当今新西兰公务员制度研究
摘要
新西兰是新公共管理改革最迅速、彻底、全面的国家之一,它因改革的范围广、力度深、持续时间长、成效明显而被许多国家奉为典范。我国对新公共管理的研究比较多,但其中涉及新西兰公务员制度的内容都较为零散,关于新西兰公务员制度改革的内容更是少之又少。笔者在华东师范大学图书馆目录查询系统及中国知网上检索与“新西兰公务员制度”相关的图书及论文,检索结果得出的相关图书和文章寥寥无几。这充分说明我国对新西兰公务员制度的研究很缺乏,同时也说明了对此研究的必要性。因此,笔者通过对新西兰政府网站上公布的第一手的英文文献、法规、报告等资料进行原始研究,论述了新西兰公务员的录用、培训和薪酬的最新发展情况,这些都是新西兰公务员制度中的新内容。在此基础上,笔者总结了新西兰公务员制度的特点并分析了其对我国的借鉴和启示。本论文写作的目的一是填补国内对当今新西兰公务员制度研究的相对空白;二是通过对新西兰政府公务员制度改革的背景、过程和内容的分析,及对公务员任用、培训、薪酬等现状的阐释,总结其发展经验和规律并与我国公务员现状进行对比,寻找对于我国公务员制度改革具有参考和借鉴意义的地方。
本文共由四章组成,第一章是导论;第二章介绍了新西兰政府和公务员概况,包括新西兰政治及政府概况、公务员类别及人数、行政改革和公务员核心价值观及行为准则;第三章论述了新西兰公务员制度中的一些主要新内容,包括公务员的录用、能力模型和培训、福利和薪酬。其中第一节公务员录用制度中特别涉及了新西兰的执行官制度。执行官制度是新西兰公务员制度的一大特色,它把政策的制定与执行分开,沿用企业的绩效合同模式,有效提高了行政效率;第二节主要论述公务员能力模型和培训制度。新西兰公务员素质模型分为通用素质模型和高级公务员素质模型,前者是所有公务员都必须具备的,后者是针对高级公务员的更高层次的要求。不仅如此,素质模型中每一个能力要素都按照公务员所在层级有不同的能力要求;第三节是对新西兰公务员薪酬和福利制度的概括,本节从新西兰薪酬制度的改革说起,然后介绍改革后新的薪酬制度设计的原则、目的和薪酬构成,最后介绍了新西兰一项颇有特色的“工作生活平衡”福利,这是一项很人性化的制度设计,在保证完成工作任务的同时最大限度地为公务员的生活提供便利。第四章主要对新西兰公务员制度进行总结,并在此基础上找出对完善我国公务员制度的启示和可借鉴的因素。
New Zealand is very famous for its depth, breadth, duration and results in New Public Management Reform. It was regarded as a model for many countries. There are many researches about New Public Management Reform in China, but the one that involves New Zealand public servants system is extremely rare. The author searches books and papers that relevant to New Zealand Public Servants system in East China Normal University Library directory enquiry system and in Internet, the result is rare. That fully proved the limitation and the necessity of research. Therefore, the author research through first-hand English literature, laws, regulations, reports and other data that announced in the website of the New Zealand Government. Based on these information, the author studied employment, training and salary status of New Zealand public servants system. On this basis, the author summed up the characteristics of New Zealand civil servant system and its reference and inspiration meaning to China. One of the purpose of this paper is to fill the relatively research blank of this area, the other purpose is to guide our public servants system reform by summing up their experience.
The thesis consists of four parts. Chapter one is introduction. Chapter two introduces general information of New Zealand government and its public servants system, including public servants' type and head account, administration reform, public servants' core values, code and conduct, etc. Chapter 3 introduces some new development of New Zealand public servants system, including employment, training, and competency model and salary policy. Chapter 5 sums up the system of New Zealand Public Service. New Zealand has a completed legal system with strict implementation; pay attention to training and strength competence building; change employment ideality and put contract into practice; establish flexible remuneration system and promote guarantee mechanism. These merits must have positive meaning towards the further improvement of Chinese civil servants' system.
本文共由四章组成,第一章是导论;第二章介绍了新西兰政府和公务员概况,包括新西兰政治及政府概况、公务员类别及人数、行政改革和公务员核心价值观及行为准则;第三章论述了新西兰公务员制度中的一些主要新内容,包括公务员的录用、能力模型和培训、福利和薪酬。其中第一节公务员录用制度中特别涉及了新西兰的执行官制度。执行官制度是新西兰公务员制度的一大特色,它把政策的制定与执行分开,沿用企业的绩效合同模式,有效提高了行政效率;第二节主要论述公务员能力模型和培训制度。新西兰公务员素质模型分为通用素质模型和高级公务员素质模型,前者是所有公务员都必须具备的,后者是针对高级公务员的更高层次的要求。不仅如此,素质模型中每一个能力要素都按照公务员所在层级有不同的能力要求;第三节是对新西兰公务员薪酬和福利制度的概括,本节从新西兰薪酬制度的改革说起,然后介绍改革后新的薪酬制度设计的原则、目的和薪酬构成,最后介绍了新西兰一项颇有特色的“工作生活平衡”福利,这是一项很人性化的制度设计,在保证完成工作任务的同时最大限度地为公务员的生活提供便利。第四章主要对新西兰公务员制度进行总结,并在此基础上找出对完善我国公务员制度的启示和可借鉴的因素。
New Zealand is very famous for its depth, breadth, duration and results in New Public Management Reform. It was regarded as a model for many countries. There are many researches about New Public Management Reform in China, but the one that involves New Zealand public servants system is extremely rare. The author searches books and papers that relevant to New Zealand Public Servants system in East China Normal University Library directory enquiry system and in Internet, the result is rare. That fully proved the limitation and the necessity of research. Therefore, the author research through first-hand English literature, laws, regulations, reports and other data that announced in the website of the New Zealand Government. Based on these information, the author studied employment, training and salary status of New Zealand public servants system. On this basis, the author summed up the characteristics of New Zealand civil servant system and its reference and inspiration meaning to China. One of the purpose of this paper is to fill the relatively research blank of this area, the other purpose is to guide our public servants system reform by summing up their experience.
The thesis consists of four parts. Chapter one is introduction. Chapter two introduces general information of New Zealand government and its public servants system, including public servants' type and head account, administration reform, public servants' core values, code and conduct, etc. Chapter 3 introduces some new development of New Zealand public servants system, including employment, training, and competency model and salary policy. Chapter 5 sums up the system of New Zealand Public Service. New Zealand has a completed legal system with strict implementation; pay attention to training and strength competence building; change employment ideality and put contract into practice; establish flexible remuneration system and promote guarantee mechanism. These merits must have positive meaning towards the further improvement of Chinese civil servants' system.
引文
[1]薛凯:《改革政府-新西兰的经验》,《中国行政管理》1998年第12期。
[1]State Sector Commission,New Zealand's State Sector Reform:A Decade of Change,2002.http://www.ssc.govt.nz/decade-of-change
[2]同上
[3]同上
[1]State Service Commission,Glossary.http://www,ssc.govt.nz/glossary/#P
[1]State Services Commission,Human Resource Capability Survey of Public Service Departments,2006 http://www,ssc.govt.nz/display/document,asp?docid
[1]怀唐伊条款(Treaty of waitangi)是1840年英国王室与毛利人之间签署的一项协议,该协议确认了毛利人对土地和文化的拥有权。该条约被公认为新西兰的建国文献。
[2]State Service commission,Public Service Induction - What it means to be a public servant,2004.http://www,ssc.govt.nz/public-service-induction
[3]New Zealand Customs Services,Vision Mission and Values http://www,customs,govt.nz/about/default,htm
[1]State Service commission,New Zealand Public Service Code of Conduct,2002http://www.ssc.govt.nz/coc
[1]State Service commission,New Zealand Public Service Code of Conduct,2007http://www,ssc.govt.nz/code
[1]吴志华主编:《公共部门人力资源管理》,复旦大学出版社2007年版,第389页。
[1]State Services Commission,Public Service Chief Executive Remuneration - report of the State Services Commissioner,1998 http://www.ssc.govt.nz/rem_report_1998
[1]State Services Commission,Work-Life Balance-a resource for the State Services,2005.http://www.ssc.govt.nz/worklifebalance
[1]严世雄:《当代中国公务员的价值观及其建设研究》,武汉大学硕士学位论文,2005年。
1.State Services Commission,Public Service chief executives - remuneration policy,2005.http://www.ssc.govt.nz/ps-ce-rem-policy
2.State Services Commission,Public Service chief executives - appointment process,2005.http://www.ssc.govt.nz/ps-ce-appt-process
3.State Services Commission,Performance information measures and standards in the SOI and Annual Report,2007.http://www.ssc.govt.nz/performance-info-measures
4.State Services Commission,New Zealand Public Service Chief Executives'Competencies,2004.http://www.ssc.govt.nz/ce-competencies
5.State Services Commission,Leadership Capability Profile:Summary of research and design,2004.http://www.ssc.govt.nz/leadership-capability-profile-summary
6.State Services Commission,Human Resource Guidance:EEO Data in the Public Service,2002.http://www.ssc.govt.nz/hr-guidance-eeo-data-2001
7.State Services Commission,Human Resource Capability Survey of Public Service Departments as at 30 June 2006(workforce profile),2006.http://www.ssc.govt.nz/hrc-survey-2006
8.State Services Commission,Human Resource Capability Survey of Public Service Departments as at 30 June 2005(workforce profile),2005.http://www.ssc.govt.nz/hrc - survey - 2005
9.State Services Commission,Common and Unique Public Service Competencies,2004.http://www.ssc.govt.nz/public-service-competencies
10.State Services Commission,Career Progression and Development Survey 2005,2006.http://www.ssc.govt.nz/display/document.asp?docid=5310
11.State Services Commission,Board Appointment and Induction Guidelines(Revised May 2007),2007.http://www.ssc.govt.nz/board-appointment-guidelines
12.State Services Commission,Annual Report of the State Services Commission for the year ended 30 June 2005,including the annual report of the State Services Commissioner, 2005. http://www.ssc.govt.nz/ar2005
13. State Services Commission, Leadership Capability Profile: Summary of research and design, 2004. http://www.ssc.govt.nz/leadership-capability-profile-summary
14. State Services Commission, Equality and Diversity: New Zealand Public Service Equal Employment Opportunities Policy, 2008. http://www.ssc.govt.nz/public-service-eeopolicy
15. State Services Commission, HR Framework: Review of the Centre: State Sector Human Resources Framework,2004. http://www.ssc.govt.nz/hr-framework-cab-paper
16. State Services Commission, Factors for Successful Coordination - A Framework to Help State Agencies Coordinate Effectively, 2008. http ://www. ssc .govt.nz/state-services-coordination
17. State Services Commission, A Framework for Measuring Training and Development in the State Sector, 2001. htrp://www.ssc.govt.nz/display/document.asp?DocId=2885
18. State Services Commission, Walking the Talk-Making Values Real, 2001. http://www.ssc.govt.nz/resource_kit
19. State Services Commission, Human Resource Capability Survey of Public Service Departments as at 30 June 2007 (workforce profile), 2007. http://www.ssc.govt.nz/hrc-survey-2007
20. State Services Commission, Annual Report of the State Services Commion,1998. http://www.ssc.govt.nz/AR98
21. State Services Commission, Annual Report of the State Services Commission for the year ending 30 June 2001, including the annual report of the State Services Commissioner , 2001. http://www.ssc.govt.nz/AR01
22. State Services Commission, Annual Report of the State Services Commission for the year ending 30 June 2002, including the annual report of the State Services Commissioner , 2002. http://www.ssc.govt.nz/sscer-report-state-services-2002
23. State Services Commission, Annual Report of the State Services Commission for the year ending 30 June 2003, including the annual report of the State Services Commissioner,2003.http://www.ssc.govt.nz/sscer-report-state-services-2003
24.State Services Commission,Annual Report of the State Services Commission for the year ending 30 June 2004,including the annual report of the State Services Commissioner,2004.http://www.ssc.govt.nz/ar2004
25.State Services Commission,Annual Report of the State Services Commission for the year ending 30 June 2005,including the annual report of the State Services Commissioner,2005.http://www.ssc.govt.nz/ar2005
26.State Services Commission,Annual Report of the State Services Commission for the year ending 30 June 2006,including the annual report of the State Services Commissioner,2006.http://www.ssc.govt.nz/ar2006
27.State Services Commission,Annual Report of the State Services Commission,Preparing the Annual Report 2007 - Guidance and Requirements for Crown Entities,July 2007.http://www.ssc.govt.nz/annual-report-2007 guidance-crown-entities
28.State Services Commission,Public Service Remuneration Systems,Principle and Practice,2005.http://www.ssc.govt.nz/display/document.asp?docid=4631
29.State Services Commission,Public Service Induction - What it means to be a public servant,2004.http://www.ssc.govt.nz/public-service-induction
30.State Services Commission,New Zealand Public Service Code of Conduct,2002.http://www.ssc.govt.nz/display/document.asp?docid=5208&PageType=toc&displayt ype=pf
31.State Sector Commission,New Zealand's State Sector Reform:A Decade of Change,2002.http://www.ssc.govt.nz/decade-of-change
32.State Sector Commission,Transforming the State Services:State of the Development Goals Report 2007,2007.http://www.ssc.govt.nz/sdg-report07
1.程样国、韩艺:《国际新公共管理浪潮与行政改革》,北京:北京人民出版社,2005。
2.李和中:《比较公务员制度》,北京:中共中央党校出版社,2003.
3.吴志华:《公共部门人力资源管理》,上海:复旦大学出版社,2007。
4.余泽忠:《绩效考核与薪酬管理》,武汉:武汉大学出版社,2006。
5.李斌雄:《中国共产党的价值观研究》,北京,中国社会科学出版社,2003。
6.中华人民共和国人事部国际交流与合作司编《外国公务员制度》,北京:中国人事出版社,1995。
7.人事部:国家公务员通用能力标准框架(试行),人事部网站。http://www.mop.gov.cn
8.[澳]乔·沃利斯布赖恩·多勒瑞,孙晓莉译:《政府失灵、社会资本以及新西兰公共部门改革模式对发展中国家的适用性》,《上海行政学院学报》2004年第5卷第1期。
9.竺乾威:《执行长-新西兰的政府人事管理创新》,《中国行政管理》2005年第7期。
10.毕乐强:《新西兰政府行政改革及其启示》,《财经问题研究》,2000年第2期。
11.陈振明:《转变中的国家公务员制度-中西方公务员制度改革与发展的趋势及其比较》,《厦门大学学报(哲学和社会科学版)》2001年第2期。
12.杜安国、刘捷:《公务员薪酬制度的比较分析及其政策选择》,《山东科技大学学报(社会科学版)》2003年第5卷第4期。
13.梁莹、刘伟红:《转变中的国家公务员制度-中西方公务员制度改革与发展趋势及其比较》,《南京工业大学学报(社会科学版)》2002年第1卷第3期。
14.刘颢、妥艳洁:《新西兰:行政改革的先驱者》,《中国社会导刊》2007年第3期。
15.任宣:《新西兰公务员管理制度》,《中国公务员》2003年第2期。
16.孙卓华、邢同卫:《外国公务员培训特点及启示》,《山东理工大学学报(社会科学版)》2004年第20卷第2期。
17.薛凯:《改革政府:新西兰的经验》,《中国行政管理》1998年第12期。
18.杨波:《当代西方公务员制度改革的基本方向》,《云南行政学院学报》2004年第4期。
19.姚旭豪:《政府变革的现实途径--新西兰行政改革的启示》,《山西高等学校社会科学学报》,2007年第19卷第3期。
[1]State Sector Commission,New Zealand's State Sector Reform:A Decade of Change,2002.http://www.ssc.govt.nz/decade-of-change
[2]同上
[3]同上
[1]State Service Commission,Glossary.http://www,ssc.govt.nz/glossary/#P
[1]State Services Commission,Human Resource Capability Survey of Public Service Departments,2006 http://www,ssc.govt.nz/display/document,asp?docid
[1]怀唐伊条款(Treaty of waitangi)是1840年英国王室与毛利人之间签署的一项协议,该协议确认了毛利人对土地和文化的拥有权。该条约被公认为新西兰的建国文献。
[2]State Service commission,Public Service Induction - What it means to be a public servant,2004.http://www,ssc.govt.nz/public-service-induction
[3]New Zealand Customs Services,Vision Mission and Values http://www,customs,govt.nz/about/default,htm
[1]State Service commission,New Zealand Public Service Code of Conduct,2002http://www.ssc.govt.nz/coc
[1]State Service commission,New Zealand Public Service Code of Conduct,2007http://www,ssc.govt.nz/code
[1]吴志华主编:《公共部门人力资源管理》,复旦大学出版社2007年版,第389页。
[1]State Services Commission,Public Service Chief Executive Remuneration - report of the State Services Commissioner,1998 http://www.ssc.govt.nz/rem_report_1998
[1]State Services Commission,Work-Life Balance-a resource for the State Services,2005.http://www.ssc.govt.nz/worklifebalance
[1]严世雄:《当代中国公务员的价值观及其建设研究》,武汉大学硕士学位论文,2005年。
1.State Services Commission,Public Service chief executives - remuneration policy,2005.http://www.ssc.govt.nz/ps-ce-rem-policy
2.State Services Commission,Public Service chief executives - appointment process,2005.http://www.ssc.govt.nz/ps-ce-appt-process
3.State Services Commission,Performance information measures and standards in the SOI and Annual Report,2007.http://www.ssc.govt.nz/performance-info-measures
4.State Services Commission,New Zealand Public Service Chief Executives'Competencies,2004.http://www.ssc.govt.nz/ce-competencies
5.State Services Commission,Leadership Capability Profile:Summary of research and design,2004.http://www.ssc.govt.nz/leadership-capability-profile-summary
6.State Services Commission,Human Resource Guidance:EEO Data in the Public Service,2002.http://www.ssc.govt.nz/hr-guidance-eeo-data-2001
7.State Services Commission,Human Resource Capability Survey of Public Service Departments as at 30 June 2006(workforce profile),2006.http://www.ssc.govt.nz/hrc-survey-2006
8.State Services Commission,Human Resource Capability Survey of Public Service Departments as at 30 June 2005(workforce profile),2005.http://www.ssc.govt.nz/hrc - survey - 2005
9.State Services Commission,Common and Unique Public Service Competencies,2004.http://www.ssc.govt.nz/public-service-competencies
10.State Services Commission,Career Progression and Development Survey 2005,2006.http://www.ssc.govt.nz/display/document.asp?docid=5310
11.State Services Commission,Board Appointment and Induction Guidelines(Revised May 2007),2007.http://www.ssc.govt.nz/board-appointment-guidelines
12.State Services Commission,Annual Report of the State Services Commission for the year ended 30 June 2005,including the annual report of the State Services Commissioner, 2005. http://www.ssc.govt.nz/ar2005
13. State Services Commission, Leadership Capability Profile: Summary of research and design, 2004. http://www.ssc.govt.nz/leadership-capability-profile-summary
14. State Services Commission, Equality and Diversity: New Zealand Public Service Equal Employment Opportunities Policy, 2008. http://www.ssc.govt.nz/public-service-eeopolicy
15. State Services Commission, HR Framework: Review of the Centre: State Sector Human Resources Framework,2004. http://www.ssc.govt.nz/hr-framework-cab-paper
16. State Services Commission, Factors for Successful Coordination - A Framework to Help State Agencies Coordinate Effectively, 2008. http ://www. ssc .govt.nz/state-services-coordination
17. State Services Commission, A Framework for Measuring Training and Development in the State Sector, 2001. htrp://www.ssc.govt.nz/display/document.asp?DocId=2885
18. State Services Commission, Walking the Talk-Making Values Real, 2001. http://www.ssc.govt.nz/resource_kit
19. State Services Commission, Human Resource Capability Survey of Public Service Departments as at 30 June 2007 (workforce profile), 2007. http://www.ssc.govt.nz/hrc-survey-2007
20. State Services Commission, Annual Report of the State Services Commion,1998. http://www.ssc.govt.nz/AR98
21. State Services Commission, Annual Report of the State Services Commission for the year ending 30 June 2001, including the annual report of the State Services Commissioner , 2001. http://www.ssc.govt.nz/AR01
22. State Services Commission, Annual Report of the State Services Commission for the year ending 30 June 2002, including the annual report of the State Services Commissioner , 2002. http://www.ssc.govt.nz/sscer-report-state-services-2002
23. State Services Commission, Annual Report of the State Services Commission for the year ending 30 June 2003, including the annual report of the State Services Commissioner,2003.http://www.ssc.govt.nz/sscer-report-state-services-2003
24.State Services Commission,Annual Report of the State Services Commission for the year ending 30 June 2004,including the annual report of the State Services Commissioner,2004.http://www.ssc.govt.nz/ar2004
25.State Services Commission,Annual Report of the State Services Commission for the year ending 30 June 2005,including the annual report of the State Services Commissioner,2005.http://www.ssc.govt.nz/ar2005
26.State Services Commission,Annual Report of the State Services Commission for the year ending 30 June 2006,including the annual report of the State Services Commissioner,2006.http://www.ssc.govt.nz/ar2006
27.State Services Commission,Annual Report of the State Services Commission,Preparing the Annual Report 2007 - Guidance and Requirements for Crown Entities,July 2007.http://www.ssc.govt.nz/annual-report-2007 guidance-crown-entities
28.State Services Commission,Public Service Remuneration Systems,Principle and Practice,2005.http://www.ssc.govt.nz/display/document.asp?docid=4631
29.State Services Commission,Public Service Induction - What it means to be a public servant,2004.http://www.ssc.govt.nz/public-service-induction
30.State Services Commission,New Zealand Public Service Code of Conduct,2002.http://www.ssc.govt.nz/display/document.asp?docid=5208&PageType=toc&displayt ype=pf
31.State Sector Commission,New Zealand's State Sector Reform:A Decade of Change,2002.http://www.ssc.govt.nz/decade-of-change
32.State Sector Commission,Transforming the State Services:State of the Development Goals Report 2007,2007.http://www.ssc.govt.nz/sdg-report07
1.程样国、韩艺:《国际新公共管理浪潮与行政改革》,北京:北京人民出版社,2005。
2.李和中:《比较公务员制度》,北京:中共中央党校出版社,2003.
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