IV Part 1: introduction to the theory. This section first gives definition of government employees according to relevant definition of governmen
14、t employees abroad, and further elaborates the difference and relationship between the government employees and the civil servants, the government employee system and the civil service system. Part 2: the present implementation situation of the government employee system in our country. In this part
15、, three representative district practice modes in China are analyzed. By comparing the relationship and difference between the three modes, the necessity of implementing government employee system is put forward. Part 3: the implementation and enlightenment of foreign government employee systems. By
16、 analyzing and researching four implement government employee systems, and on a summary of the systems development in the four countries, the enlightenment to the government employee system in China is produced. Part 4: the problems and reason analyzation of Chinas government employee system in implementation process. Through systematic analysis of government employees, the problems of Chinas government employee system in the trial process and system design itself are pointed out and
