內政部移民署組織重組之實證研究2007～2015：權變理論的觀點

政府推動組織改造不僅會引發內、外環境的阻力障礙，從提出修正草案到立法執行更是曠日廢時，要成就如此龐大的工程往往不容易，但移民署卻在短短的8年內進行了兩次：2007年從「警政署入出境管理局」升格為「入出國及移民署」，又在2015年改造成為「移民署」，實屬政府組織中罕見的劇烈變革個案。本文嘗試從結構權變理論的觀點解析移民署的兩次變革，即分析影響組織結構的權變變量是什麼，又是如何介入組織結構設計的，透過深度訪談及次級資料分析，擬回答以下三個研究問題：移民署兩度組織重組之原因為何（Why）？組織結構以何種方式進行調整（What）？成效如何（How）？研究發現：1.移民署第一次組改的驅動因素為權變因素中的環境、策略和規模；結構設計係以內政部警政境管局為基礎，歸併相關機關之業務與人力，整合成單一窗口；成效上解決移民及境管業務多頭馬車的現象，有效提高行政效率並強化人流安全管理。2.第二次組改的權變因素是環境、策略和技術，原本以功能劃分之組織設計造成單位間溝通困難等不良後果，故將別功能轉變為地區別的組織設計，打破功能部門本位主義的思考方式，促進單位間相互協作，不僅提升效率效能，同時促進顧客導向的行政服務。本文藉由結構權變理論的觀點來檢視移民署結構的調整，同時也藉由研究結果的回饋，將該署組織變革歷程作為該理論縱向研究的重要實證案例，讓結構權變的概念有理論與實務的對話。

關鍵字

組織變革；組織結構；組織重組；結構權變理論

並列摘要

Promoting a reorganization will be not only hindered by resistance from external or internal environment, but also time-consuming from the proposal of the draft to the implementation of the legislation. It is not an easy job, but National Immigration Agency conducted reorganization twice in just 8 years: In 2007, The Entry and Exit, and Immigration Agency was established from the former Entry and Exit Bureau of the National Police Agency, and in 2015, the organization was restructured and the name was changed to the National Immigration Agency (NIA). It is a rare case of drastic change of government organizations. This study aims to analyze the two reorganizations of NIA from the perspective of Structural Contingency Theory (SCT), especially the contingency factors associated with organizational structure and the way they affecting organizational design. It explores the factors causing reorganizations (Why), the patterns of organizational restructure (What) and the result (How) through in-depth interview and secondary data analysis. It was found that environment, strategy and size are the contingency factors that drive the first NIA reorganization which based on the Entry and Exit Bureau of the National Police Agency and incorporated part of services from Overseas Community Affairs Council, Department of Household Registration, Aviation Police Bureau, Harbor Police Departments and the police stations to one-stop service. Some staff transferred from the departments mentioned above to the NIA. This reorganization resolved the problem of hydra-headed of immigration and border management affairs, improved administrative efficiency and strengthened cross-border safety. Environment, strategy and technology are the contingency factors of the second NIA reorganization. The organizational structure is changed to geographic departmentalization which is transferred from function-oriented to process-oriented because the original divisional structure resulted in interdepartmental coordination problems. It helps to break down the departmental egoism, advance mutual cooperation, improve efficiency and promote customer-oriented administrative services. This study examines the reorganization of NIA through the perspective of SCT and the findings will provide an important empirical case for the longitudinal study of SCT, contributing to bridge SCT theory and practice.