Post on 20-Mar-2018
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2012 Conference of EASP and SPA
Full Text
A Survey of the Labour Conditions and
Labour Union Movement of Social Workers in Taiwan
Cheng, Yi-Shih
PhD in Social Policy and Social Work
Assistant Professor, Department of Social Work, Tunghai University, Taiwan
Member of the Allocation and Review Committee, United Way, Taiwan
E-Mail: yishih@thu.edu.tw
Huang, Ying-Hao
Lecturer, Department of Social Work, Chang Jung Christian University, Taiwan
Chairman of the Taipei Social Worker Labour Union
Chung, Wen-Mei
Social Worker, Senior Citizen Welfare and Protection Association of Yulin County
Master, Department of Social Work, Tunghai University, Taiwan
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Abstract
In this study, we first explored the current labour conditions of private sector social
workers in Taiwan using the questionnaire survey method. We recruited only social
workers from organizations supported by United Way of Taiwan as the research
participants to clearly define the population. The results showed that although the
labour conditions were not ideal, their labour satisfaction was relatively high at 74 out
of 100 points. This indicated that these social workers possessed a slow and weak
labour consciousness. Additionally, we describe how a number of social workers
progressed from being completely unfamiliar with labour issues to being highly
engaged in organizing the Taipei Social Worker Labour Union based on participant
observations. Finally, we used the results mentioned previously to understand and
discuss how social workers in Taiwan understood and regarded their occupation. By
providing an in-depth discussion, we hope to stimulate the development of different
ideas and practices in social work education and the collective action of social
workers.
Keywords: Social worker, labour conditions, labour union movement, social work in
Taiwan
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Introduction
Social workers contribute their efforts to the practice of social work. Therefore,
if social workers experience fatigue, disconnection, or even a sense of alienation from
their work, how can they be expected to assist vulnerable groups and achieve social
justice? During their development, social workers in Taiwan are rarely taught to
understand, care about, and focus on their work, and are unaware that they can
demand their labour rights through collective action. However, at the beginning of
2011, a few social workers finally established a social worker labour union in Taipei
City. This was the first time that social workers in Taiwan participated in collective
social action to organize a labour union and can be considered as a meaningful
milestone.
We conducted this study with the following three objectives: (a) To understand
the current labour conditions of private sector social workers in Taiwan using a
questionnaire survey; (b) to describe how a number of social workers progressed from
being completely unfamiliar with labour issues to engaging in organizing the Taipei
Social Worker Labour Union based on participant observations; and (c) to consider
and discuss the importance of labour issues in the development of social workers by
integrating the research results.
Background: The labour conditions of social workers in Taiwan
Under the rapid social changes of the last two decades in Taiwan, social
workers’ clients, labour environments, and labour methods have undergone significant
development and become increasingly diverse. For example, working hours have
been changed to accommodate night duties and emergency standby responsibilities;
work hours have been increased because of additional holidays; and work-related
risks have risen because of various violent attacks. In addition, because of the
implementation of the new managerialism, various social welfare organizations have
encountered significant pressure to control operating costs and demonstrate
organizational performance efficiency. The changing of labour condition and limiting
of social worker labour costs by replacing traditional social workers with temporary
workers to reduce overall costs or better allocate limited resources have become
critical coping and survival strategies for organizations.
Under this environment and working conditions, medical staff and social
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workers in Taiwan have been ranked third for fatigue factor among all occupations
(Institute of Occupational Safety and Health, 2008). In addition, data from the social
worker labour union preparatory group indicated that social workers are often
subjected to verbal abuse, threats, intimidation, sexual harassment, violent attacks,
stalking, traffic accidents, and other threats to personal safety (Huang and Chen,
2008). Occasionally, the mistreatment of social workers, such as wage arrears,
spontaneous dismissal, or wage reductions, is reported in the news. Previous domestic
studies regarding social workers’ labour situations have generally explored similar
labour-related topics, such as low wages, inadequate personal security, low
professional autonomy, low professional prestige, high work hours, high caseloads,
high work pressure, and high turnover rates (e.g., Peng, 2003; Huang and Chen, 2008).
In addition, a number of studies have indicated that poor working conditions cause
occupational burnout among social workers and may even be the primary factor
influencing social workers to quit their job or social work career (e.g., Kang, 2007;
Hsu, 2007; Cheng, 2011).
However, Taiwan currently has a divergent social worker field that includes
government departments, human resource management in private enterprises,
employee assistance program-related positions, and social welfare organizations or
institutions in the third sector. Independent practices and social work firms also exist.
To ensure the feasibility of this study, we investigated only social workers from
private social welfare organizations that receive grants from United Way of Taiwan.
Regarding social worker labour union activities, the members of the social worker
labour union are all private sector social workers. Therefore, the participants of this
study are private sector social workers.
A Survey of Labour Conditions
Method: Sample and Data Collection
The analysis data employed in this study were obtained from the survey
conducted by Chung (2011). The target of this survey was social workers from private
social welfare organizations included on the United Way of Taiwan’s December 2009.
For Chung’s survey, the stratified random sampling method was adopted. A total of
400 organizations were selected, and one questionnaire was mailed to each
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organization. The questionnaire was answered by one social worker elected by the
organization. After eliminating questionnaires completed by people with self-assigned
job titles such as chief executive officer, general director, chairman, or other high-
ranking positions; and non-organization personnel or non-social workers, such as
education officers or alternative military service members, we analyzed 191 valid
questionnaires (see Table 1).
Table 1. Overview of the number of organizations, valid questionnaires, and
questionnaire analysis
Organizational Attributes
Total Number of Organizations
Samples Extracted
Number of Questionnaires
Analyzed
Foundations 303 (37.8%) 151 78 (40.8%)
Associations 443 (55.2%) 221 99 (51.8%)
Private Organizations 56 (7.0%) 28 14 (7.3%)
Total 802 (100%) 400 191 (100%)
Variables and Research Framework
The research framework of this study is shown in Fig. 1. In this study, we
included six personal characteristic variables, four organizational characteristic
variables, eight work situation variables, and six work sentiment variables. We also
attempted to clarify the relationship between the orientations/variables.
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Figure 1. Research framework of this study
Statistical methods
For this study, we first conducted descriptive analysis of the variables
presented in Fig. 1 to obtain their frequency distribution, percentage, mean, standard
deviation, etc., to understand the basic trends of each variable. Following the research
framework, we conducted multivariate analysis of how personal and organizational
characteristics influence social workers’ salary, work hours, and likelihood of
changing jobs, and assessed which variables had the most significant influence. If the
variables included in the multivariate analysis were nominal-level or ordinal-level
measurement, we first conducted processing with dummy codes.
Personal
Characteristics
1. Gender
2. Job Position
3. Marital Status
4. Educational
Background
5. Tenure (social work
tenure, and current
job tenure)
6. Possession of Social
Worker License
Organizational
Characteristics
1. Organizational
Attributes
2. Organization Size
3. Organization Age
4. Organization
Location
Work Situation
1. Salary (monthly)
2. Salary Increase
Scheme
3. Work Hours (per
day)
4. Overtime Scheme
5. Employment Type
6. False Write-Offs
7. Salary Donation
8. Personal Safety
Work Sentiments
1. Whether the salary is fair
2. Whether the work hours
are fair
3. Overall work satisfaction
4. Likelihood of changing
jobs
5. Likelihood of leaving
social work permanently
6. Worry about losing
current job
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Results
Private sector social workers in Taiwan tend to be women, unmarried, and have
high mobility. For this category of social workers, over 90% were women, 70% were
unmarried, 93% did not have a social worker license, and approximately 86% had
studied in a social work discipline which indicated that subsidized organizations
primarily recruit people with a formal social work-related education. Besides, the
social workers in the category had typically worked in the social work field for up to
5 years, with an average tenure of 3 years (Table 2). The data also indicated that social
workers in this category are likely to change jobs within approximately 3 years,
remain in the social work field for up to 5 years, but possibly change career after 5
years. The reason for the career change may be better treatment and opportunities for
promotions, which may not be entirely negative. However, a sense of uncertainty in
their current job or social work career affects social workers’ long-term career plans
and commitment to social work, which is detrimental to private organizations and the
long-term development of the social work profession.
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Table 2. Descriptive analysis of the personal and organizational characteristics
Variables Frequency (%) Variables Frequency (%) Personal Characteristics Organizational Characteristics Gender (n=191) Organizational Attributes (n=191)
Female 168 (88.0) Foundations 78 (40.9) Male 23 (12.0) Associations 99 (51.8) Job Title (n=191) Privately Managed Org. 14 (7.3) Grassroot-Level 159 (83.2) Organization Size (n=190) Mid-Level 32 (16.8) < 5 employees 52 (27.2)
Marital Status (n=191) 6-30 employees 81 (42.4)
Single 131 (68.6) 31-99 employees 36 (18.9)
Married 60 (31.4) >100 employees 21 (11.0)
Educational Background (n=190) Organization Age (n=189)
Graduated from a social
work department
164 (85.9) 1-10 years 47 (24.6)
Public school 20 (10.5) 11-20 years 78 (40.9) Private school 122 (63.9) > 21 years 64 (33.5)
Graduated from a social
work-related department
22 (11.5) Organization Location (n=191)
Never received social
work related education
4 (2.1) Northern Region 75 (39.3)
Social Work Tenure (n=185) Central Region 49 (25.7)
1-5 years 127 (66.5) Southern Region 47 (24.6)
6-10 years 32 (16.7) Eastern Region 20 (10.4)
> 11 years 26 (13.6)
Ave. = 5.14 years
Current Job Tenure (n=182)
1- 5 years 163 (85.3)
6-10 years 13 (6.8)
> 11 years 6 (3.1)
Ave. = 2.99 years
Social Worker License (n=190)
Have 13 (6.8)
Do not have 177 (92.7)
Regarding the labour conditions of social workers, we found that the private
sector social workers in Taiwan worked in unpleasant environments and were
uncertain of their future. The social workers’ salary did not appropriately reflect the
value of their labour and production (with an average monthly salary of £617,
approximately £8,000 annually). Additionally, they were required to work overtime
without reasonable compensation, lacked a reasonable salary adjustment mechanism
and sufficient personal security, and a number of social workers were required to
donate their salary or commit false write-offs (Table 3).
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In addition, social workers typically work for approximately 3 years in private
sector organizations, after which half consider switching jobs and one in five worry
about losing their job or wish to leave their social work career. The high turnover rate
indicates that a number of social workers feel a high degree of uncertainty toward
their social work career (Table 3). This also indicates that Taiwan’s private social
welfare organizations do not provide a comfortable and carefree working environment
for social workers.
Table 3. Descriptive analysis of the work environment and work sentiments
Variables Frequency (%) Variables Frequency (%) Work Situation Work Sentiments
Monthly Salary (n= 181) Reasonable Salary (n= 191)
< NTD 30,000 124 (64.9) Agree 92 (48.2)
NTD 30,001 - 35,000 40 (20.9) Neutral 52 (27.2)
> NTD 35,000 17 (9.0) Disagree 47 (24.6)
Ave. = NTD 29,709 Excessive Working Hours (n= 190)
Have Annual Salary Increases (n= 191) Agree 60 (31.4)
Yes 58 (30.4) Neutral 76 (39.8)
No 94 (49.2) Disagree 54 (28.4)
Unsure 39 (20.4) Work Satisfaction Level (n= 184)
Working Hours Per Day (n= 187) > 90 points 22 (11.5)
< 8 hours 71 (37.2) 80-89 points 70 (36.6)
8-10 hours 108 (56.5) 70- 79 points 55 (28.8)
> 10 hours 8 (4.2) < 60 points 37 (19.4)
Ave.= 9 hours Ave.= 74 points
Overtime Frequency (n= 190) Considered Leaving Current Job (n= 187)
Almost daily 18 ( 9.4) Agree 85 (44.5)
3-4 times per week 42 (22.0) Neutral 48 (25.1)
1-2 times per week 103 (54.0) Disagree 54 (28.3)
Never 27 (14.1) Considered Leaving Social Work Sector
Permanently (n= 189)
Employment Type (n= 188) Agree 32 (16.8)
Full-time 140 (73.3) Neutral 48 (25.1)
Short-term/contract hire 48 (25.1) Disagree 109 (57.1)
Salary Donation (n= 190) Worry About Losing Current Job (n= 188)
Never 133 (69.6) Agree 39 (20.4)
Happened before 57 (29.8) Neutral 42 (22.0)
False Write-Offs (n= 190) Disagree 107 (56.0)
Never 141 (73.8)
Happened before 49 (25.7)
Personal Security (indirect selection, n = 210)
Not provided 115 (54.7)
At least 1 item is provided 95 (45.2)
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Furthermore, this study examines the impact of personal and organization
qualities on the salary and working hours of social workers. Analyses results show
that seniority significantly impacts the salary and working hours of social workers.
Although accumulating years of social work brings a higher salary, it also increases
the number of hours in a working day. Marital status also has a significant impact on a
social worker’s working hours and dissatisfaction with their current position;
unmarried social workers worked more working hours and tended to be more
dissatisfied with their current positions than married social workers. Working hours
did not vary according to organization type, it means that all social workers are
overworked (as shown in Table 4 and Table 5).
Table 4. Results of multiple regression analysis on social workers’ monthly salary
Variable Model A1 Model A2
Personal Characteristics
Gender (Female=1) .048 (.086) .030 (.084)
Job Title (Grassroot-Level=1) - .525 (.081)*** - .475 (.082)***
Martial Status (Single=1) - .024 (.070) - .010 (.069)
Education Background (Graduated
from social work department=1) .053 (.084) .027 (.082)
Social Work Tenure .032 (.007)*** .032 (.007)***
Social Work License (do not have=1) - .170 (.117) - .122 (.115)
Organizational Characteristics
Attributes (Foundation=1) .042 (.065)
Size (≥31 employee =1) .150 (.069)*
Age .003 (.002) Constant
R2 n
3.339
.399***
174
3.149
.449***
171
Note 1: The values in the table are not standardized regression coefficients (B); the numbers in
parentheses are standard errors. Note 2: *indicates a .05 level of significance; **indicates a .01 level of significance; and *** indicates
a .001 level of significance.
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Table 5. Results of multiple regression analysis on social workers’ working hours
Variable Model B1 Model B2
Personal Characteristics
Gender (Female=1) .222 (.247) .188 (.240)
Job Title (Grassroot-Level=1) - .838 (.230)*** - .675 (.232)**
Martial Status (Single=1) .561 (.206)** .558 (.202)**
Education Background (Graduated
from social work department=1) - .033 (.242) - .106 (.236)
Social Work Tenure .041 (.021) .045 (.021)*
Social Work License (do not have=1) .173 (.330) .260 (.323)
Organizational Characteristics
Attributes (Foundation=1) .218 (.186)
Size (≥31 employee =1) .376 (.197)
Age - .005 (.005)
Constant
R2 n
8.718
.121**
179
8.456
.162***
176
Note: the meaning of the values, numbers and star marks are the same as table 4
In this study, we also investigate which related variables had a greater influence
on social workers’ tendency to quit their current job through a series of logistic
regression analysis. The results indicated that unmarried people, working in
associations or Privately Managed Organizations, with low salaries had higher
uncertainty and tended to have a stronger desire to switch jobs compared to married
people, working in foundations, with higher salaries (as shown in Table 6).
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Table 6. Results of logistic regression analysis on social workers’ tendency to quit their current
job
Variable Name Model C1 Model C2 Model C3 Personal Characteristics
Gender (Female=1) - .617 (.474) - .613 (.482) - .834 (.548) Job Title (Grassroot-Level=1) - .024 (.434) - .160 (.455) - .665 (.581) Martial Status (Single=1) .701 (.359) .645 (.365) 1.038 (.425)*
Education Background (Graduated
from social work department=1) .113 (.451) .198 (.461) .101 (.544)
Current Job Tenure - .044 (.067) - .024 (.068) .007 (.079) Social Work License (do not have=1) - .254 (.620) - .414 (.633) - .830 (.711)
Organizational Characteristics
Attributes (Foundation=1) - .687 (.367)* - .926 (.421)* Size (≥31 employee =1) .019 (.385) .093 (.456) Age - .006 (.011) - .004 (.013)
Work Situation
Monthly Salary - 1.185 (.537)* Working Hours Per Day .189 (.175)
Employment Type (Full-time=1) .765 (.459) False Write-offs Experiences
(Happened before=1) .465 (.408)
Constant
Vox and Snell
R2
n
.118
.042
180
.680
.068
177
2.537
.163**
162
Note: the meaning of the values, numbers and star marks are the same as table 4
The analysis results in Table 6 indicate that the three groups of variables only
explain 17% of the variance, and many other factors influence people’s tendency to
quit their social work positions. Numerous studies have discussed the problems faced
by social workers and the reasons for the high turnover rate from various perspectives.
For example, Wang (2011) contended that when new managerialism erroneously
applied the management philosophy of the manufacturing sector to the social work
sector, the crucial but unmeasurable social work contributions (such as developing
client relationships) became invisible. This is the primary reason Taiwan’s social
workers feel their contributions are ignored and become alienated from their jobs.
Domineli and Hoogvelt (1996), Parton (1998), Jones (2001), and Healy and Meagher
(2004) highlighted that the social work sector has become more standardized and
documented, which significantly reduced the autonomy of social workers and caused
them to feel alienated from their jobs. This is the primary cause of the substantial
turnover rate for social workers in the U.K. Samantrai (1992), Rycraft (1994), Gibbs
(2001), and Mor Barak et al. (2006) stated that social workers employed in the U.S.
child welfare system tended to quit their jobs because of a lack of support and
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dissatisfaction with their supervisors. Tham (2007) found that social workers
employed in the Stockholm child welfare system tended to quit their jobs because
they were not valued by the organization, felt they were not taken care of, and the
organization did not care about employee’s health and welfare. Therefore, the
working conditions are not the only factors influencing social workers to quit. Further
conformance to labour philosophy, greater autonomy, and more organizational
support are valued the most highly by social workers.
Labour Union Movement of Social Workers in Taiwan
The study results discussed previously showed that although Taiwan’s social
workers work in unpleasant environments and face uncertainty, they tend to have high
labour satisfaction. Half the social workers believed their salaries were reasonable,
and 40% did not feel they worked excessively. These results indicate that Taiwan’s
private sector social workers are not sensitive to their “labour rights.” In Taiwan,
social workers rarely worry, analyze, or pay attention to their work environments.
Only when they encounter extremely unreasonable treatment would they begin
noticing labour issues as discussed in Kang (2007), when workers were unexpectedly
fired, and in Cheng (2011), when workers’ salaries were unreasonably reduced.
Therefore, mass movements organized by the Social Worker Labour Union can
perform the important function of enhancing work ethics and reducing exploitative
working conditions for social workers.
In 2006, a grassroots social worker group concerned with labour rights and the
interests of social workers formed the Social Worker Labour Union Preparatory
Group in Taiwan. Through the Internet, waves of action, campus advocacy,
community camps, discussion forums, and street-walk activism, the Taipei Social
Worker Labour Union was officially established on July 24, 2011. The focus of the
Taipei Social Worker Labour Union is currently community activities and training
organizations. As the union matures, it hopes to focus on unifying grassroots social
workers, improving social workers’ labour rights, and ensuring that social workers
work in environments that are more conducive to the concept of social work, have
greater autonomous, and enjoy more organizational support.
The Social Worker Labour Union Preparatory Group was established by a group
of social workers with no awareness of work ethic concepts, but who believed that
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social workers’ labour conditions required change. Between 2006 and 2011, the Social
Worker Labour Union Preparatory Group has highlighted numerous social welfare-
related issues and communicated social workers’ concerns and needs to the
community. Specific activities include (1) ensuring the Labour Standards Law is
applied fully to social workers’ actions; (2) increasing awareness of the safety issues
of social workers; (3) investigating social workers’ working conditions; (4) providing
services at social work credential testing sites and distributing social worker labour
rights advocacy materials; (5) writing encouragement cards to on-site social workers
providing disaster relief and reconstruction labour following Taiwan’s Morakot
typhoon disaster in 2009; (6) establishing a social worker community work camp; (7)
participating in the May Day parade, and (8) protesting the “shifting of government
responsibility by using social workers as scapegoats for the problems of child
protection agencies and fuzzy social welfare programs,” as well as other preparatory
activities (Huang and Cheng, 2011).
Taiwan’s Social Worker Labour Union is still new to labour rights activism. In
addition to dialogues and collaborations with internal members, the union must
communicate with Taiwan’s social worker community to cooperate in labour rights
activism. The union is currently considering several strategic directions to stabilize
conditions for Taiwan’s social workers and unite their collective strength. These
directions include how to unify grassroots social workers and formulate the
movement framework, connect with other welfare service personnel (such as
psychologists and nurses) to create a unified labour union to face the negative impact
of publicizing and commercializing social work, and seek possible anti-oppression
remedies to maintain the union’s relationships with grassroots social workers, and to
address the relationship between the union, capital costs, and the country.
Conclusion
The labour conditions of private sector social workers in Taiwan involve
complex structural problems, such as how national policy can enhance the overall
financial and operating structure of third-party organizations to ensure they have
sufficient resources and provide a pleasant working environment. How can the
competent authorities’ (social affairs and labour administration units) policies
improve and protect the working conditions and labour rights of social workers. How
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can employers create pleasant working environments and provide reasonable salaries
and a salary adjustment system, a reasonable overtime compensation system,
adequate personal security measures, and appropriate grievance channels. How an
organizational environment that is more conducive to the concepts of social work,
more autonomous, and more supportive of social workers can be created to provide
enjoyable and dignified labour conditions for social workers.
We understand that these expectations cannot be achieved without specific
actions and advocacy. Therefore, the unification of social workers and their collective
voices and actions is critical. Through the Social Worker Labour Union platform,
social workers can have a voice, support each other, assemble, promote awareness of
labour rights, and enable collective action. The Social Worker Labour Union can also
help integrate the concepts and actions for reasonable labour, management, and social
justice demanded by social workers into organizational policy and management
strategies. This is an effective strategy for constructing friendly and dignified working
environments that support the concept of social work.
We cannot deny that new managerialism has had a profound impact on the
labour conditions of social workers. However, when the standardization or
normalization of service processes and evidence and performance are the sole basis
for measuring the work of social workers, the aesthetic experience of helping others
and the autonomy of social workers are significantly reduced. Thus, how can we
identify a solution and rectify this situation? The only possibility for finding the new
path is through endless collaboration, debate, discussion, assembly, and action.
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