지방분권 강화를 위한 자치경찰제에 관한 연구 = (A) study on the municipal police system to strengthen decentralization

다국어 초록 (Multilingual Abstract)

It has been about 60 years since we began a discussion of the institutionalization of the municipal police system in Korea. But the argument is facing rough going, for as stake-holders in the system, many related organizations share interests. The related organizations involved in a discussion over the municipal police system include President(or candidate), the National Assembly, the National Police Agency, local autonomous entities and provincial assembly, civic groups and the academic world. The concept of "municipal police system" that these organizations aim at the introduction, however, is different respectively, that makes their mutual agreement difficult even though they recognize the necessity of the system. In the vortex of debates, as the president candidate 'Moo hyeon Noh' promised the electorate during his campaign that he'd build an municipal police system and was elected as the president it gained the momentum in the propulsion by making laws of municipal police system as an effort to boost decentralization of power under the taking by Presidential Committee on Government Innovation & Decentralization, an institute directly responsible to the President. The bill arranged by Municipal Police Promotion Committee and administrative work groups was submitted to the Assembly in the year-end in 2005, however, 17th National Assembly was declining without proper discussion.
But, the political, social and administrative environment facing to the Korean policing system in recent year is changing with a high speed. As the aspiration for democracy and self-rule has been increased since 1990's, the conception of police administration has recognized not as the symbol of national governmental authority but as a service delivery organization for residents. Especially, this was emphasized with the beginning of a self-local government in 1995.
After that time, there were lots of discussions about the introduction of new police-system which is suitable for political, economical, social, historical and geographical conditions in these days. In this regard, the purpose of the study is to drawn up a new scheme as alternative idea for the improvement of the police-system that is suitable for the real Korean political and administrative situations.
Through the real introduction of self-governing police system, we need new face as a progressive democratic police and service police from now on. in addition, we must compensate for the lack of security power according to the dispersion of police power. The local government establish the real, suitable institutional equipment and continuous effort for the execution of the self-governing police.
The rationale to introduce the municipal police system is to transform the previous police system into the new public security system in which the opinions of the community members are reflected based on the decentralization system. For the security of a local community, the security network for the local community should be established to prevent the crimes more effectively and to seek more efficient public security system under the shared sense of responsibility by the community residents, police, resident organizations, and so on. The police are inseparable from the local community and should receive the cooperation and support as well as the trust from the community residents in order to be reborn as the municipal police rooted on the local community. Therefore, the discussion about the municipal police system is timely at the moment when the police activity of the local community is being emphasized, which also leads to the heightened quality of life of the community residents as well as their public welfare and security. The re-born municipal police system centered on the community residents’ life will make it possible for the residents of the local community to meet the familiar police who protect their safety living together with them and for the local governing organizations to increase their overall administrative power including police administration and to provide better security service through the competitions with the national police as well as with other municipal police. While these positive effects may bring about safer life from crimes and heightened life quality for the residents, some negative effects such as the broadening of crimes and the role conflicts between the municipal police and the national police may be expected as well.
To ensure the success of an autonomous police system, the promotion of the following is needed:
It is necessary to introduce an autonomous police system to large local governments that takes into consideration financial aspects. If the integration of administrative districts is coordinated, the introduction of a municipal/district/county autonomous police system would also be recommended. In terms of the type of organization, an autonomous police system should be under a municipal or provincial governor’s direct control. A close relationship with related organizations should be maintained in terms of supply of manpower. Besides the expansion of this kind of force, it is important to build an intimate and cooperative relationship with the local society. It is important to clearly clarify police duties. National police should focus on those issues associated with response to crime, establishment of law & order and ensuring a social safety network. On the contrary, the duties of local police should be limited to customized security services for the locals, support of the fulfillment of official duties and other special judicial police duties. A cooperative and complementary relationship with national police should be established. Local police should set up and maintain an equal cooperative relationship with national police to efficiently manage and operate the police force. For this, it is necessary to make mandatory those details including mutual support, joint use of facilities, and establishment of a communication network, etc.. The criminal investigation right independent from the national police is required to be established within a municipal police. Furthermore, there should be the building of the system which enables national police to control local police in case of national emergency situation. But the control of the side of national police against that of local police should keep within bounds to a minimum, if necessary, so that the local police's ability to self-control should be guaranteed to a maximum. Taking the degree of low in viable economy into consideration, government is required to give financial support to the local police by making financial-aid law, of course, on the basis of local tax income.
In conclusion, we should put the municipal police system which meet the needs of democratization and efficiency under long argument into practice as soon as possible for Korea's takeoff. The groups sharing interests over the introduction of municipal police must control their desire to look after their own interests largely. these attitudes are appropriate for Korea's reality and development. Now it is time to terminate arguments and put into an action.

목차 (Table of Contents)

• 제1장 서 론 1
• 제1절 연구목적 1
• 제2절 연구범위 및 방법 3
• 제2장 지방행정체제 개편과 자치경찰제의 이론적 함의 5
• 제1절 지방분권과 지방행정체제 개편의 일반론 5
• 1. 지방분권의 의의 5
• (1) 지방분권의 개념 5
• (2) 지방분권의 필요성 6
• 2. 지방행정체제 개편과 자치경찰제의 관련성 8
• (1) 지방행정체제의 개편필요성 및 개편특별법의 주요 내용 8
• 1) 지방행정체제의 개념 9
• 2) 지방행정체제의 현황 10
• 3) 지방행정체제 개편의 필요성 11
• 4) 지방행정체제 개편의 추진경과 13
• 5) 지방행정체제 개편에 관한 특별법 주요 내용 17
• (2) 자치경찰제도입 주요내용 19
• 1) 의의 19
• 2) 지방행정체제 개편과 자치경찰제도입의 주요내용 21
• 제2절 경찰의 기능과 역할의 변화 22
• 1. 경찰의 역할 및 기능 22
• (1) 국가경찰제도상 경찰의 기능과 역할 23
• (2) 국가경찰제도의 문제점 24
• (3) 지방분권화에 따른 경찰의 역할과 기능의 변화 25
• 2 자치경찰제의 개념 및 법적 근거 29
• (1) 자치경찰제의 개념 29
• (2) 자치경찰제의 법적 근거 31
• 1) 헌법 31
• 2) 경찰법 34
• 3) 정부조직법 및 지방자치법 35
• 4) 지방분권특별법 37
• (3) 자치경찰제 도입의 필요성 38
• 1) 정치적 중립성 확보 38
• 2) 지방분권의 실현 39
• 3) 경찰의 민주성 확보 42
• 4) 맞춤형 치안서비스의 제공 43
• 5) 지방자치제의 실질화 44
• 6) 국가경찰체제의 한계 46
• 제3절 각 정부별 자치경찰제 법안의 주요내용 48
• 1. 국민의 정부 48
• (1) 경찰분권화 시도 48
• (2) 자치경찰모형 49
• 1) 기본모형 49
• 2) 모형의 이념 50
• (3) 자치경찰제의 주요내용 51
• 1) 조직구조 53
• 2) 경찰사무의 배분 54
• 3) 자치경찰의 인사·재정 및 타 기관과의 관계 55
• 2. 참여정부 57
• (1) 연혁 57
• 1) 법안 행자위 상정 58
• 2) 자치경찰법안 공청회 58
• 3) 유기준 의원안 공청회 59
• 4) 행자위 법안심사소위원회 상정 61
• 5) 정부 수정안 제시 62
• 6) 자치경찰제 추진평가 토론회 63
• (2) 법안 제정의 기본원칙과 방향 64
• 1) 기본 원칙 65
• 2) 기본 방향 65
• (3) 자치경찰법안 주요 내용 68
• 1) 자치경찰 도입단위 68
• 2) 선택적 실시 및 협약 68
• 3) 자치경찰대 69
• 4) 자치경찰대장 70
• 5) 자치경찰의 사무 71
• 6) 자치경찰 활동목표의 수립 및 평가 74
• 7) 치안행정위원회와 지역치안협의회 75
• 8) 자치경찰의 직무수행 76
• 9) 경찰 상호간의 관계 77
• 10) 자치경찰에 대한 지원 및 감독 78
• 11) 자치경찰공무원 79
• 12) 시범실시 83
• 3. 이명박 정부 83
• (1) 연혁 83
• (2) 유기준의원의 자치경찰법(안) 84
• (3) 자치경찰법안 주요 내용 85
• (4) 자치경찰 소위원회 활동 88
• 4. 정부별 비교 89
• 제3장 자치경찰제에 관한 비교법적 검토 92
• 제1절 제주자치경찰제 92
• 1. 제주자치경찰제의 도입배경 92
• 2. 제주자치경찰의 운영현황 95
• (1) 제주자치경찰의 사무범위 95
• 1) 법적사무 95
• 2) 협약사무 99
• (2) 제주자치경찰의 조직과 재정 101
• 1) 제주자치경찰의 조직 101
• 2) 치안행정위원회 등의 기능 104
• 3) 제주자치경찰의 재정 106
• (3) 제주자치경찰의 직무수행 및 감독 107
• 제2절 주요 국가의 자치경찰제 109
• 1. 미국 109
• (1) 특징 109
• (2) 자치경찰조직 111
• 1) 주 경찰 112
• 2) 지방경찰 113
• (3) 자치경찰의 재정 116
• (4) 국가경찰과의 관계 117
• 2. 영국 117
• (1) 특징 117
• (2) 경찰조직 119
• (3) 자치경찰의 지위와 직무 120
• 3. 독일 121
• (1) 특징 121
• (2) 경찰체계 123
• (3) 자치경찰조직(행정경찰) 125
• (4) 프랑크푸르트 지방경찰청과 질서행정청 126
• 1) 프랑크푸르트 지방경찰청 조직 127
• 2) 경찰서의 조직과 활동 127
• (5) 바이에른 주의 경찰 129
• 4. 프랑스 129
• (1) 특징 129
• (2) 주요임무 132
• 1) 기본임무 132
• 2) 교통경찰임무 133
• 3) 사법경찰관리로서의 임무 133
• (3) 경찰조직 134
• (4) 인사관리제도 136
• (5) 자치경찰과 국가경찰 협력체제 139
• 5. 일본 140
• (1) 특징 140
• (2) 경찰조직 141
• (3) 인사 143
• (4) 재정 144
• (5) 국가경찰과의 관계 145
• 6. 소결 146
• 제4장 자치경찰제 도입을 위한 구체적 방안 152
• 제1절 제주자치경찰제의 운영상 한계와 개선방안 152
• 1. 제주자치경찰제의 운영상의 한계 152
• 2. 제주자치경찰제 개선방안 155
• (1) 인사·조직상의 개선방안 155
• 1) 미충원인원의 확보 155
• 2) 정치적 중립성의 확보 156
• 3) 제주자치경찰단장의 직급조정 157
• 4) 국가경찰공무원과의 인사교류 문제 158
• (2) 예산지원의 확대 159
• (3) 운영상의 개선방안 159
• 1) 제주자치경찰사무의 확대 160
• 2) 국가경찰과 협력 강화 161
• 제2절 자치경찰제의 도입을 위한 구체적 방안 162
• 1. 도입범위 163
• (1) 경찰행정의 특수성 163
• (2) 도입단위별 주요내용 164
• 1) 광역단위 자치경찰제도 도입 164
• 2) 기초단위 자치경찰제도 도입 168
• 3) 소결 170
• 2. 조직형태 171
• (1) 조직구조 171
• (2) 소속 174
• (3) 인적구성 175
• 1) 자치경찰 신분 176
• 2) 임명권 177
• 3) 인사교류 178
• 3. 사무범위 178
• (1) 현행 법안의 사무범위의 문제점 179
• (2) 업무협조의 문제 179
• (3) 자치경찰 상호간의 분쟁 문제 181
• 4. 수사체계 182
• (1) 현행 법안의 수사체계의 문제점 182
• (2) 수사권 조정의 조정 183
• 5. 예산상의 문제 185
• (1) 예산확보의 문제 185
• 1) 예산확보의 필요성 185
• 2) 경찰예산 현황 187
• (2) 자치경찰예산 확보방안 187
• 1) 국고보조금 지원 188
• 2) 세원증대를 통한 자주재원 확보 190
• 3) 경찰교부금 신설 191
• (3) 자치경찰사무에 대한 감사 192
• 1) 국가경찰의 지도·감독 및 조정·통제 범위 192
• 2) 주민참여 및 통제 193
• 제5장 결론 194
• 참고문헌 199