지방정부의 목표관리와 예산관리의 연계를 위한 모형 연구 - 부산광역시를 중심으로 -

박영강 ( Park Young-kwang ),강성권 ( Kang Sung-kwon ),강재호 ( Kang Jae-ho ),이강웅 ( Lee Gang-woong ),이종필 ( Lee Jong-pil ) 부산연구원 2004 연구보고서 공동연구 Vol.2004 No.0

There are two recent trends in improving performance of local government: The one is result-oriented budget system developed in European countries; the other is Management By Objectives (MBO) carried out in the United States. Japanese local governments, in which changes in budget system occur relatively slow, attempt to introduce performance-oriented administrative evaluation system while in Korea, Seoul local government makes a move to improve MBO by including performance-based budget system. Busan Metropolitan City has drawn up partially performance-based budgets(PB) in four areas (Financial Management Division, Environment Bureau, Busan Cultural Center and the Special Accounts for Transportation Project) since 2003, but budget system in general remains the same because, the performance proposals in budgets were merely linked with general directors and managers' objectives under MBO. The purpose of this study is to examine expected problems in introducing objective- budget connection system and to find alternatives and implications by analyzing the cases of three cities: Seoul of Korea, Suginami-Gu of Tokyo, Japan, City of Phoenix, U.S.A. Results showed that Suginami-Gu's administrative evaluation system was less effective than that of Phoenix mixing with PB and MBO. That of Seoul having a similar model to Phoenix budget system was turned out to be less effective. This means experience and technique of evaluation are more important in the efficiency of evaluation model rather than structural factors of evaluation model itself. Based on these results, we proposed basic directions of an objective-budget connection system to improve the efficiency of the system and institutional and technical alternatives as follows: First of all, when Korean local governments look for a new objective-budget connection system, Seoul's performance-management model will be a major alternative. Suginami-Gu's administrative evaluation system can be easily applicable, but it is not yet linked with personal compensation and promotion so that it may be passive in developing an evaluation index and its techniques. There for the operational experience and model of Phoenix having a similar model to Seoul's would be helpful. When we introduce a performance-management system of Seoul, we may have to consider the following institutional and technical alternatives in order to increase its efficiency: ① It is required to renovate the structure of Seoul's performance-based budgetary system. The case of Phoenix would be an alternative. ② To develop a performance index corresponding to the characteristics of Busan, it is needed to keep close bondage between evaluation-in-charge department and project departments, and to obtain external institutions' support and NGO's involvement. In this process, an organization's mission should be identified. In the setting up managers' personal goals require a concrete and diverse index like Phoenix's. ③ For performance evaluation as a core function of object-budget connection system, it is required to reinforce evaluation-in-charge department, to establish an adequate evaluation procedure and to carry out systematic training for supervisors' evaluation skill improvement and active participation of staff members. ④ To promote the efficiency of connection model, the inducement measure should be strengthened and its application should be expanded gradually. In Busan's case, bonus is offered as a means of the inducement. As the inducement effect of bonus is not high, the standard for bonus distribution should be varied to enhance the inducement effect. Structural renovation of budget system in the proposed alternatives requires central government's changes in the guide on the compilation of budget, but it can be done on the local government level. Reorganization of the evaluation agency and financial inducement structure can be achieved through local government's individual revision of ordinances and regulations. Thus, institutional restriction is unlikely to occur in the process of introducing a new objective-budget system. Those alternatives are considered as basic contents when Busan Metropolitan City introduces a new system mixing MBO with PB. But supplementary case studies on each country's budgetary structure and related financial system will be desirable. To realize these alternatives, it is required to overcome resistance from members of an organization and to secure political force to settle down the new system. It is desirable for a mayor of local government to have his/her confidence to pursue administrative reform and to obtain supports from community's council and opinions at the same time. This study is jointly conducted by Busan Development Institute and Dong-eui University in the form of Research-Academia consortium. Professor Kang, Jae-Ho of Busan National University participated in the project as a special researcher. We appreciate the advice and help of those who offered relevant materials from domestic and overseas. Especially, we would like to express our sincere thanks director Sakae Sueki and his staff members in the Department of Planning at Suginami-Gu of Tokyo, Professor Hiroshi Sato of Chuogakuin University in Japan, and Mr. Bob Wingenroth, City Auditor and his Deputy City Auditors, Ms. Diane L. Artrip, JoAnne M. Dukeshire in Phoenix, Arizona.

거버넌스 구축을 위한 시민사회단체지원방안에 관한 연구

강성철(Gang Sung Chul),박영강(Park Young Gang),문유석(Mun You Suk),김상구(Kim Sang Gu),허철행(Heu Chul Hang) 경성대학교 사회과학연구소 2009 社會科學硏究 Vol.25 No.1

최근 거버넌스가 전통적 관료제를 대체하는 대안적 행정방식으로 제기되었으나 한국의 지방정부 내지 지방행정에 적용하는 것은 한계가 있다고 판단된다. 왜냐하면 거버넌스를 위한 제도적 장치도 미흡했지만 거버넌스 체제의 중요한 일부분이라고 할 수 있는 시민사회와 시민사회단체의 발전이 충분하지 않기 때문이다. 본 연구는 건전한 거버넌스 체제 구축을 위해서는 시민사회단체의 발전이 요청된다고 보고, 기존의 연구결과들과 공무원 및 시민단체관계자들을 대상으로 한 설문조사 자료를 분석하여 다음과 같은 시민단체의 지원방안들을 제시하였다. 첫째, 시민사회단체들의 참여를 위한 제도적 장치가 마련되어야 한다. 둘째, 시민사회단체에 대하여 재정지원사업을 적극 확대해야한다. 셋째, 시민사회단체 지원사업의 평가와 운영을 전담할 독립적 기관의 설립을 고려하야야 한다. 넷째, 조세지원, 행정편의, 사무실지원 등 간접적 지원을 강화하여야 한다. 본 연구는 결론에서 건전한 시민사회의 육성을 위해서는 시민사회단체의 발전이 요구되며, 중앙 및 지방정부의 시민사회단체에 대한 적극적이고 전략적인 지원이 건전한 지역거버넌스 체제 구축을 통한 지역사회발전의 단초를 제공할 수 있다고 주장하고 있다. Governance has been recently proposed as an alternative ways of public service provision in the field of public administration, but it's applicability to the context of local public administration in Korea seems to be limited. That is because most localities are not only poorly-equiped with institutional arrangements for governance but also their civic society and civic organizations have not been fully developed yet, which constitutes a key element of governance. Recognizing the development of civic organizations is essential to construct an effective governance system, this study suggested the following policy directions based upon the results of analyses using data collected through a survey conducted on public servants and staffs of civic organizations serving in Busan Metropolitan areas: First, institutional arrangements to secure participation of civic organization need to be prepared. Second, financial support for civic organizations needs to be expanded. Third, an independent organization to operate and evaluate support programs for civic organizations needs to be established. Fourth, indirect support including tax deduction, administrative assistance, and office provision also needs to be considered. In conclusion, this study further stressed proactive and strategic governmental support for civic organizations is currently desired to construct basis for local development through governance system.