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정부의 질과 관료제의 합리성: 관료제 이념형 구성의 기본단위인 ‘공직’ 개념을 중심으로

Quality of government and the rationality of bureaucracy: Centered on the concept of gong-jik, which is the basic unit of analysis of 'the ideal-type bureaucracy'

윤견수
정부학연구소 (Institute of Governmental Studies)|2011.12|정부학연구 (Journal of Governmental Studies(JGS))|제17권 제3호|pp. 19-48

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참고문헌

키워드

관료제공직bureaucracy정부의 질quality of governmentgong-jik
주제분류행정학

초록

이 논문은 각 나라의 정부의 질을 비교하려면 정부관료제의 질을 경험적으로 확인해야 하며, 정부관료제의 질은 막스베버가 제시한 관료제 이념형의 속성들을 기준으로 평가할수 있다는 가정에서 시작되었다. 관료제 이념형을 탐색하는 과정에서 이 논문이 강조한 내용은 두가지다. 첫째, 관료제 이념형을 기준점으로 볼 때 현실의 관료제는 아직까지 그 기준점에 도달하지 못했거나, 이미 그 기준점을 넘어선 두 가지 상황 가운데 어느 한 영역에 속할 것이라는 점이다. 이 논문에서는 앞의 상황을 과소관료제 상황, 뒤의 경우를 과잉관료라고 정의하였고 이것이 기반이 되어야만 현실의 관료제의 질을 논의할 수 있다고 보았다. 둘째는 관료제 이념형을 구성하는 기본 분석단위는 조직도 아니고, 그 안에서 일을 하는 개인도 아니라는 점이다. 베버는 특정의 일이나 기능을 수행할 수 있는 권한과 그것을 행사하는데 따르는 책임을 규정한 ‘직책’이나 ‘공직’을 관료제를 구성하는 기본 분석단위로 설정하였다. 이럴 경우 공직이란 사적인 이해관계나 사적인 감정에서 벗어난 공간으로서의 의미를 갖는다. 이상 두가지 논의를 토대로 공직자의 생애주기라는 관점을 끌어들여와 정부관료제의 질을 평가할 수 있는 기준들을 제시한 것이 이 논문의 가치다.

Abstract

The object of this study is to revisit and reconstruct the value of Weber's ideal-type bureaucracy. This study assumes the dimensions of ideal type could be used as tools for comparing and measuring the quality of government. Analyses say the ideal-type can provide judgmental anchor by which the degree of bureaucratization is measured. The idea-type decides whether a government bureaucracy is under-bureaucratized or over-bureaucratized. Analyses also say the unit of analysis of the ideal-type bureaucracy is neither an organization nor an individual within it. Rather it is a bureau that has a classical meaning of an desk or an office. Bureau is a public place where personal belongings or emotions are excluded. The role or position of the bureau, which is the basic unit of analysis of the ideal-type bureaucracy, is named gong-jik in this paper. Gong-jik has many dimensions such as merit principle, hierarchy of authority, rule of law, formalism, and so on. The important point is that each dimension is a double-edged sword. Ideal-type would be a lighthouse to navigate toward for the government which is under-bureaucratized, and a starting point that goes back to for the country that is over-bureaucratized.

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