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공공가치 창출론과 민주주의: Moore의 정치적 관리를 중심으로

Public Value Creation and Democracy: Focused on Moore’s Political Management

김명환
한국행정연구원 (The Korea Institute of Public Administration)|2023.09|한국행정연구 (The Korean Journal of Public Administration)|제32권 제3호|pp. 67-96|DOI 10.22897/kipajn.2023.32.3.003

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참고문헌

키워드

민주주의정당성공론장the publicdemocracydeliberative democracypublic spherelegitimacy숙의 민주주의숙의deliberation공공가치 창출정치적 관리공공권한 부여 환경전략적 삼각형public value creationpolitical managementauthorizing environmentstrategic triangle
주제분류행정학

초록

이 글은 Moore의 공공가치 창출론에서 ‘정치적 관리’ 개념이 선출직 공무원의 임명직 공무원으로의 대체를 통해 궁극적으로 민주주의를 훼손한다는 Rhodes와 Wanna의 주장에 대한 반론을 통해 정치적 관리의 이론적 정당화를 시도하였다. 이를 위해, 먼저 이 글은 Moore가 왜 공공가치 창출과 그에 수반한 정치적 관리를 주장하게 되었고 그 내용은 무엇인지에 대해 살펴보았다. 이어서 이 글은 Moore의 정치적 관리와 관련하여 Rhodes와 Wanna와 Alford 간 벌어진 논쟁을 권한 부여 환경과 운영에서의 정치의 분리, 공공관리자의 우월적 지위, 플라톤식 수호자로서의 공공관리자의 역할 등 세 가지 차원에서 검토하였다. 이러한 검토를 바탕으로 이 글은 Moore의 정치적 관리의 의의와 오해 및 한계에 대해 논의하였다. 이를 통해, 이 글은 정치적 관리가 어떤 방향에서 무엇을 토대로 어떤 내용으로 보완되어야 하는가에 관해 논하였다. 특히, 이 글은 정치적 관리의 정당성을 이론화하기 위해 숙의 민주제를 토대로 정치적 관리의 정당성 원천으로서의 공공, 숙의 공간으로서 공론장, 정치적 관리의 정당성 담보 기제로서의 숙의 등을 제시하였다.

Abstract

This article aims at theoretically justifying political management through a rebuttal to Rhodes and Wanna’s argument that the concept of ‘political management’ in Moore’s theory of public value creation ultimately undermines democracy through the replacement of elected officials with appointed officials. To this end, the paper first examines why Moore argued for the creation of public value and the political management that accompanies it, and what the content is. It then examines the debate between Rhodes and Wanna and Alford regarding Moore’s political management at three levels: the separation of politics from the empowering environment and operations, the superior status of public managers, and the role of public managers as Platonic guardians. Based on this review, it discusses the significance, misunderstandings, and limitations of Moore’s political management. Through this, it discusses in what direction, on what basis, and with what content, political management should be supplemented. In particular, in order to theorize the legitimacy of political management, it presents the public as a source of legitimacy for political management, the public sphere as a deliberation space, and deliberation as a mechanism to ensure the legitimacy of political management based on deliberative democracy.

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