國家教育研究院組織屬性及其功能之研究

A Study on the Organizational Property and Function of National Academy for Educational Research

謝奕璇(I-Hsuan Hsieh)

指導教授 ： 劉坤億

國立臺北大學/公共事務學院/公共行政暨政策學系/碩士(2014年)

摘要

組織屬性與功能之間，存有直接的因果關係，不同的公共目的座落於不同的環境擁有相異的組織屬性選擇，為有效執行公共任務以及發揮最大效益，決策者進行組織屬性選取的過程必須抱持謹慎嚴謹的態度，並且依照個別提供公共服務的性質與目的給予適當的組織定位。
國家教育研究院做為我國最高教育研究機構，其被賦予公共使命的重要性不言可喻，在長時間的籌備過程中，歷經政黨輪替、行政組織精簡等外在環境變化，使其面臨不同的組織屬性選擇，各個組織屬性擁有不同的特點與運作模式，引起各界長時間的關注與討論，最後因為種種因素與考量，造就了以公務機構運作的現況。成立至今已屆滿3年，由於時空環境的轉變，研究者認為有必要重新檢視國家教育研究院目前的運作現況與功能發揮之情形，並且從組織屬性的觀點出發，觀察國教院目前在公共機構屬性之下是否能夠達成預設宗旨。
本研究首先透過檢閱相關文獻，釐清我國目前組織屬性的選擇方案，以及比較、分析各國教育研究機構的組織型態，再從組織屬性的觀點出發，探尋現行體制之下的國家教育研究院的運作現況，最後藉由深度訪談方式了解利害關係人的看法，並且深入研究場域進行參與觀察，彌補上述研究方法可能造成的缺失，進而提出研究發現以及建議。
本研究發現，由於國家教育研究院是從多個舊有機關整併而成，是以，除了原先預設的教育研究智庫功能之外，還必須承接許多既有機關的公共性任務，因此，在業務具有高度公權力性質之下，便以公務研究機構做為最終定位。就現況而言，除了經費與人事上均受到一定程度的限制之外，研究與行政的比例分配也出現不當的現象；另，教育部身為國家教育研究機構的主管機關，其所抱持的態度與觀念將會影響教育研究的成果與方向，當下教育部密度甚高的指導作為，使其難以發揮獨立、超然的研究功能。
根據研究發現，本研究提供以下實務建議，首先，國家教育研究院院內必須區分長短期研究的專責單位，以落實專業分工；再者，盡速設立院務基金以緩解經費、人事缺乏彈性之問題；第三，建立國家教育研究院內部連結與外部交流的平台，透過合作關係提升專業研究能力；第四，重新檢視院內業務以及評估未來行政法人的可行性，並預作準備與規劃；最後，重建主管機關對國家級教育研究機構的看法與態度。

關鍵字

組織屬性 ； 國家教育研究院 ； 組織功能

並列摘要

There is a cause-and-effect relationship between the organizational property and function. Different public purposes and environments will lead to different organizational properties. To conduct the public affairs to the utmost, the decision-makers should hold a careful and discreet attitude in deciding on the organizational property and offer the proper organizational position based on the nature and purpose of the public service.
As the leading institution for educational research of our country, National Academy for Educational Research is endowed with an important public mission. During the long-term preparatory process, it went through the exterior environmental changes such as the political party alternation and the simplification of the administrative organization. Therefore, it faced the choices between different organizational properties. There are different characteristics and modes of each property, which has aroused attention and sparked discussion. All kinds of causes and considerations have resulted in the status quo as an official unit. Three years has passed since it was established. After the changes of time and space, I believe there is a need to reexamine the status quo and the present functions of NAER. I will make an observation in terms of the organizational property to find whether NAER, with the present public organization property, has achieved the intended purpose.
By examining the related documents, I first try to clarify the possible choices of the organizational properties at present in our country and make a comparison and analysis on the organizational properties of the national research institution of other countries. Then I will discuss the status quo of NAER in the present system in terms of the organizational property. Finally, through an in-depth interview, I will try to understand the involved personnel’s opinions and make observations at the research site. This may fill the gap of the above research method and help with the findings and suggestions.
In my study, I have found that NAER is composed of many existing units. To put it differently, in addition to the intended function of being a think tank, it has to take the public affairs from many existing units. Therefore, it is defined as a public research institution, which has to face certain limit on finance and personnel and improper ratio between research and administration. In addition, the attitude and concept of the Ministry of Education, the authoritative agency of NAER, will have an influence on the result and direction of the educational research. At present, the frequent instructions from the Ministry of Education make NAER unable to be detached and to focus on research.
In my study, I’ve made the following suggestions. First, NAER must distinguish between the units responsible for the long-term and short-term research to practice the professional division. Second, set a fund as soon as possible to relieve the financial and personnel problem. Third, establish the interior connection and a platform for exterior communication. Building cooperative relationship will help raise the professional research ability. Fourth, reexamine the affairs, evaluate the future possibility of administrative institution, and make preparations and plans. Finally, alter the authoritative agency’s opinion and attitude toward the national educational research institution.

並列關鍵字

organizational property ； National Academy for Educational Research ； organizational function

參考文獻

彭文賢，1990，《組織原理》，臺北：三民書局。

李昌齡，「全球政府組織與改造之研究」，《全國政治評論》第8期，頁109-130。

郭添財，2004，「教改當務之急─儘速成立國家教育研究院」，《研習資訊》，第21卷第2期，頁37-39。

彭錦鵬，2000，「英國政署之組織設計與運作成效」，《歐美研究季刊》，第30卷第3期，頁89-141。

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