관료적 자율성의 부처 간 비교: 한국 중앙행정기관 실증분석 = Comparing Bureaucratic Autonomy in Korean Central Government Agencies

다국어 초록 (Multilingual Abstract)

Bureaucratic autonomy is a topic in public management regarding which the rarity of empirical evidence is in marked contrast with the abundance of theoretical arguments. The purpose of this study is to fill the gap to a large extent by analyzing bureaucratic autonomy itself. This study operationalized the abstract idea, bureaucratic autonomy, into a multidimensional construct with measurable variables and indices in order to measure bureaucratic autonomy. Bureaucratic autonomy is divided into three dimensions: political/structural autonomy (the distance from the President and days of congressional audit), financial autonomy, and legal autonomy. I provide objective measures of these autonomy dimensions from the South Korean central government. As a result, in some cases, the measurement results among ministries differed sharply depending on the ideological orientation of the administration, and in some cases, only the characteristics of the bureaucracy were reflected, regardless of the tendency of the administration. In particular, in terms of political/structural autonomy, there was a clear difference in the outcome of the regime in terms of distance indicators with the president. Roh Moo-hyun government than the Lee Myung-bak and Park Geun-hye from the government appears to be more frequent the president the authority of the shortest range. In the case of legislative autonomy, pure business relationship characteristics were best seen rather than the characteristics of each administration.

국문 초록 (Abstract)

이 연구는 노무현･이명박･박근혜 정부의 129개 부처를 대상으로 관료적 자율성, 즉 정치적/구조적 자율성, 재정적 자율성, 입법적 자율성을 객관적으로 측정하고 비교분석하였다. 분석결과, 정권의 성향에 따라 부처 간 특성 차이가 분명하게 나타난 것도 있었고, 정권 성향과 무관하게 관료제 고유의 업무특성에 따른 차이가 드러난 경우도 있었다. 특히, 관료적 자율성의 세 가지 차원 가운데, 정치적/구조적 자율성 지표에서 정권별 차이가 뚜렷하게 나타났는데, 노무현 정부에 비해 이명박･박근혜 정부에서 권력기관들이 대통령과의 거리가 상대적으로 더 가까웠던 것으로 나타났다. 입법적 자율성 차원에서는 정권별 특성보다는 순수한 업무관계 특성이 가장 잘 드러났다. 이 논문의 기여 점은 노무현･이명박･박근혜 정부의 각 특성과 관료제 일반의 업무특성 등에 기인한 일반의 상식을 구체적 수치로 확인시켜주고, 세 시기 자료를 펼쳐 보여줌으로써 시계열적인 분석과 논의를 (구체적인 데이터를 가지고) 함께 전개할 수 있다는 데 있다. 다만 개념상의 한계, 지표의 문제, 분석대상 정부의 한계 등의 문제는 여전히 향후 과제로 남는다.

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