政策決定의 諸要因에 관한 考察 = Some Factors in the Decision-Making; with Special Reference to Simon's Theory

다국어 초록 (Multilingual Abstract)

The aim of this stuffy is to bring light on the some factors in the decision-making, with special reference to Herbert A. Simon's theory.
(1) Administration is ordinarily discussed as the art of "getting things done." Emphasis is placed upon processes and methods for insuring incisive action. Principles are set forth for securing concerted action from groups of men. In all this discussion, however, not very much attention is paid to the choice which prefaces all action. Although any practical activity involves both "deciding" and "doing," it huts not commonly been recognized that a theory of administration should be concerned with the processes of decision as well as with the processes of action. This neglect perhaps seems from the notion that decision-making is confined to the formulation of over-all policy. On the contrary, the process of decision does not come to an end when the general purpose of an organization has been determined. The task of "deciding" pervades the entire administrative organization quite as much as does the task of "doing".
(2) A great deal of behavior, and particularly the behavior of individuals within administrative organizations, is purposive oriented toward goals or objectives. This purposiveness brings about an integration in the pattern of behavior, in the absence of which adminstration would be meaningless ; for, if administration consists in "getting things done" iby groups of people, purpose provides a principal criterion in determining what things are to be done. The value and factual elements may be combined, in some cases, in a single objective. The apprehension of criminals is commonly set up as an objective of a municipal police department. To a certain extent this objective is conceived as an end in itself. But from another point of view apprehension is considered a means for protecting citizens, for rehabilitating offenders, and for discouraging potential offenders.
(3) In an important sense, all decision is a matter of compromise. The alternative that is finally selected never permits a complete or perfect achievement of objectives, but is merely the best solution that is available under the circumstances. The environmental situation inevitably limits the alternatives that are available, and hence sets a maximum to the level of attainment of purpose that is possible. The three fractions, added together, account for most of what executives do. The first chase of the decision-making process-I shall call intelligence activity (borrowing the military meaning of intelligence). The second phase-inventing, developing, and analyaing possible courses of action-I shall call design activity. The third phase-selecting a particular course of action from those available-I shall call choice activity.
(4) Administrative activity is group activity. Simple situations are familiar where a man plants and executes his own work: but as soon as a task grows to the point where the efforts of several persons are required to accomplish it this is no longer possible, and it becomes necessary to develop processes for the application of organized effort to the group task. The techniques which facilitate this application are the administrative processes.
(a) Coordination : Group behavior requires not only the adoption of correct decisions, but also the adoption by all members of the group of the same decision. Suppose ten persons decide to cooperate in building a boat. If each has his own plan, and they do not communicate their plans, the chances are that the resulting craft will not be very seaworthy ; they would probably meet with better success if they adopted even a very mediocre design, and if then all followed this same design.
(b) Expertise: To gain the advantages of specialized skill at the operative level, the work of an organization must be so subdivided that all processes requiring a particular skill can he performed by persons possessing that skill. Likewise, to gain the advantages of expertise in decision-making, the responsibility for decisions must be so allocated that all decisions requiring a particular skill can be made by persons possessing that skill.
(c) Authority : The concept of authority has been analyzed at length by students of administration. We shall employ here a definition substantially equivalent to that put forth by C.I. Bernard. A subordinate is said to accept authority whenever he permits his behavior to he guided by the decision of a superior, without independently examining the merits of that decision. When exercising authority, the superior does not seek to convince the subordinate, but only to obtain his acquiescence. In actual practice, of course, authouity is usually liberally admixed with suggestion and persuasion.
(d) Organizational royalties: It is a prevalent characteristic of human behavior that members of an organized group tend to identify with that group. In making decisions their organizational loyalty leads them to evaluate alternative courses of action in terms of the consequences of their action for the group. When a person prefers a particular course of action because it is "good for America," he identifies himself with Americans, when he prefers it because it will "boost business in Berkeley," he identifies himself with Berkeleyans. National and class loyalties are examples of identifications which are of fundamental importance in the structure of modern society.
(5) Our study has not led us to any definitive administrative principles. It has, however, provided us with a framework for the analysis and description of administrative situations, and with a serf of factors that must he weighed in arriving at any valid proposal for administrative organization. It has shown us, further, that currently accepted "principles" of administration suffer from internal ambiguity and mutual contradiction. What are the next steps that research must take?
First, it must develop adequate casts studies of existing administrative situations.
Second, techniques must be developed arid improved for measuring the success of particular administrative arrangements.
Finally, the valuable investigations already initiated of the "conditions" under which different administrative principles are validly applicable might well be extended with the use of the "decisional" framework described in this study.

목차 (Table of Contents)

• Ⅰ.緖論 : 政策決定의 의의
• Ⅱ.決定行爲에 있어서의 價値와 實際
• Ⅲ.決定行爲에 있어서의 상대적 要因
• 1.擇一性외 制約
• 2.心理的 制約
• Ⅳ.行政過程에 있어서의 政策決定의 諸要因
• 1.調 整(coordination)
• 2.專門性(expertise)
• 3.權 滅(authority)
• 4.組織的 忠誠(organized loyalties)
• Ⅴ.맺는말