누가 관료제의 주인인가?

Abstract

This article reviews theoretical arguments on the bureaucracy’s con-stitutional masters. Many scholars would instantly recall the president as themaster of the bureaucracy, but the question of “who is the master of the bureau-cracy?” is not a question to find a quick answer because bureaucrats in practicehave to live with multiple masters. As scholars of public administration, we needto delve into the question further, because the answer to the question will revealnormative foundations for the bureaucrats who have to live with not just thepresident but the legislative as well as the judicial branch of the government.Explored in this article are three different groups of theories: 1) theory of asingle master, which suggests only one master of the bureaucracy existsbe itthe president, Congress, or the Courts; 2) theory of bureaucratic autonomy,which claim the bureaucracy does not have any master; 3) theory of multiplemasters, which maintain that there are many masters of bureaucracy.