銀色風暴下的高齡就業政策：借鏡日本「延後退休」施行政策

Measures on Elder Employment in Aging Era: Study on Japan's Experience of Delayed Retirement

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.