우리나라 地方行政階層 調整에 관한 硏究 : 昌原市의 大洞制 導入成果를 中心으로 = (The)study on coordination of local administrative tiers in Korea

국문 초록 (Abstract)

본 연구는 우리나라 지방자치단체의 행정계층구조의 조정에 관한 것이다. 지방행정계층의 완화를 통하여 자치단체의 예산절감 효과를 실현하면서 지역주민의 행정서비스의 질적 수준은 유지하기 위한 것이라 할 수 있다.
이러한 연구목적을 달성하기 위하여 본 논문에서는 우리나라 최초로 창원시에서 실시하고 있는 대동제(大洞制)의 성과를 점검하였다. 창원시는 1997년 7월에 기존 24개 동을 12개의 대동으로 통합하고 폐지된 동사무소에는 민원센터를 설치하여 1차 행정서비스 기능을 담당토록 하는 대동제를 실시하였다.
본 논문의 연구결과 창원시의 대동제 실시의 잇점은 역량증대와 질 높은 서비스 제공 및 시정의 시정의 경쟁력 강화 및 효율성을 들 수 있다. 시정의 경쟁력과 효율성을 크게 증대시킨 것으로 나타났다. 구청제를 실시하지 않음으로 해서 400여명의 신규인력과 200여 억원의 예산 절감효과가 있었다. 그리고 24개 동의 수행사무를 12개 동에서 수행하므로 행정의 경쟁력이 증가되며, 잉여인력으로 시 본청의 기능을 보완하여 대통령령보다 114명 부족한 현실에서도 별도의 인력증원이 필요 없다는 것이다. 본 연구에서 활용한 창원시의 대동제 사례분석이 주는 시사점은 지방행정구역 및 계층구조의 개편방안은 주민들의 실질적인 생활권과 행정구역을 일치시키는 것을 대원칙으로 한다는 점과 제도의 시행에 따른 철저한 연구 및 준비작업의 필요성과 지역주민과의 합의의 중요성을 부각시킨 점이라 하겠다.
결론적으로 창원시 사례분석 결과에서 보듯이 지방행정구조의 조정은 단지 지방선거에 즈음하여 정치적으로 결정되기보다는 지속적이고 체계적인 조사와 전문적인 연구를 통해 합리적으로 결정되어야 한다는 점이다. 그리고 예산절감을 위한 중요한 방안의 하나가 바로 지방행정계층의 완화라는 사실을 실증적으로 보여주었다.

다국어 초록 (Multilingual Abstract)

The purpose of this study is to coordinate local administrative tires. The study is expected to help improve quality of public services for local residents and reduce local budget by easing local administrative structure.
For this purpose to be realized, this paper reviews performance of a Dae-dong system of Changwon city which is being implemented for the first time in Korea. The Dae-dong system means that unlike other cities where more than five hundred thousand citizens reside, Changwon city does not create another layer of administrative unit, Gu. Instead, they integrated small dongs and enlarge size and function of dongs. Changwon city replaced previous twenty four dongs with twelve in July, 1997. Then, they established civil service centers at the place of eliminated dong offices to provide primary public services.
The time scope of the study is from July, 1997, the beginning stage of the Dae-dong system, to March, 2000. To analyze the relationship between integration of dongs and customers' satisfaction, I conducted survey questionnaire for 500 local residents in Changwon City in March, 2000 and examined the degree of customers' satisfaction and the change of administrative needs of citizens since the Dae-dong system was set up.
The spatial scope lies in Changwon City, comparing such equivalent cities by size and function as Masan, Pohang, and Anyang. Indeed, comparative case studies with those of local governments in advanced countries were observed.
Literature Review and Empirical research implementing case studies and survey questionnaire were employed as a research methodology. Survey questions were conducted, targeting for both citizens of regions having been changed as civil service centers and remaining regions as dong. Survey questions were designed to know the degree of recognition, pro and con of the Dae-dong system, accessibility to dong offices and civil service centers, officials' attitude toward customers, business process way and speed, and officials' ability of business process to clarify citizens' satisfaction toward public services.
Based on the study result, it was found that the Dae-dong system could increase administrative capacity, provide high quality of public service, strengthen competitiveness and effectiveness of municipal affairs.
First, it could contribute to the integration of citizens and the increase of administrative capacity. By strengthening roles of dong offices, they could accelerate citizens' integration and play a central role in local community. Indeed, by using eliminated twelve dong offices as civil welfare centers, they could contribute to improving quality of life.
Second, they could provide high quality of public service. One Dae-dong could strengthen administrative capacity by increasing a number of officials from 17 to 30. As the functions of city hall are entrusted to Dae-dong offices, citizens don't have to visit city hall. In addition, if local budget increases, local development projects could be implemented more easily.
Third, it was found that competitiveness and effectiveness of city affairs greatly increased. Without introducing Gu office system, they could hire 400 new employers and reduce twenty billion won. Furthermore, because twelve dong offices could perform administrative operations which had been done by 24 dong offices, administrative competitiveness largely improved. There was no need of another increase of human resource despite the lack of 114 officials than presidential ordinance mandates.
The survey study shows that 40.8% favors the Dae-dong system, and only 13.2% opposes, which indicates that citizens are generally satisfied at the Dae-dong system which has been implemented for three years. Regarding citizens's satisfaction and accessibility when visiting dong offices (civil centers), there has been easy access to dong offices. Indeed, 49.8% respondents are satisfied at the business process ability by officials, whereas 28.4% complains it.
Finally, there is no difference of customers' satisfaction about a status of dong offices after the Dae-dong system was settled. This shows that there is no rationale that inconvenience at the region of eliminated dong offices will increase. Rather, the Dae-dong system has been successfully taken root and institutionalized.
The implication that the case study of the Dae-dong system in Changwon city shows is that there is an urgent need of universal principle that reforming of local government tiers and areas should be implemented in a way that meets a practical zone of life and administrative districts. Thorough study and preparation stage should be done in advance, and local consensus is another key factor for the successful implementation of institution.
Consequently, as the case study of Changwon city indicates, the coordination of local government structure should be made in a more rational way through continuous, systematic, and professional study rather than based on a political buzzword. Finally, this study empirically shows that one of best ways to reduce local budget is to reduce local government structures.

목차 (Table of Contents)

• 第1章 序論 = 1
• 第1節 硏究의 目的 = 1
• 第2節 硏究의 內容및 方法 = 6
• 1. 硏究의 內容 = 6
• 2. 硏究의 方法 = 8
• 第3節 硏究分析의 틀 = 11
• 第2章 地方行政階層調整과 洞의 規模에 대한 理論的考察 = 14
• 第1節 地方行政階層調整의 意義 = 15
• 1. 地方行政階層의 調整 = 15
• 2. 地方行政階層과 行政區域間의 關係 = 18
• 3. 地方行政構造의 分散과 統合 = 20
• 第2節 地方行政階層과 規模의 經濟 = 22
• 1. 地方行政階層에 대한 論議 = 22
• 2. 地方行政階層規模에 대한 理論的接近 = 28
• 第3節 地方行政階層의 適正規模와 現行實態 = 31
• 1. 地方行政階層上洞의 適正規模 = 31
• 2. 都市와 地方行政區域의 適正規模 = 32
• 3. 現行地方行政階層의 現況 = 44
• 4. 地方行政階層및 區域別統計的現況 = 49
• 第4節 地方行政階層調整의 效果 = 61
• 1. 地方行政階層調整의 意義 = 62
• 2. 地方行政階層調整의 肯定的成果要因 = 69
• 3. 地方行政階層調整의 否定的成果要因 = 71
• 4. 地方行政階層調整과 公共서비스 = 73
• 第3章 昌原市大洞制導入背景과 運營現況 = 74
• 第1節 昌原市大洞制의 導入背景 = 74
• 1. 昌原市行政區域의 變遷過程 = 74
• 2. 大洞制의 槪念및 必要性 = 75
• 第2節 昌原市大洞制의 實施過程 = 84
• 1. 大洞制推進過程 = 84
• 2. 大洞制實施現況 = 91
• 第3節 昌原市大洞制導入後의 行政實態 = 107
• 1. 大洞制의 實施效果 = 107
• 2. 大洞制導入에 따른 問題點의 解消 = 112
• 第4章 外國의 地方行政階層調整事例 = 116
• 第1節 英國의 地方行政階層調整事例 = 116
• 1. 英國의 行政階層變遷 = 116
• 2. 英國의 地方行政階層調整事例 = 120
• 第2節 프랑스의 地方行政階層調整事例 = 121
• 1. 프랑스의 地方行政階層變遷過程 = 121
• 2. 프랑스의 地方行政階層調整事例 = 122
• 第3節 日本의 地方行政階層調整事例 = 124
• 1. 日本의 地方行政階層變遷過程 = 124
• 2. 日本의 地方行政階層調整事例 = 126
• 第4節 各國의 地方行政階層調整事例比較分析 = 131
• 第5章 大洞制導入成果의 實證分析 = 132
• 第1節 大洞制의 成果分析을 위한 調査設計 = 132
• 1. 調査槪要 = 132
• 2. 設問項目의 開發 = 133
• 3. 設問配布및 回收 = 134
• 4. 設問紙의 틀 分析 = 136
• 第2節 地方行政階層調整에 대한 住民認識分析 = 138
• 1. 調査對象集團의 一般的特性 = 138
• 2. 地域住民의 大洞制認知度및 選好度 = 143
• 3. 洞事務所(民願센터 포함) 利用에 대한 住民滿足度 = 149
• 第3節 地方行政階層調整에 대한 費用效果分析 = 157
• 1. 洞(邑面포함)의 機能變化 = 157
• 2. 地方行政階層統合의 經濟的效率性 = 160
• 3. 地方行政階層統合의 經濟性比較分析 = 162
• 第6章 地方行政階層調整의 合理的方案 = 169
• 第1節 地方行政階層調整에 대한 分析結果 = 169
• 1. 地方行政階層統合의 推進成果 = 169
• 2. 地方行政階層統合의 評價結果 = 170
• 3. 地方行政階層제 調整에 대한 批判 = 173
• 第2節 地方行政階層統合의 合理的運營方案 = 178
• 1. 地方行政階層調整을 위한 原則 = 178
• 2. 地自體邑面洞의 機能轉換시 考慮事項 = 181
• 第7章 結論 = 188
• <參考文獻> = 191
• <設問紙> = 203
• = 208