地方自治制의 內部組織과 政策決定過程 = Local Policymaking Process and Committee Structure
저자
宋文永 (水原大學校 法政大學 法學科)
발행기관
학술지명
권호사항
발행연도
1990
작성언어
Korean
KDC
300.000
자료형태
학술저널
수록면
85-104(20쪽)
제공처
소장기관
The main issues involved in the organisation of local authorities are essentially the same as those in any large organisation : they concern division and integration inside the authority. How should the many functions of the local authority be divided into manageable tasks? How should these various tasks be brought together in order to ensure that there is unity of purpose in the overall work of the authority? The former question is about differenciation and the latter about integration.
The main features of a local authority organisation are committees and departments, which reflect the division of labour between elected members and officers, respectively. Committees may be divided into subcommittees and still further into panels. The division of labour inside a local authority can be either vertical or horizontal. The former applies where a specific service sector forms the basis of the division : police, education, health, housing, etc., and the latter where the division is based on an activity that embraces the whole of the local authority : staffing, finance, land use.
The two major problems of internal organisation should be taken into consideration. One is the fragmentation of the local authority's work. This is true for both officers and members, the former through excessive departmentalism and the latter because of the excessive number of committees in most authorities. The results are that too much time was spent on trivial matters and too little effort is made in planning the overall needs of the local area. Another is the failure to delegate non-controversial matters to paid officers.
We have proposed a solution to the problems of local authority management. This model favours a much more clear-cut relationship between councillors and officers in local government, where the councilors would be responsible for deciding broad policy matters, but would leave the dotails and the implementation of schemes to officers. This model is also intended to promote better integration of work on both member and officer sides of the authority. This could be achieved by the creation of a menagement board and the appointment of a chief officer who would act as the general manager of the authority.
Unlike this model, our second model stresses the duality of local government. It was a partnership between member and officer and neither should regard any aspect of local authority work as their exclusive work. The central concern of the model is the need to improve integration and coordination across the range of the authority's activities. The integration could be achieved through the establishment of a central co-ordinating team on both member and officer sides: the policy and resources committee on the member's side, the management teams, a chief execntive on the officer side. The former's role is to assist the formulation and carrying out of the overall plan for the community and to aid the authority in setting objectives and priorities, co-ordinating and controlling its implementation and monitoring and reviewing performance. The latter's role is to provide leadership and co-ordination on the officer side of the council.
Finally, according to our councillor/officer relationships model, the decisionmaking/scheme implementation process is divided into three sections, although in reality these stages will fuse into a continuous process. At stage Ⅰ, key decisions are taken about objectives, priorties and, therefore, where resources are allocated. At this stage, the main responsibillty belongs to the councillor, although even at this juncture the officer is not entirely excluded. At stage Ⅱ, options and design of programmes might be presented alongside the cost-benefit of the various alternatives. This means the greater involvement of officers in the decisionmaking process. At stage Ⅲ, as the decision reaches its implementation, the involvement of officials becomes greater, but even ar this late stage, councillors might still make a contribution. As we can see, therefore, at every stage both officers and councillors are involved. Our relationships model is based upon the time variable, the nature of the issue and the other variables.
The raison d'e^tre of the democratic local government should found on the government of the people, by the people and for the people. In order to be compatible with this rule, The policymaking/implementation function process should be managed.
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