基層行政組織精簡之研究－以臺北縣戶政機關為例

Abstract

近年來，世界各國推動地方政府改造已蔚為風潮，藉著行政區域調整、共同生活圈的劃設，及地方政府間事務的共同處理，以強化地方政府功能。然我國現階段因應全球化政府改造的浪潮，在推動政府組織再造時，却普遍面臨地方自治財源不足及組織僵化等問題。有鑑於此，各級地方政府莫不思索從基層行政組織精簡的途徑尋求解決。 本文以戶政機關為例進行研究，鑑於現行縣市戶政機關實施電腦化後，其組織架構並未調整，以致行政效率提升有限。因此，本文試圖從學術觀點，參酌組織精簡相關理論，檢視現行戶政機關的組織結構，是否符合時代的需求，並以臺北縣戶政機關作為驗證，期能重新建構縣市戶政機關組織。 本研究以新管理制度理論及新公共管理理論為基礎，綜合文獻探討、個案經驗分析、深度訪談及參與觀察，試圖將戶政機關導入組織結構功能設計，運用裁倂機關組織、善用民間資源、實施員額評鑑、業務減量、業務委外，及發展組織文化與學習性組織等策略，期望對戶政機關組織精簡提出改造途徑。且參酌中間機關理論與區域政府理論所描繪的治理概念，突破現行法令的枷鎖，以建構行政中心的思維，推動基層行政機關合署辦公模式。讓龐大的基層行政組織逐步整合，達到組織精簡的目標。必要時，尚可配合未來政府所規劃之鄉鎮市虛級化或改制為區之趨勢，將戶政業務納入區公所的服務範疇，進而推動區政與戶政合一的組織架構，以實質達到組織精簡的目標。

In the recent years, it has been a trend for a country to promote reform of local governments. The purpose of this reform is to strengthen the functions of local governments by means of adjustment of districts, construction of common living circles and joint transaction of local governments’ affairs. Nevertheless, while Taiwan was enforcing the reform of the organization of the governments for coping with the world trend of the time, several problems were found existing in most of the local governments, which included the shortage of financial sources and inflexibility of organization. This led to a result that there was no local government but sought solution in simplified administrative organization of the grass-roots units. In this article, a household registration office is selected as the object of the research. It is found that the household registration offices throughout Taiwan have not raised their administrative efficiency as was expected since the offices were computerized and the structure of their organization remained the same. For this reason, this article is trying to review from the scholastic viewpoint, while referring to the theory of the simplification of organization, if the structure of the organization of the existing household registration offices meets the requirement of the time. Besides, the household registration office of Taipei County is taken as an example to verify the effect of the simplification of organization and to attain the reconstruction of the organization of the household registration offices throughout Taiwan. This research that is composed of discussion of comprehensive literature, analyses of individual experiences, deep interviews and field observation in person is made based on the new theory of the management system and the new public administration theory. For the reform and simplification of the organization of household registration offices, it is suggested to add household registration offices to the design of the structural function of organization and to apply the strategies of reducing and merging organization, efficiently making use of nongovernmental resources, making assessment of employees, reducing business, implementing external contract and developing organization culture and educational organization. Besides, a pattern of joint office work among grass-roots administrative institutions will be promoted after the bondage imposed by current laws and regulations is broken and the administration-oriented mentality is established in accordance with the concept of ruling described in the theory of intermediate institutions and the theory of regional governments. Through this method, the huge administrative organization of the grass-roots units is expected to come to integration and the simplification of organization can be attained. In response to the central government’s future plan to make villages, towns and cities exist in name only or change them to districts, the business of household registration, if necessary, can be put within the jurisdiction of the district administration office and thus the structure of combined district administration and household registration is formed and the goal of the simplification of organization is substantially attained.