我國政府機關檔案分類與編排描述規範發展歷程之研究

A Study on the Classification, Arrangement and Description of Government Records in Taiwan

陳慧娉(Chen Hui-Pin)

指導教授 ： 薛理桂

國立政治大學/文學院/圖書資訊與檔案學研究所/博士(2021年)

https://doi.org/10.6814/NCCU202100867

摘要

本研究以臺灣光復後，從政府法規的角度研究政府機關檔案分類與編目的相關規範與實務。在檔案法通過以前的時期，以歷史研究法調查與分析檔案分類與編目的相關法規與政策，並以臺灣省行政長官公署公報、臺灣省政府公報為主要研究資料來源，另一方面因臺灣省政府由行政院直接管轄，行政院所頒佈的《事務管理手冊》與大規模行政調查結果與建議，臺灣省政府均需配合辦理，因此亦納入本研究範圍。此外，由於民國37年國防部《檔案手冊》對臺灣省政府文書處理規則有極大影響，因此亦納入探討範圍。而檔案法通過後的資料來源，以檔案管理局頒訂的法規、作業手冊、指引等，以及檔案管理局出版的年報、相關作業年報、研究報告、網路資源等。另一方面，以深度訪談法，調查分析檔案法通過後（民國88年至今）政府機關檔案分類與編目現況，由於研究人力與時間有限，而檔案管理局為檔案主管機關，因此訪談檔案管理局與檔案分類編目各環節業務的組別進行訪談，了解各機關在檔案分類與編目建檔、目錄彙送管考與目錄檢索系統管理等相關議題。

由於檔案分類與編排整理的方式，與政府機關組織發展息息相關，而趙其文認為我國機關組織法的發展可分為務實期(37-67年)與法制期(67年以後)。本研究參照趙其文先生分析我國組織發展的方式，將檔案分類與編排描述，將檔案分類與編目描述作業分為四個時期來探討其歷程：第一時期為肇始時期（民國35年-民國47年）、第二為公文處理改進時期（民國48年-民國60年）、第三個時期為檔案管理改進時期（民國61年-87年）、第四個時期為檔案法通過與檔案管理局成立後時期（民國88年至今）。

根據研究發現，提出結論如下：一、檔案分類在政府機關檔案管理發展演變、二、檔案編目在政府機關檔案管理發展演變（民國35年-民國70年）、三、檔案法通過後，政府機關檔案編目發展與實務、四、檔案編目從管理檔案層面到資訊整合層面、五、機關檔案電腦化作業對檔案編目作業的限制、六、機關檔案人員異動頻仍，造成機關檔案編目作業品質低落、七、國家檔案描述著重於案卷層級、八、檔案目錄品質控管議題、九、檔案目錄查詢系統之優化。

針對前述研究成果，提出六項建議：一、加強文書撰寫教育訓練、二、加強機關檔案管理人員的編目教育訓練、三、區分機關檔案為臨時檔案、中心檔案與永久檔案、四、建立系列層級的編目作業、五、深化國家檔案編排描述內容、六、加強檔案目錄品質控管。

關鍵字

檔案分類 ； 檔案編排描述 ； 控制層級 ； 臺灣省政府 ； 檔案目錄管理

並列摘要

This research explores the relevant standards and practices of government agency records classification and description from the perspective of governmental regulations. In the times before the Archives Act was adopted, the historical research approach was used to investigate and analyze the relevant standards and policies of records classification and catalog, while further using the Taiwan Province Administrative Executive Office Gazette and Taiwan Provincial Government Gazette as the main research data sources. On the other hand, as Taiwan Provincial Government was under the direct jurisdiction of the Executive Office, therefore the Taiwan Provincial Government needed to collaborate with the “Affairs Management Handbook” announced by the Executive Office along with the large-scale administrative investigation results and suggestions, hence these were also incorporated into the scope of this research. Moreover, since the “Records Handbook” from the Ministry of Defense in 1948 has a significant influence on classification, arrangement and description of Taiwan Provisional Government records, it is also incorporated into the exploration scope. The data sources after the adoption of the Archives Act included the regulations, operating handbooks and guidelines…etc. stipulated by the National Archives Administration(NAA), as well as the annual reports, relevant operating annual reports, research reports, and network resources…etc. published by the NAA. The in-depth interview method was applied to investigate and analyze the current situations of government records classification, arrangement and description after the adoption of the Archives Act (from 1999 until the present) and due to the limited research labor and time, as well as with the NAA as the records supervising agency, the NAA and the various business division for records classification, arrangement and description were interviewed to realize the relevant topics for the various agencies regarding classification, arrangement and description of records, and records catalog submission management, as well as the directory search system management.

Since the way of records classification, arrangement and description is closely related to the development of governmental organizations, Chi-Wen Chao believed that the development of the Organization Act of the Executive Yuan can be divided into the practical period (1948 – 1978) and the law period (after 1978). This research used Mr. Chi-Wen Chao’s approach for analyzing Taiwan’s organizational development as a reference to describe the records classification, arrangement and description, dividing the descriptive operations for the records classification and catalog into four periods in order to explore the process: Period I was the Onset Period (1946 – 1958), Period II was the Official Document Processing and Improving Period (1959 – 1971), Period III was the Records Management Improving Period (1972 – 1998), while Period IV was the Archives Act Adoption and NAA Establishment Period (since 1999 – present).

According to the research findings, the following conclusions were proposed: I. Evolution of records classification in the development of government agency records management; II. Evolution of records arrangement and description in the development of government agency records management (1946 – 1981); III. Development and practices of government agency records classification, arrangement and description after the adoption of Archives Act; IV. Records catalog from the records management aspect to the information integration level; V. Limitations on records arrangement and description operation with the computerized operation for agency records; VI. Frequent agency records personnel changes result in poor agency records catalog operation quality; VII. National archives description stresses on folder level; VIII. The issue of quality control of records catalog; IX. Optimization of Navigating Electronic Agencies Records.

Based on the above mentioned research outcomes, six suggestions were proposed: I. Reinforce document writing educational training; II. Reinforce cataloging education training for agency records manager; III. Categorize agency records into active records, semi-active records, and inactive records; IV. Establish description of series level; V. Deepen the content of national archives classification, arrangement and description ; VI. Reinforce records catalog quality control.

並列關鍵字

Records classification ； Archival arrangement and description ； Control level ； Taiwan Provincial Government ； Records catalog management

參考文獻

＜事務管理人員訓練講話第十七講－檔案的清點與整理分類編號＞，《事務管理》94期（1965）：17-19。

＜「行政改革」公聽會＞，《立法院公報》87卷18期（1998）：390-391。

＜令各縣市政府（局）、臺灣省所屬各機關學校、各公營事業機構為奉行政院令以行政院事務管理改進委員會雖已撤銷，該會原有業務仍由行政院各處繼續接辦一案，轉希知照＞，《臺灣省政府公報》49年冬字第43期（1960）： 538。

＜令各縣市政府（局）及所屬各機關、省縣市（局）公營事業機構、省縣市（局）立各級學校為「臺灣省政府暨所屬各機關公文處理規則」試辦期間准予延至49年4月底止，希遵照＞，《臺灣省政府公報》49年春字第53期（1960）：679。

＜令省屬各機關學校、省屬各公營事業機關、各縣市政府（局）據主計處案呈「事務管理手冊」內列檔案管理辦法與「會計法」規定牴觸疑義，業經行政院主計處核示一案，轉希遵照＞，《臺灣省政府公報》47年春字第7期（1958）：101。