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정부의 질과 시민사회: 비판적 검토와 지표 개발을 위한 시론

Quality of Government and Civil Society: A Critical Review of the Existing Literature and an Exploration into New Measures

김선혁
정부학연구소 (Institute of Governmental Studies)|2011.12|정부학연구 (Journal of Governmental Studies(JGS))|제17권 제3호|pp. 49-78

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민주주의거버넌스시민사회civil societydemocracygovernance정부의 질Quality of Government
주제분류행정학

초록

본 논문은 최근 서구 학계에서 큰 관심의 대상이 되고 있고 국내 학계에도 막 소개되기 시작한 ‘정부의 질(Quality of Government)’ 논의를 비판적으로 검토하고 정부의 질 연구가 각국 행정과 정책의 비교 분석틀로서 보다 유용하게 쓰이기 위해서는 시민사회와 관련된 지표들이 적극적으로 개발, 포함되어야 한다고 주장한다. 우선 정부의 질 논의의 지식사적 맥락을 살펴보기 위해 삶의 질, 사회의 질, 시민사회의 질, 거버넌스의 질(굿 거버넌스), 민주주의의 질 등 다양한 Quality학의 등장과 발전 과정을 살펴본다. 이어 현 단계 정부의 질 논의의 핵심내용을 정리한 후 그것이 선행 굿 거버넌스(Good Governance) 논의와 민주주의의 질(Quality of Democracy) 논의와의 차별성을 강조하려는 의욕이 지나쳐 시민사회와 관련된 요소들을 망실하는 愚를 범하였다고 분석한다. 이에 본 논문은 정부의 질 논의에 시민사회가 왜 포함되어야 하는가, 그리고 구체적으로 어떻게 포함될 수 있는가를 행정학의 다양한 주제 영역에서 탐색적으로 살펴본다. 결론적으로 현행 ‘정부의 질’ 논의가 보다 일반적인 비교 분석틀로 발전하기 위해서는 그것이 ‘시민사회 친화적인’ 논의로 전환되어 이론적으로는 굿 거버넌스론과 민주주의의 질 논의를 심화·확장시키고 정책적으로는 전 세계적으로 민주주의를 진작시키는 역할을 해야 한다는 점을 강조하면서 논의를 맺는다.

Abstract

This paper critically reviews the current literature on the “Quality of Government(QoG)" and proposes that, for the QoG literature to be more broadly used as a useful comparative framework, it is imperative to take civil society into serious consideration. The paper first probes the intellectual-historical background of the emergence and development of the QoG discussion, ‘reflecting on various quality-related literatures such as the ‘Quality of Life,' ‘Quality of Society,' ‘Quality of Civil Society,' ‘Quality of Governance (Good Governance),' and ‘Quality of Democracy.' Next, the paper observes that the QoG literature, out of its excessive zeal to differentiate itself from the preceding Good Governance and Quality of Democracy literatures, has erred in neglecting civil society-related variables. This paper therefore demonstrates why it is crucial to associate civil society with the quality of government and how we can effectively incorporate civil society-related variables into the discussion on the quality of government. In conclusion, the paper emphasizes that changing the current QoG into a more civil society-friendly QoG will deepen and expand the Good Governance and the Quality of Democracy literatures and will eventually contribute to the promotion of democracy worldwide.

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