國家教育研究院

　　研究與教學乃是大學最重要的兩項基本任務，而相較於以公法契約聘任編制內人員之傳統，國立大學向來除聘有兼任教師負責部分教學工作外，近年來亦開始以私法契約延聘專任之教學人員及研究人員，且似有持續增加之需求與趨勢。就人事管理及相關法制而言，此等以校務基金或其他計畫性經費所進用的契僱教學、研究人員，對大學雖具有彈性充實人力之優點，惟卻缺乏妥適的法制基礎，且在相關人員未能適用勞基法的情況下，相對不利於契約相對人的基本權益保障。為求兼顧大學自治需求與個人工作權益之衡平，進而增進教育績效、提升教育品質並符應高等教育的發展趨勢，本研究乃交互運用文獻探討、法令分析、專家訪談、問卷調查等多種過程與方法，以嘗試提出合理妥適的可能作為，俾供教育部研擬國立大學契僱教學、研究人員人事管理方案及相關制度之參考。具體而言，本研究所稱「契僱教研人員」，係區分為（1）專案教師、（2）兼任教師、（3）鐘點教師、（4）博士後研究人員、（5）專任研究助理、（6）兼任研究助理、（7）兼任教學助理、（8）工讀生等八種類別；其中，兼任研究助理、兼任教學助理與工讀生三類，又因常係由學生兼任，故而衍生「在學關係」與「僱傭關係」或「勞動關係」間之若干爭議。據此，本研究乃以「瞭解目前國立大學各類契僱教研人員之聘僱概況及其應有之基本權益保障內涵」、「分析目前國立大學與各類契僱教研人員間之契約關係屬性及其可能存在的主要問題」與「基於大學自治及各類契僱教研人員權益保障之衡平，提出當前管理層面上的相關行政建議」等三項為研究目的。而經前揭研究過程及運用多種研究方法後，本研究乃分別提出結論與建議如下：

　　一、結論
（一）目前各國立大學均普遍進用各類契僱教研人員：依據問卷調查顯示，目前各國立大學之契僱教研人員進用概況，其比例由高而低為兼任教師（100%）、兼任研究助理（96%）、工讀生（96%）、專任研究助理（92%）、專案教師（78%）、兼任教學助理（66%）、博士後研究人員（60%）及鐘點教師（44%）；即使就比例最低的「鐘點教師」而言，亦有將近半數的學校進用。
（二）學校與各類契僱教研人員間原則上存在僱傭契約之勞動關係：除另可歸屬委任等私法勞務給付契約關係或其他公法關係者外，各類契僱教研人員原則上均與學校間均存在僱傭契約關係，理論上並應適用勞動法制相關規範。而就兼具本校學生身分者，若其工作內涵係屬校內服務或專業學習性質者，則應可認定為公法上「在學關係」而排除僱傭關係之適用。
（三）教育部及各大學應依法保障契僱教研人員之勞保、勞退、健保等基本權益：目前對於明確歸屬僱傭關係之兼任契僱人員，國立大學為其依法辦理勞、健保及勞退之比例仍屬偏低，其中並以鐘點教師部分最為嚴重。此除各大學應主動檢討外，教育部基於主管機關之監督職責，亦須嚴正要求各大學依法行政，以避免因違法不作為而侵害相關人員之基本權益保障。
（四）應持續關注兼任契僱教研人員之權益並儘速釐清兼具學生身分者之關係認定：現階段教育部及各大學應將「完全依法辦理勞保、勞退、健保」視為首要之務，以期正面回應社會各界之訴求。而就兼具學生身分之契僱教研人員關係認定上，若國立大學依據學生勞動行為本旨，而欲回歸「在學關係」並納入大學自治事項；在具體作法上，除應由各大學自主訂定相關規章外，教育部亦可主動瞭解其行政支援需求，並據此與勞動部進一步溝通協調以尋求共識。

　　二、建議
（一）建議由教育部依法規範大學契僱教研人員勞保、勞退、健保基本權益事項。
（二）建議由各國立大學依法自主建立契僱教研人員一般管理制度。
（三）建議教育部針對所屬學校加強宣導契僱教研人員勞動權益保障事項。
（四）建議由教育部轉請權責機關研商訂定微量工作者社會保險特別規範之可行性。

　　Research and teaching are two basic missions of universities. In contrast to traditional contracts in public law, national universities have traditionally hired part-time faculty to conduct teaching duties. Additionally, in recent years they have begun to hire teaching and research faculty based on contracts in private law. There seems to be an increasing need for contract faculty. In terms of personnel management and related law, the contract teaching and research faculty hired by universities funds or other grants allow the universities the flexibilities to obtain needed manpower. However, as this is lack of legal basis and the Labor Standards Act does not apply, it is disadvantageous to human rights. To promote the effectiveness and quality of education and to follow the developing trend in higher education, it is necessary to cater to both the need of university autonomy and individual working rights. Through literature review, legal analysis, interviews with experts, and questionnaires, this research project attempts to propose reasonable and appropriate suggestions for the Ministry of Education to develop plans for hiring and managing contract teaching and research faculty/staff at national universities. Specifically, contract teaching faculty/staff can be divided into eight kinds: 1) contract instructors; 2) part-time instructor; 3) hourly-paid teaching staff; 4) post-doctoral fellow; 5) full-time research assistant; 6) part-time research assistant; 7) part-time teaching assistant; 8) student-worker. Among them, the positions of part-time research assistant, teaching assistant and student-worker are usually served by students. As a result, there are often controversies over studentship, employment relationship or labor relationship. Based on these reasons, this research study has three purposes: to understand the situation of hiring contract faculty/staff at universities and related human rights issues; to analyze contract relationship between national universities and contract teaching and research faculty/staff, as well as potential problems; to propose related administrative suggestions based on the balance between university autonomy and the benefits of contract faculty/staff. The conclusions and suggestions of this study are as follows:

　　Ⅰ.Conclusions
1. Current national universities hire various kinds of contract faculty/staff: According to the questionnaires, the proportions of contract faculty/staff at national universities are: part-time faculty (100%), part-time research assistant (96%), student-worker (96%), full-time research assistant (92%), contract instructor (78%), part-time teaching assistant (66%), post-doctoral fellow (60%) and hourly-paid teaching staff (44%). As far as the hourly-paid faulty that occupy the lowest proportion are concerned, they are employed by nearly half of the universities in the survey.
2. Universities and contract faculty/staff have a labor relationship based on contracts: Basically various contract faculty/staff have a contract with the universities; thus, they should be regulated by labor law theoretically. Yet, for students, if the content of their work is part of service learning or professional training, it is still considered as studentship in public law.
3. Ministry of Education and the universities should provide contract faculty/staff with basic benefits such as labor insurance, labor pension and national health insurance: Currently only a small proportion of universities provide part-time contract faculty/staff with labor and national health insurance and labor pension. Among them, the situation for hourly-paid staff is the worst. To cope with the situation, not only the universities should examine their policy, but the Ministry of Education should play its supervising role to request the universities to abide by the rule of law so that the basic rights of related personnel would not be harmed.
4. We should continue to be concerned about the rights of contract faculty/staff and clarify the status of those who are also students simultaneously: At the current stage, the Ministry of Education and the universities should view providing contract faculty/staff with “labor insurance, labor pension and national health insurance” as priorities in response to the expectation of society. As for contract staff who are students, national universities may define their status as studentship according to labor practices. By incorporating the conception of university autonomy, universities may set up related law and the Ministry of Education should also try to understand if any administrative assistance is needed and even help to negotiate with the Ministry of Labor to reach a consensus.

　　Ⅱ.Suggestions
1. The Ministry of Education should set up basic regulations for the labor insurance, labor pension and national health insurance of the contract faculty/staff at universities.
2. Each national university should set up its own general contract faculty/staff management systems.
3. The Ministry of Education should promote labor rights of contract faculty/staff at universities.
4. The Ministry of Education should request related institutions to examine the possibilities of setting up social insurance regulations for those who work limited hours.