國立政治大學 勞工研究所

為解決事業場所外工作者的工時難以計算之問題，勞動部於2015年公布「勞工在事業場所外工作時間指導原則」。當勞工於事業場所外工作，且因雇主難以直接行使指揮監督權限以致勞工的工作時數難以計算者，勞工的工作時間應依擬制之結果計算之。雖然雇主未能直接對事業場所外工作者行使指揮監督權限，但雇主的工作時間掌握管理義務與保護照顧義務依然存在，如何調和兩者之關係即為一項研究之議題。本文擬透過參考比較日本的法規範與經驗，找尋事業場所外工作的特性，而後建立起擬制工時制與雇主的工作時間掌握管理義務與保護照顧義務間之關聯的理論以保障事業場所外工作者的權益乃本文之主要目的。

In order to solve the problem that is the difficulties to calculate the working hours of the laborers who work outside of the workplace, Ministry of Labor bulletined a principle to adopt Deemed Working Hours System in 2015. When a laborer works outside of the workplace, and the detailed instruction and supervision by the employer are not involved, which results in the difficulties to calculate the working hours, the number of working hours shall be deemed to be the prescribed working hours. Even though the employers cannot instruct and supervise the laborers who work outside of the workplace directly, the duties of employers to control laborers' working hours and to give the necessary consideration to allow laborers to work while securing the safety of his/her life, body and the like still exist. However, it is an issue that how to combine those duties with Deemed Working Hours System. By consulting Japanese regulations and judicial precedents, the author attempts to find the characteristics of working outside of the workplace. Then, establishing the theory of the relation between Deemed Working Hours System and employers' duties to protect the rights of laborers working outside of the workplace is the main purpose of this article.

制定「最低工資法」是當前台灣社會關切的重要勞動政策議題，本文為探討合理可行之最低工資法的制度内涵，從「制度比較分析」的途徑，比較分析各國最低工資制度的制度類型，並分析各國最低工資制度在決策機制、審議程序、調整指標、強制執行機制的制度內涵，藉以省思台灣的基本工資制度在實踐上出現的問題，進而提出台灣制定最低工資法的制度設計原則。研究發現，台灣基本工資制度是屬於「單一最低工資率適用於全國所有勞工-政府是最終決策者」的制度類型，但是實施多年以來，出現了「調整指標的強制效力不足」、「審議程序機制不明確」、「審議結果易被政府否決」、「強制執行機制的實施成效有限」等實踐問題，導致基本工資制度原本應達到「保障低薪勞工最低生活需要」之政策目標的成效有限。研究建議，考量台灣的實際情形，並參照多數國家實施最低工資制度的作法，最低工資立法的制度設計原則應該包括：「勞資政三方參與」的「最低工資委員會」決策機制、「每年定期召開審議會議」、「研究小組檢視提議」與「社會各界提出不同意見」的最低工資調整機制、法制化的最低工資調整指標、有效落實的強制執行機制等。

Formulating Minimum Wage Act is important labor policy issue in contemporary Taiwan, this article aim to explore the reasonable and feasible institutional design principles of Minimum Wage Act. From comparative analysis of minimum wage institution concerning about the decision mechanism, review procedure, adjustment index, enforcement mechanism in countries, this article provide the institutional design principles of formulating Minimum Wage Act after review the practical problems of basic wages institution in Taiwan. The first main finding is that the basic wages institution belong to the category of “single minimum wage rate for all national workers – government is sole decision maker”. The second main finding is that there were four practical problems derived from the basic wage institution as follow: inadequate enforcement performance of adjustment index, unclear review procedure, reviewed outcomes likely to be rejected by government, limited enforcement mechanism performance, resulting in the limited wage protection performance for low wages workers. Consider the practical problems and the measures of minimum wage institution in most countries, the suggestions as follow, the institutional design principles of for formulating Minimum Wage Act includes: minimum wage committee composed of representatives of workers, employers and government according to the principle of triple participating, regular review mechanism every year, proposal by research group, appeal institution from civil society, formulating the legal system of adjustment index and effective enforcement mechanism.

銀色風暴來襲，但以往的學術研究抑或媒體報導大多偏重在年金改革與健康照護議題，較少關注高齡人力之運用。一般常將「延後退休」當成降低年金給付財務壓力之配套，卻鮮少探討如何運用銀髮人才，甚至是推動「延後退休」是否對青年就業造成衝擊。從主計總處之中老年狀況調查可知，一般人在退休後，生活多以料理家務及照顧親人為主，較少擔任顧問扮演指導後進的角色，甚至創業為自己圓夢。儘管《勞動基準法》於2008年一舉將強制退休年齡，由60歲延至65歲，不過受僱員工動向調查也顯示，有近五成的廠商寧可缺工，也不願進用45歲以上者，顯見企業對資深勞動力仍有「年齡迷思」，且未意識到在「高齡少子化」的情況下，未來恐面臨勞動力供給不足之問題。有鑑於過去對日本「延後退休制度」的相關研究，多從單一面向加以探討，諸如：高齡就業法制、銀髮人才中心、漸進式退休、中高龄之職業能力開發或是高齡就業現象與問題等。為了解日本如何以四十載以上的時間推動「延後退休」，並使之成為社會趨勢，本文將破除以往的分析模式，採歷史制度論的觀點，將影響高齡就業的相關措施「崁入（embed）」當時的社會環境，分析其演化歷程，以明制度的生成與配套，進而找出可以借鏡之處。

The silver storm is striking most countries across the globe. However, academic papers or media reports in the past mostly focused on pension reforms or health/care issues, seldom paying attention to the use of the elder labor force. They usually take “delayed retirement” as supplementary measures to reducing financial pressure on pension payments, but rarely touch upon utilization of those elder workers, not to mention an impact of “delayed retirement” on a situation of youth employment. A survey on the middle-aged and elderly, released by the Directorate-General of Budget, Accounting and Statistics under the Executive Yuan, indicates that most retirees mainly spend time in housework and take care of their family members, and only a few will play a role of advisor for youngsters or even start their own business to fulfill lifetime dreams. An amendment to the Labor Standard Act in 2008 has extended the age of compulsory retirement from 60 to 65 years old. Yet, a survey on employee movements demonstrates that nearly 50% of business owners would rather bear a shortage of labor force than hiring workers of 45 years old or above, indicating that many enterprises are still having a bias against elder laborers and unaware of a problem on a possible shortage of labor force in the face of “aging society with sub-replacement fertility.” Many researches related to Japan's “delayed retirement system” in the past mostly put an emphasis on a single faction such as laws on elderly employment, center for senior talents, phased retirement, exploitation on expertise of the middle-aged and elder labor force, or phenomena and problems on elder workers. For the purpose of understanding how the “delayed retirement system” has become a social trend in Japan over forty years or more, this paper will analyze reasons and measures affecting elderly employment. This research will finally provide findings by adopting an historical institutional theory, in addition to the previous analytical model, to clarify how Japan's “delayed retirement system” has been developed with supplementary means to find out what Taiwan can learn from it.