摘要 近年來高等教育蓬勃發展，大專院校紛紛成立，而在教育經費吃緊的狀況下，我國在民國八十五年首由五所國立大學校院試辦校務基金制度，至民國九十年時，全國之國立大學已全面實施校務基金。本研究之研究目標為辨識出實施校務基金之預期目標、為這些預期目標建構績效衡量指標、蒐集資料以辨別目標達成之程度並瞭解實施校務基金對於各國立大學經營績效之影響程度。 在實施校務基金時，教育部即賦予各國立大學校院實施校務基金之目標與預期效應，經本研究彙總整理，實施校務基金之目標共可分為三個構面：財政構面、學校經營構面及社會構面。在財政構面下實施校務基金之目標為降低政府財政困難、擴充教育資源及學校預算更具彈性、避免立院過度干涉；在學校經營構面下的目標為提升經費使用效率、提升大學管理績效、使管理當局及監督者更瞭解學校財務全貌及使各大學發展自身特色；在社會構面下目標為提升教育品質及提高學校之社會服務功能。 本研究採實證分析及訪談方式以瞭解實施校務基金之目標達成程度及實施校務基金對於各國立大學經營績效之影響。研究結果如下： 1. 財政構面：降低政府財政困難之目標並未獲得實現，因為中央政府整體之教育支出並未因實施校務基金而有所降低，不過中央政府補助各國立大學校院之經費的確有大幅減少之趨勢，顯示整體的教育資源有擴充之效應。 2. 學校經營構面：實施校務基金後，國立大學校院較重視經費使用之合理性與效率性，而各校收入預算執行之能力有提升之現象；其他目標，如提升教學品質或研究能力、使管理當局及監督者更瞭解學校財務全貌及使各校發展自身特色，並未因實施校務基金而獲實現。 3. 社會構面：實施校務基金後，各校投注在每位學生身上的支出有減少之趨勢，而建教合作及推廣教育活動因實施校務基金而獲擴展。 綜合而論，實施校務基金最主要之目標及績效在於經費使用效率及收入預算實現能力之提升，至於其他目標，如提升教育品質及社會責任，與其說是實施校務基金之目標，不如說是各國立大學在實施校務基金時，應注意到的重點。 關鍵詞：國立大學、校務基金 / Research on the Performance National University and College Fund Abstract With the flourishing development of higher education, universities and colleges have been founded increasingly. In the situation of education expenditures of government being reduced and shrinking, National University and College Fund system（NUCF system）was first adopted by five national universities in 1996. By 2001, this system has been employed by all national universities and colleges in Taiwan. The objectives of this study are observing the expected goals of applying NUCF system, setting assessment indicators for these goals, and gathering datum and information of these indicators to find out the degree of achievement and the impact of NUCF system on national universities and colleges. Officials in Ministry of Education set several achievement goals and expected effects for NUCF system, which are sorted by this study in three dimensions, the Public Finance, the School Management, and the Society. There are three goals in the Public Finance dimension, which are reducing financial pressure of government, enlarging educational resources, and empower universities’ budgeting flexibility and avoiding over-interference of Legislative Yuan. In the School Management dimension, goals are improving expenditure efficiency, improving school management performance, making school authorities more comprehend the financial status of school, and helping national universities and colleges develop their own characteristics. In the Society dimension, goals are improving quality of education and public service function of national universities and colleges. Empirical research and interview investigation are utilized in this study. The results are as follows: 1. Public Finance: The goal reducing financial pressure of government is not fully realized, because the overall education expenditures of government are not diminished. But the expenditures that the government subsidizes to national universities and colleges are actually declining, which reveals that the entire educational resources are expanded. 2. School Management: National universities and colleges are more concerned about the efficiency of expenditure and the effectiveness of realizing revenue budget after applying NUCF system. As for other goals, like improving instruction quality and research ability, making school authorities more comprehend the financial status of school, and helping national universities and colleges develop their own characteristics, are not reached by NUCF system. 3. Society: The expenditure of each student in national university and college is reducing after applying NUCF system, but collaborative programs and extension education programs are expanded. In summary, the main effect of applying NUCF system is to improve expenditure efficiency and effectiveness of realizing revenue budget. Other goals, such as improving quality of education and social responsibility, would be better regarded as key factors when managing a school than as goals. Key words：National University and College, National University and College Fund

大學以推動學術研究為主要目的，惟有尊重學術自由、強調學校自主，依據教師專業能力、成就及績效，規劃設計合理的彈性待遇制度，才能提昇高等教育品質。本研究旨在瞭解我國國立大學教師對待遇制度現況問題的看法，及對教師對彈性待遇改進方向的意見，藉以提出具體建議，作為研議改進國立大學教師待遇制度的參考。 本研究首先對大學教師待遇制度的理論和實務進行文獻探討，再進行深度訪談，依據文獻探討與深度訪談意見，作為建立研究架構與調查問卷之依據，問卷調查的對象為全國48所國立大學專任教師，以分層取樣抽取1,150人，回收有效樣本913人，研究工具為自編之「國立大學教師待遇制度改進之研究」問卷。使用的統計方法包括描述性統計分析及單因子變異數分析等。 綜合文獻探討、深度訪談及問卷調查結果，本研究主要發現如下： 一、大多數國立大學教師對待遇制度相當瞭解且感到滿意。絕大多數教師同意目前的待遇水準足以維持基本生活；但多數教師認為目前的待遇水準無法激發教學研究服務績效。 二、多數國立大學教師認為目前待遇制度之本薪薪級結構、年終工作獎金的支給方式尚稱適當；但大多數教師認為各職級之學術研究費應再予以分級。 三、絕大多數國立大學教師贊同教師待遇制度設計應公教分途。 四、國立大學教師待遇應分為固定待遇和彈性待遇。固定待遇應有一致標準；彈性待遇應依學校、職務、專長領域、績效而有不同標準。 五、國立大學教師彈性待遇具體措施，包括新進教師彈性待遇措施及現職教師彈性待遇措施。 六、規劃教師彈性待遇制度，應與國立大學法人化方向一併考量，並同時改進大學校務基金制度相關配套措施。 七、絕大多數國立大學教師贊同大學應有彈性待遇之自主決定權。而大多數教師亦贊同彈性待遇經費應由校務基金自籌款支應。 八、國立大學教師彈性待遇設計應優先考量教師個人教學研究服務績效因素，其次為環境因素和學校整體績效因素。 九、國立大學教師績效評量應由教育部訂定原則，並授權各校訂定評量指標與權重。教師年度績效評量之作業程序應採三級三審制。 十、為獎優汰劣，國立大學教師彈性待遇制度應有淘汰機制配合。 十一、對教師待遇制度現況的意見，綜合大學教師的同意程度低於其他類型學校教師；運動休閒及人文社會科學領域教師的同意程度高於其他各專長領域教師。不同職級教師對待遇制度現況的同意程度有顯著差異，職級愈高，同意程度則愈低。任教年資愈長的教師，對待遇制度愈瞭解，也愈感到滿意。 十二、對教師彈性待遇設計應考量環境及學校整體績效因素的意見，藝術校院和綜合大學教師的贊同程度高於其他類型學校的教師；人文社會科學領域教師的贊同程度低於其他各專長領域的教師。不同職務教師的贊同程度有顯著差異，職級愈高，贊同程度也愈高。 依據上述研究發現提出下列具體建議： 一、儘速確立公教分途之教師待遇制度發展方向。 二、國立大學教師待遇應分為固定待遇與彈性待遇；彈性待遇制度應分階段推動，賦予大學自主決定，經費由校務基金自籌款支應。 三、規劃設計教師彈性待遇應考量環境、學校及個人因素。 四、建構國立大學教師績效評量機制與淘汰機制。 五、各校應分新進與現職教師彈性待遇措施，並循民主程序研議。 關鍵字：國立大學、教師、教師待遇制度、公教分途、彈性待遇 / The objective of the university is to improve academic research under the respect of academic freedom and school independence on the basis of teacher’s expertise, achievements, and contributions. Designing a reasonable and flexible compensation system is the way of promoting the quality of higher education. The purpose of this study was to investigate teacher’s views on the current compensation system of the national university and on the flexible compensation system. After this study, we will propose some suggestions that could be used for the reference of improving teacher’s compensation system of the national university. The study was conducted through a literature review, detailed personal interview, and questionnaire. The subjects consisted of 1,150 full-time faculty members at 48 universities. The valid subjects were 913. Descriptive statistic analyses and single-factor variable analyses were used in this study. After a careful literature review, a detailed personal interview, and a questionnaire, we found the following facts: 1. Most of the teachers understand and are satisfied with the present compensation system. They believe that their compensation can maintain their basic cost of living, but that it cannot stimulate their contributions on teaching, research, and service. 2. Most of the teachers are satisfied with the current compensation structure and the ways of year-end premium, but they suggest that the academic research grants should be different based on their official ranks. 3. Most of the teachers agree that the compensation system should be different between teachers and public servants. 4. The compensation system should be divided into a regular compensation and a flexible compensation. The regular compensation should have the same requirements; the flexible compensation is based on types of schools, teacher’s duties, specialties, and contributions. 5. The measurement of the flexible compensation should be suitable for junior teachers and senior teachers. 6. The teacher’s flexible compensation system should be considered together with the problems of juridical person of national university and university foundations. 7. Most of the teachers at the national universities agree that the university can decide teachers’ flexible compensation and that the compensation budget must come from university foundations. 8. The design of flexible compensation should first be considered together with teacher’s contributions on teaching, research, and service; and next with environmental factors and school’s contribution factors. 9. The principle of teacher’s evaluation of contributions should be stipulated by the Minister of Education, the evaluation index and the percentage be authorized by the school, and the teacher’s annual evaluation of contributions be adopted the first instance, first appeal, and second appeal. 10. The flexible compensation system should have the elimination through competition. 11. Teachers at general universities are less favorable to the flexible compensation system than those at other types of universities. Teachers of physical education and social science and liberal arts are more favorable than other fields of teachers. The higher ranks the teachers have, the more they agree. The senior teachers more understand and are satisfied with the compensation system than the junior teachers. 12. The teachers at art universities and general universities are more favorable to environmental factors and school’s contribution factors than those at other types of universities. Teachers of social science and liberal arts are less favorable than those of other fields of teachers. The higher ranks the teachers have, the more they agree. According to the study and the findings mentioned above, we proposed the following specific suggestions: 1. Different compensation systems between teachers and public servants should be established as soon as possible. 2. The compensation system should be divided into regular compensation system and flexible compensation system. The flexible compensation system must be pushed step by step and be decided by the university. Its budget should come from the foundations raised by the school itself. 3. The teacher’s flexible compensation should be considered together with environmental, school, and personal factors. 4. The government should establish the evaluation and elimination system on teacher’s contributions. 5. The school should find out a democratic procedure to decide a senior and a junior teacher’s flexible compensation. Key Words: national universities, teachers, teacher’s compensation systems, different ways of teachers and public servants, flexible compensation

國立大學法人化議題之提出，始自77年至83年大學法於立法院修法期間，從當時的公法人，演變至92年行政院通過大學法修正草案的行政法人類型，惟因各界對大學法人化議題仍有爭議，94年12月新修正公布之大學法，並未通過國立大學公法人化相關條文。然隨著全球化、市場化及後WTO時代之來臨，各大學終要面臨國際大學之競爭，為賦予大學更多自治權及避免政治及行政干預，使其在人事及經費運用上更自主彈性，藉以提昇國際競爭力及追求學術卓越，國立大學公法人化，幾已確立為政府推動高等教育改革方法之一。 本研究主要目的係以92年大學法修正草案有關行政法人國立大學之組織為藍本，探討董事會、校長、校務會議及學術評議委員會等組織之設計，配合公私立大學組織運作及參酌德、美及日本國立大學公法人實施先例及國內學者專家訪談結果，主要研究發現分述如下： 一、國立大學法人化雖參採國外大學法人制度經驗並應能因地制宜。 二、國立大學法人化目的應是確保大學自治，而非行政效能考量。 三、國立大學法人不宜限定單一行政法人類型，設置董事會；其或採公法人、法人或教育法人類型，採理事會或首長制之治理模式，應允大學自主。 四、國立大學法人校長若由董事會遴選，校內董事成員應過半。 五、國立大學若設董事會，應多元並有義務規範及評鑑機制。 六、國立大學校務會議規模應小，定位於參與及諮詢功能。 七、國立大學學術評議委員會應是校內最高學術事項之決定單位。 八、校長、董事會、校務會議與學術評議委員會間的權責關係應予釐清。 本文最後依研究結果提出建議，對政府言，國立大學法人化之立法及配套應力求周延；大學法人化之組織設計應符合大學需要；法人化後，政府仍不能免除對大學基本財政資源需求之責任。對教職員言，大學法人化，雖非唯一最佳選擇，但對確保大學自治卻是可行途徑；各大學得依據本身規模特性、發展設計法人型態。 關鍵字：國立大學、公法人、行政法人 / The transformation of national universities into public corporations was first proposed in the University Law during the amendment sessions of the Legislative Yuan from 1988 to 1994. In 2003, the University Law amendment draft passed by the Executive Yuan included the transformation of national universities into administrative corporations, but because of disputes regarding the incorporation of national universities, articles related to the transformation of national universities into public corporations were not passed in the new University Law amendment of December 2005. However, due to globalization, marketization, and the coming of the post-WTO era, domestic universities must eventually compete with foreign universities. In order to allow universities to gain more autonomy and receive less political or administrative interference so as to have better flexibility in terms of personnel management and fund utilization, thereby increase global competitiveness and pursue higher academic goals, the government is sure to consider national university corporations as a means of higher education reform. Based on the organization design of administrative national university corporations as described in the University Law amendment draft of 2003, this study discusses the organization design of boards of trustees, presidents, academic affairs meetings, and academic review committees, and also takes into consideration the operation of public and private universities, examples of national university corporations in Germany, the United States, and Japan, as well as interviews of domestic scholars and experts. The main results of this study are as follows: 1. Borrowing from the experiences of foreign national university corporations, domestic incorporation should still be tailored to the environment in Taiwan. 2. The purpose incorporation should be to ensure the autonomy of universities, and not to improve administrative efficiency. 3. Incorporation should not be limited to a single form, and boards of directors should be established. Forms of corporations may include public corporations, corporations, and education corporations. Board or leadership management systems should be adopted, and universities should be given autonomy. 4. In the case that the president of a national university corporation is elected by the board of trustees, the number of faculty board members should exceed half the total number of board members. 5. In the case that a board of trustees is established, the members should be diverse. Obligations, rules, and evaluation mechanisms should also be established. 6. Academic affairs meetings of national university corporations should be small in scale, and focus on participation and consultation. 7. Academic review committees should be the final decision-makers regarding academic issues in national university corporations. 8. The roles and responsibilities Presidents, boards of trustees, academic affairs meetings, and academic review committees should be clearly defined. Lastly, the results of this study showed that: the government should aim to provide a comprehensive legislation and associated measures for the incorporation of national universities; organization design of national university corporations should be tailored to the needs of the universities; after incorporation, the government should still be responsible for the basic financial needs of universities. For faculty, incorporation may not be the best or only choice, but is nevertheless a way to autonomy; and universities can plan the form of incorporation according to their characteristics and visions. Keywords: national universities, public corporation, administrative corporation

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