政風機構組織發展之研究-─以臺北縣政府為例

Abstract

我國政風機構從1953年開始迄今，政風組織體系歷經安全室、人事查核機構、政風機構等重要階段的組織變革，各階段的組織演變與發展過程，均因應不同時空環境作關鍵性政經變遷，而進行必要的組織結構調整與改變，以符合機關的需求與社會大眾之期望，無論是在組織體制、設立、地位、職權、編制、人員上，有著非常大的變化。 本研究係以組織發展的理論研究政風機構組織變革，以建構政風機構組織發展的運作模式，以及了解當前政風業務執行現況與面臨的問題，並根據政風機構在地方行政機關的實際運作狀況，試圖提出政風機構發展組織的方向，創造更有利於政風機構發展環境與條件，進而整體提升行政機關競爭力，以期建立廉能政府的目標。 本研究首先藉由文獻分析，探討組織發展的相關內容，建構研究理論的基礎；其次，根據文獻分析的結果，擬定訪談提綱，對政風人員進行深度訪談，廣泛蒐集寶貴意見及實務經驗，作為政風機構組織發展的論證參考。 綜合文獻分析與深度訪談的研究結果，發現政風機構歷經安全室、人二室、政風室等時期的組織體系變革，各階段的組織變革項目有所不同，並因應人二室的組織法制化，各級行政機關於1992年9月16日陸續成立政風處（室）。改制後的政風機構，受到組織結構設計不當、政風機構權限不足、政風業務預算編列不足、政風人力嚴重不足、非屬政風業務之執行權責未合時宜、人事升遷管道不易等項問題。再者，政風業務的推動與執行方面，亦面臨人事管理一條鞭制、雙重指揮監督體制、地方議會政治、機關首長互動等因素，使得政風機構的組織發展受其影響與限制。 根據上述研究發現，本研究提出下列具體研究建議包括：修定政風機構人員設置條例；建置獨立專責的廉政服務機關，並持續推動各項反貪作為；建立學習型政風組織，以及實施計畫性培訓各項專業技術人員；破除績效評比制度的迷思，採取以授權為基礎的績效經營方式；建立內化永續之服務理念，強化未設置政風機構的政風職能；政風單位宜塑造創新的組織環境，採行專案組織的組織模式；改革地方行政機關政風人員之人事升遷機制；積極爭取政風業務預算之編列，結合各機關業務單位推行政風工作；提供政風業務的執行作業標準化與訂定制式業務範本；各級政府宜加強民意代表與機關首長的法制教育宣導。 The government employee ethics units in our country has its unique system. since 1953, the unique system of the government employee ethics organization has been undergoing several important organization change stages, from security office, personnel matters investigation office to government employee ethics units. When the circumstances goes through the critical transition in politics and economics, the evolution and development in each stage should have indispensable remarkable change and adjustment in order to accord with the need of the government and the expectation of the people, whatever in organization style、establishment、status、authority、structure and staff. Based on the organization development theory, this research investigates the organization change of the government employee ethics units to construct a function mode of organization change. And the research also realizes the government employee ethics operation’s performing condition and the problem it’s facing and tries to put forward the direction of the organization development of the government employee ethics units. By doing that, we can create a more favorable condition for government employee Ethics developmental environment, so that the strength of the government can be overall promoted. And a efficient government with probity will be established. In this research, firstly, according to the analysis of the document, we will discuss the content relating to the organization development and construct the base of the research theory. Secondly, according to the result of the analysis of the document, we make out the interview outline with the government employee ethics officers, extensively collect the precious opinion and the practical experience .All this will be a reference for demonstration of the government employee ethics units and the organization development. Integrating the research result of the document and the interview, we find that the government employee ethics units has undergone several organization development stages, such as security office、the 2nd office of personnel、civil service ethics office and so on. There are differences among the items of the each stage of organization change. Also, in order to legalize the 2nd office of personnel, All the levels of the government units establish the department of civil service ethics one by one since Sep. 16, 1992. After the improvement, the government employee ethics units meets several problems such as the inappropriateness of the design of the organization structure, the deficiency of the government employee ethics units authority, tight budget for civil service ethics 、the serious deficiency of the government employee ethics staff, inappropriate and non-civil service ethics responsibility、the difficulty of the staff elevating. Moreover, the promotion of the government employee ethics operation and the performing also face several problems such as one chain system of the personnel management, double guidance management system, local meeting politics and the exchange between the head of the governments. All these problems affect and restrict the organization development of the government employee ethics units. According to these results, this research puts forward the following research suggestions in detail as following: editing statue of the government employee ethics units staff arraignment; establishing in dependence unique service office with probity, extending and promoting constantly all kinds of anti-defalcation; constructing the government employee ethics units organization in academic style, extending the plan of application and training all kinds of technical staff; solving the problem of performance evaluation system, taking the management manner based on the authorization; establishing the service internal continuity, strengthening unsettled the government employee ethics units function; creating a new organizational environment, taking organization mode of specific cases; reforming the staff promoting system of local government; drawing up more budget for civil service ethics actively, carrying out the government employee ethics units work by all levels of governments; providing standardization of executing of government employee ethics units and make business dealing example; strengthening the law-education propaganda to people delegate and the heads of the government by all the levels of the governments.