國家公園組織變革之研究-歷史制度論觀點

Abstract

本研究以歷史制度論為理論基礎，探討我國國家公園體系從營建署國家公園組轉型為獨立三級機關—國家公園署的組織變革歷程與制度意涵。研究聚焦於此次組織變革是否突破舊有制度慣性與治理模式，實現有效治理與制度創新，或僅為形式上的升格與象徵性轉型。 透過文獻分析、次級資料蒐整與深度訪談，本文構建宏觀（組織架構與制度層級）、中觀（治理流程與資源配置）與微觀（人員認同與文化調適）三層次的分析架構。研究結果顯示，國家公園署的設立在法制面與組織架構上完成初步升格，並擴大職掌至濕地保育與海岸治理，呈現制度重層化的特徵。然而制度慣性與路徑依賴仍深植於人事體制、預算機制與治理文化，讓變革過程充滿挑戰。 尤其在微觀層次，員工對於新職能與組織目標認知不足，內部溝通不全與職務適應困難，導致角色錯亂與執行困境，顯示變革尚未內化為組織文化。此外署本部與管理處間的垂直協作與跨部門治理機制尚未完備，也讓政策落實效果有限。 本研究認為，國家公園署的組織變革雖為我國自然資源治理的重要關鍵轉折點，未來仍須深化法規整合、人力制度創新與治理資源強化，並從人本觀點出發，促進制度變革的內生化與治理效能之提升。

This study adopts historical institutionalism as its theoretical framework to examine the organizational transformation of Taiwan’s national park system, particularly the transition from the National Park Division under the Construction and Planning Agency to the establishment of the independent National Park Administration (NPA). The research investigates whether this change represents a genuine institutional breakthrough or merely a symbolic structural upgrade. Using literature review, secondary data analysis, and in-depth interviews, the study builds a three-level analytical model—macro (organizational structure and institutional hierarchy), meso (governance processes and resource allocation), and micro (employee identification and cultural adaptation). Findings reveal that although the NPA has formally expanded its jurisdiction to include wetlands and coastal management, its reform remains largely constrained by institutional inertia and path dependency in personnel systems, budgeting mechanisms, and governance culture. At the micro level, limited employee understanding of new responsibilities and inadequate internal communication have led to confusion and implementation challenges. Furthermore, coordination between NPA headquarters and regional offices is still insufficient, hindering effective policy execution. The study concludes that while the NPA marks a critical turning point in Taiwan’s environmental governance, future efforts must focus on legal integration, institutional innovation, and resource enhancement—particularly by promoting internalized cultural transformation and human-centered governance reform.