國立故宮博物院組織變革可行方案之探討

我國國立故宮博物院（以下簡稱故宮）為我國最具規模且最為知名之博物館，從1925年成立迄今近百年，以典藏中華文化歷代古物、圖書、文獻聞名，其典藏品之數量及珍貴性，甚至使其與法國羅浮宮、英國大英博物館、美國紐約大都會博物館及俄羅斯的艾爾米塔什博物館齊名，名列世界前10大博物館之一。然而，我國故宮目前屬於行政機關組織型態，在首長任命、人員進用、員額、財務及營運管理上均無法依其專業自主地發展。從世界知名國家級博物館來看，美國大都會博物館、英國大英博物館、法國羅浮宮、東京國立博物館及荷蘭國家博物館等皆為法人組織型態，其目的就在於透過組織設計或組織變革來協助博物館業務或任務之達成。因此，政府及朝野各界迭有故宮法人化之討論，希望故宮能透過組織變革來提升營運效能。本研究採用組織變革理論及策略三角理論作為評估故宮組織現行型態及新組織樣態之理論基礎，並透過歷史制度研究途徑，介紹我國政府組織型態及組織改造沿革，再深入探討故宮組織演進的歷史並剖析現行組織型態優缺點，並比較分析國外知名公立博物館羅浮宮、東京國立博物館及荷蘭國家博物館之轉型經驗，以討論故宮現行組織定位之優劣並分析故宮轉型各種組織型態之可行性。經研究發現，故宮現行組織型態的優勢在於預算經費來源穩定、高組織層級有較多的資源及吸引人才之誘因，但劣勢在於組織無法即時彈性調整、預算編列或執行缺乏彈性、無法彈性運用人力與進用專業人才及參觀人數易受兩岸關係影響。而羅浮宮、東京國立博物館及荷蘭國家博物館均受新公共管理風潮影響，轉型為法人型態，其最大的收穫在於財務與人事制度的鬆綁，同時透過評鑑或合約機制確保公共任務之達成。經分析，故宮如採行政機關型態，保有公共價值之程度最高，但組織、財務、人事及院長的遴選上受到限制最多；如採行政法人型態，仍可保障文物收藏安全，且營運彈性有助發揮社教功能，惟上級機關監督權限縮及業務有商業化疑慮；如採政府捐助財團法人型態，自主化程度最高，但難以保障公共任務的落實。為兼顧公共價值、政治上與適法性支持及管理與操作上可行性，本研究建議故宮參考德國「新調控模式」維持行政機關組織型態，具體做法為透過組織法之修訂，鬆綁故宮之組織、人事及財務之限制，但同時仍維持必要之監督機制。

關鍵字

國立故宮博物院；組織變革；博物館法人化；德國新調控模式

並列摘要

The National Palace Museum, which has been established in 1925, is the largest and most famous museum in Taiwan. It is so famous for its collection of ancient Chinese cultural relics, books, and documents that is as famous as The British Museum, the Metropolitan Museum of New York and the State Hermitage Museum in Russia, ranking among the top 10 museums in the world. However, the National Palace Museum currently is an administrative authority, and it is unable to develop autonomously in accordance with its profession in terms of director appointment, personnel recruitment, manpower, financial and operational management. As for world-renowned national museums, the Metropolitan Museum, the British Museum, the Louvre Museum, the National Museum of Tokyo, and the Rijksmuseum of the Netherlands are all corporate organizations, whose aim to help the museums to achieve its goal by organizational redesign or organizational changes. Therefore, the government and the parliament have often discussed corporation of the National Palace Museum, hoping improve its operational efficiency through organizational changes. The study adopts the theory of organizational change theories and the strategic triangle theory as the theoretical basis for evaluating the current and new organizational types of the National Palace Museum, and adopts the approach of historical institutionalism to introduce the organization types of Taiwan government and the history of Taiwan government’s organization change. The research not only deeply explores the history of the evolution of the National Palace Museum 's organization and analyzes the advantages and disadvantages of the current organizational type, but also compares and analyzes the transformation experience of the Louvre Museum, Tokyo National Museum, and the Rijksmuseum of the Netherlands, to discuss and analyze the feasibility of the National Palace Museum' s transformation of various organizational types. The conclusions are as follows: 1.The current organizational structure of the National Palace Museum has the advantages of stable funding sources, high-level organization with more resources and incentives to attract talents, but the disadvantages are that the budget and manpower cannot adjust immediately and flexibly and the the number of visitors is easily affected by cross-strait relations. 2.The Louvre, the Tokyo National Museum, and the Rijksmuseum of the Netherlands are all affected by the new public management trend and transformed into a corporation form. Their biggest gain is the loosening of the financial and personnel systems, while ensuring the achievement of public tasks through evaluation or contract mechanisms. 3.If the National Palace Museum adopts the form of administrative authority, it can maintain the highest degree of public value, but its organization, finance, personnel, and political appointments are most restricted. If the National Palace Museum adopts the form of administrative corporation, it can still guarantee the safety of cultural relics and the flexible operation which enhance the function of social education, but the supervisory authority of the higher authority has been reduced and the has a concern of over-commercialization. If the National Palace Museum adopts the form of foundation, it has the highest degree of autonomy, but it is difficult to guarantee that the public tasks will be finished. In order to meet the goats of account public value, political and legal support, and management and operational feasibility at the same time, the study suggests refereeing to Germany's "Das neue Steuerungsmodell", the National Palace Museum maintains the organizational type of administrative authority. The specific method is to loosen the organizational, personnel and financial restrictions by the revising the organizational law, but at the same time still maintain the necessary supervision mechanism.