관료적 자율성의 효과 분석: 한국 중앙행정기관 실증분석
An Analysis on the effects of Bureaucratic Autonomy: Focusing on Korean Central Adminstration Agencies
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초록
이 연구는 관료적 자율성의 이중 효과를 한국의 중앙행정기관을 대상으로 실증해보는데 목적이 있다. 3가지 독립변수(정치적/구조적 자율성, 재정적 자율성, 입법적 자율성)와 2가지 종속변수(결과적 가치, 과정적 가치)를 설정하고, 노무현･이명박･박근혜정부 129개 중앙행정기관을 대상으로 회귀분석을 실시하였다. 분석결과, 3가지 독립변수는 통계적으로 유의미하지 않은 것으로 나타났지만, 모형에 따라 일부 변수는 통계적으로 유의미한 것으로 나타났다. 비록 이 분석결과가 다양한 이론적 논의에 대한정치한 가설 검정에까지 이르지는 못하였으나, 인과관계의 통계적 개연성 측면에서는의미 있는 분석결과 및 해석이 가능했고, 몇몇 변수들에서는 책임성 딜레마와 관련된단면을 살펴볼 수 있는 단초들이 제공되었다. 즉, 관료적 자율성은 경직적인 관료조직을 탈피한, 보다 유연하고 혁신적인 조직으로의 변화에 도움이 될 수 있는 동시에, 정부조직에서 특히 중요하게 여겨지는 과정적 가치를 훼손할 수 있는 위험성도 지녔음을 알려준다. 다만, 데이터, 지표, 시점 등의 문제로 인해 일정 수준의 개연성 정도만확인하는 데 그쳤기 때문에, 보다 나은 학문적 성취는 후속연구과제로 남는다.
Abstract
Bureaucratic autonomy is a topic in public management empirically understudied contrast with the abundance of its theoretical arguments. The purpose of this study is to fill the gap to a large extent by analyzing bureaucratic autonomy and its impact on organizational performance and probity. This study operationalized the abstract and multi-dimensional concept, bureaucratic autonomy, into measurable variables and indices. 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. We provide objective measures of these autonomy dimensions adopting data derived from the South Korean central government agencies. Interestingly, the results of this research provide some evidence that bureaucratic autonomy is somewhat conducive to both performance and probity in government agencies in Korea. The findings imply that the “let the managers manage” notion of managerialism from New Public Management movement has some merits in that bureaucratic autonomy is positively related to the degree of performance. Simultaneously, the findings also demonstrate that there is a bit of truth in the traditional belief that as bureaucratic autonomy increases, bureaucratic probity may get worse. Overall, the key implication of this research is that bureaucratic autonomy is closely related to the trade-offs in administrative values in public management. Therefore, decision on the design of bureaucratic autonomy should be a political decision, rather than a managerial one.
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