從國家安全觀點探討我國警察組織變革策略 －美國國土安全部設立的啟示

A Study on the Strategy of Police Organizational Reform of the Republic of China from the Perspective of National Security Viewpoint---an enlightenment from the establishment of the US Department of Homeland Security

劉世林(Shih-LinlLiu)

指導教授 ： 劉順仁

國立臺灣大學/管理學院/高階公共管理組/碩士(2005年)

https://doi.org/10.6342/NTU.2005.02695

摘要

國家安全是個概念的名詞，但它有時間性的限制，這是因為國際關係的發展與科技文明的進步，而令其具有相對性的定義。冷戰時代及冷戰落幕以來，一直到廿一世紀初發生在美國之「九一一」事件，皆已顯示出：國家安全的概念都有其階段性的變化，亦即，傳統上以國防、外交及情報工作組建為國家安全的經緯，直到美國提出「國土防衛」（Homeland Defense）及設立「國土安全部」（Department of Homeland Security）後，世界各國在國家安全體系上都有回應性的組織變革。
我國在相關國家安全的概念上迄今仍無法擺脫歷史的慣性思考，組織上仍然以國防體系及情報體系為主，而忽略了治安組織體系的角色變化及其戰略意涵，特別是主導這個體系的警察組織。雖然，資訊科技、網際網路、交通運輸的創新，帶來了全球化，相對應的也帶來了諸如恐怖主義、人口販賣、毒品、槍械走私，乃至利用合法企業組織掩護非法等各種新型態之跨國犯罪或安全威脅，尤其是，利用化學、生物、核子或輻射物質為恐怖攻擊手段之非傳統安全威脅，已然衝撞到傳統的社會秩序與公共安全。是以，若從國家安全發展的趨勢來看，將治安組織體系擴張或提升至國土安全組織體系，應已是無可避免的情勢發展，換言之，以內政部轄下的警察組織為主體，並將海域執法、國境安全、情報、救災、平難等相關單位加以納入或整合，且提昇到部會層級，實係回應現實環境所需。總之，以美國國土安全部設立之經驗與思維邏輯為鏡，我國國土安全部的設立，可能是我國國土安全體系上的策略選擇。
這篇論文，筆者嘗試利用管理學上史提勒（Steiner）SWOT的模式來作論文撰寫的架構佈局；又復引用波特價值鏈（Porter’s Generic Value Chain）來分析「國土安全鏈」產生競爭優勢的過程，但如何來解決企業與政府組織之間差異性及引用之邏輯，是這篇論文的另一嘗試。

關鍵字

國土安全價值鏈 ； 擾亂定律 ； 善後管理 ； 第一線反應者 ； 民生基礎設施

並列摘要

National security is a conceptual term and has limits on its time perspective. Its relative definition and connotation stem from the impacts of the development of international relations and advance of technological civilization. Ever since the beginning of the Cold War and the post-Cold War periods, up to the outbreak of the terrorist attack of September 11, 2001, it is evident that the concept of national security has different meaning in each phases of modern history. It has been conventional practice to rely on the military, diplomacy and intelligence for protecting national security. However, when the United States started to strengthen “Homeland Defense” and establish a new “Department of Homeland Security” in the wake of the September 11 terrorist attack, major countries of the world all responded with different levels of organizational reform or even government reconstructions.

As to the Republic of China, it still has not been able to adjust its conventional, or inertial, way of thinking with respect to safeguarding national security. In terms of organizational structure, it remains counting on military/defense and intelligence establishments for its national security, downplaying the changing role of the social order & public security apparatuses and its strategic implications, especially undervaluing or ignoring the leading role of the police organization.

While the progresses in information technology, internet networking, transportation & communication have contributed to the course of globalization, they also have brought in various kinds of transnational crime and security threats as well, including terrorism, trafficking in persons, drug and arms trafficking, and conducting illicit activities under cover of legitimate businesses. It is imperative to point out that non-traditional security threats using chemical, biological, nuclear and radioactive material as means of attack have gravely affected the social order and public safety and security.

Hence, from the perspective of development of national security, enhancing or upgrading the public order-maintaining establishment to the level of homeland security organization has been viewed as an inevitable trend. In another word, designating the police as the principle force of homeland security task and integrating other major elements of maritime law enforcement, border security, immigration control, security intelligence, disaster rescue and emergence response into the cabinet-level homeland security agency is a necessary response to the challenge of the real world. To sum up, taking the thinking behind and experience of putting together the new Department of Homeland Security as a reference, the establishment of Taiwan’s version of Homeland Security organization is a strategic choice of building its own Homeland Security system.

The author has tried to use the concept of Steiner’s SWOT model to be the core idea and framework of this thesis. In addition, the concept of Porter’s Generic Value Chain was also adopted to analyze the process of “Homeland Security Chain” in which all elements compete for advantages. It is this paper’s another endeavor to try to resolve the difference between the public/government and private/enterprise sectors and their respective logics in managing businesses.

並列關鍵字

Homeland Security Chain ； Law of Disruption ； consequence management

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