Türkiye'de kamu personel rejiminde yeniden yapılandırma girişimleri
Public personnel regime in Turkey
Yazar: HAYRUNNİSA NAHİDE ÖZER
Danışman: PROF.DR. BURHAN AYKAÇ
Gazi Üniversitesi / Sosyal Bilimler Enstitüsü / Kamu Yönetimi Ana Bilim Dalı
Derece: Yüksek Lisans, 2002
Konu: Kamu Yönetimi = Public Administration

Özet:
Türkiye'de 1980-2000 yılları arasındaki son 20 yıllık dönemde, kamupersonel rejimine iliskin olarak, kanunlarla, yetki kanunlarına dayanarakhükümetlerin çıkardıgı kanun hükmünde kararnamelerle, idari düzenleyici metinlerle(tüzük ve yönetmeliklerle), kamu personelinin özlük ve mali haklarına iliskin olarakBütçe Kanunlarının ilgili hükümleriyle, hatta Bakanlar Kuruluna, genel ve katmabütçeli kurum ve kurulusların bütçeleri kanunlasıncaya kadar, Devlet giderlerininyapılması ve Devlet gelirlerinin tahsili konusunda kimi zaman çıkarılan yetkikanunlarına dayanılarak Bakanlar Kurulu Kararlarıyla yapılan düzenlemeler üzerindedurarak, bunların nedenleri üzerinde hükümet dönemleri itibariyle yapılan bumevzuat arastırması sonucunda, kamu personeline çesitli adlar altında saglanan malive sosyal hakların, son yirmi yıl içinde, enflasyonun da etkisiyle, giderek ?malidoyum? aracı durumuna geldigi, bu dönem içinde birbirini izleyen hükümetlerin malive sosyal haklarda iyilestirmeyi saglayamadıgı, aksine, kurumlara, hizmet sınıflarına,çalısma alanlarına ve istihdam sekillerine göre farklılıklar gösteren, böylece içdengeden yoksun bir ücret rejiminin olusturuldugu; personele iliskin düzenlemelerindaha çok KHK'lerle yapıldıgı, böylece parlamentonun devre dısı kaldıgı, personelrejiminde yetki karmasası oldugu, üst yönetime yapılan atamalarda siyasal etkinin,siyasal ölçütün, liyakatı gözardı edercesine belirleyici oldugu, üst düzey yöneticilerinhemen her iktidar döneminde degistirildikleri, kariyer sistemi yerine sözlesmerejiminin getirilmek istendigi, idarenin takdir yetkisinin bir tür siyasal tercihtebulunma biçiminde ortaya koydugu, kariyerlerinin gelismesini ve liyakatınyerlesmesini bu düzenlemelerin kalıcı bir sekilde saglayamadıgı, böylece, buçalısmanın ?son 20 yıl içinde personel rejiminde iyilestirmeyi ve yenidenyapılanmayı gerçeklestirememistir? seklindeki varsayımın dogrulandıgı görülmüstür.

Abstract:
The subject of this study is to review and search on the rules and regulationscomprising laws, law-decrets based on the authorization acts issued by the GrandNational Assembly of Turkey (GNA), provisions of budgetary laws, and the decretsof the Council of Ministers, related to restructure and improve the Turkish PersonnelRegime, especially legal, financial and social status of public employees during thelast twenty years.In this context, the purpose of this study is to uncover the reasons for theselegal arrangements and their the degree of success on the realization of publicpersonnel reform giving rise to improvement of legal, financial and social status ofpublic employees by giving emphasis on the activities in each government period.Findings of this study have mentioned, despite the fact that activities renderedby the governments during the last twenty years in order to provide much better legalfinancial and social status for public employees through these laws and regulations,has not given rise to successful results because of increasing inflation, instability inthe political life and lack of consideration of ?social-economic structural change?occurred in this country. As a matter of fact, administrative and public personnelreform activities should be considered in compliance with the change in the socialand economic structure of a country. As for Turkey, most governments were inpower in a short time (e.g.Yılmaz I Government lasted five months, before 1991General Elections, Çiller II Government lasted twenty-five days before 1995 GeneralElections and Yılmaz II Government lasted from 6 March 1996 to 28 June 1996)*Findings have also uncovered the fact that working conditions and paystructure have differed according to the public institutions, public service classes,forms of employment (working as civil servant under the provisions of civil servicelaw, public servants under the provisions of their own law, contracted personnelworking in central government organizations and public enterprises, and laborersunder Labor Law) and fields of work. As a result of the difference among* That kind of insable situation naturally obstructed administrative and personnel retractionmovements and activities in a large scale in this country.237government employees mentioned above has caused imbalance and unfair economicsituations inside the public pay system. Another finding is the fact that most of thelegal arrangements have been realized by law-decrets issued by the Council ofMinisters by undertaking the legislation authority of GNA in the government system.An important finding in this study is the chaos of authority related institutions in thepublic personnel regime. Another important point uncovered in this study isincreasing patronage concerning the appointment of high-level public administratorsespecially in central government. The patronage has caused ignorance of meritprinciple, in a large scale, one of the three important principles in public personnelregime, on the other hand, this study has mentioned that it has almost wanted toreplace career (ranking) system by contraction regime. According to this fact,discretion of management has considered as a kind of making ?political choice?especially in the appointments of executives in key positions in the governmentagencies, state economic enterprises and public financial institutions, and the like.It has been concluded in this study that legal arrangements have not beensuccessful in restructuring and improving the public personnel regime since theproblem of administrative and public personnel reform has not been considered as a?problem of socio ? economic structural change? in the society.