地方自治團體 經營行政體制의 發展方案에 관한 硏究 : 財政運營的 側面을 中心으로 = (A) Study on the Development of Management-Oriented Administrative System in Local Autonomy Authority : with special reference to the side of local finance
저자
발행사항
서울 : 東國大學校 大學院, 1999
학위논문사항
학위논문(박사)-- 동국대학교 대학원: 행정학과 2000. 2
발행연도
1999
작성언어
한국어
주제어
KDC
359.01 판사항(4)
발행국(도시)
서울
형태사항
ⅵ, 245, xp. : 삽도 ; 26cm.
일반주기명
참고문헌: p. 225-238
소장기관
1. Introduction
For as long as anyone cares to remember, we have been mired in a debate over the allocation of resources between the so called private and public sectors. Whether it is capitalism versus communism, privatization versus nationalization, or the markets of business versus the controls of government, the arguments have always pitted private, independent forces against public, collective ones. It is time we recognized how limited that dichotomy really is.
Recently We meet the radical changes in local autonomous environment around Local Autonomy Authority. It is evident that these changes will be a factor to increase residents' administrative needs, furthermore to expand Local Autonomy Authority's functions. As a result, the main task of Local Autonomy Authority is the strengthening of competition power for the responsiveness of the increasing administrative needs and functions. Now, each Local Autonomy Authority is trying to find business which are suitable for the characteristics of their districts to promote welfare of local residents, to achieve the balanced development of district, and to increase local finance. The Management-oriented Administration of Local Autonomy Authority is something grafted with traditional public administration and the merits of private management in order to provide high-quality administrative services by utilizing the limited sources efficiently. This idea applies economic principle, "minimum input, maximum output", to public administration and is based on an entrepreneur's management mind set.
The utilization of the Management-oriented Administration is still the primitive stage in korean Local Autonomy Authority, and the integrated and systematic researches on the Management-oriented Administration is very few.
From this perspective, the first chap. dealt with the objective and method of this thesis. This thesis analyzed the theoretical and practical validity of the Management-oriented Administrative System. So this thesis purports to figure out the problems related to the Management-oriented Administration running by the Local Autonomy Authority currently, and suggest the desirable directions for improving the Management-oriented Administrative System of Local Autonomy Authority. The scope of time in this thesis is from 1995 to 1999, and the scope of spaces are Seoul city and Chung Nam province.
2. Theoretical Background of The Management-Oriented Administration
The second chap. dealt with the environment change in the Local Administration and the Necessity of the Management-oriented Administration. And this chap. dealt with the definition, necessity, forms, and application standard and scope of the Management-oriented Administration. The appearance background of the Management-oriented administration is as follows. ⅰ) The Weakness of Local Finance, ⅱ) The Theory of Limit of Public Sector, ⅲ) The Theory of Growth of Private Sector. Then I investigated and compared the Management-oriented Administrative cases of America, England, and New Zealand as a detailed research subject.
3. The Case Analysis of The Management-Oriented Administration
Under the theoretical background, I analyzed the Management-oriented Administration of Seoul city and Chung Nam province - focused on the main policy and etc as follows; 1) the side of Entrepreneur's Management Mind-oriented Administrative System, 2) the side of Result-oriented Administrative System, 3) the side of Customer-oriented Administrative System. It was after elected governors inaugurated 1st July in 1995 that Local Autonomy Authorities started a real Management-oriented Administration. When I look around the examples as such of Local Autonomy Authorities like Seoul city and Chung Nam province and their basic unit of Local Autonomy Authorities, I can find local citizen's good 'response to empowerment in administrative and managerial ability, improvement of local development & social welfare. On the contrary there have appeared 'some problems such as waste of local finance, invasion of private economic areas, Local Autonomy Authorities in conflict with its citizen, and the environmental destruction etc. Therefore among those problems our prime concern emerges. We have to devise a proper measure to solve the problems caused in Management-oriented Administrating Process, and to enforce a proper strategies suitable for the reality of each Local Autonomy Authorities.
4. Survey Research
The purpose of this chap. is to collect and analyze the 'objective data' and 'subjective data' mainly based on the local officials', councillors', residents' recognitions, focusing on the actual state of operations of Local Autonomy Authorities, among the various aspects related to the Management-oriented Administrative Systems in Korea, and to make contributions to meeting various new administrative needs, solving the problems related to the local autonomy systems and suggesting the alternatives.
The followings are the problems I found in chap. 3 & 4 of this thesis.
First, the problems of the side of Entrepreneur's Management Mind-oriented Administrative System is as follows; ① the insufficiency of local autonomous power, ② the insufficiency of the capacity of policy decision making in executive bodies, ③ the lack of local officials' enthusiasm and management mind, ④ the lack of management ability of local officials in running and managing the Management-oriented Administration.
Second, the problems of the side of Result-oriented Administrative System is as follows; ① inefficient operation of the profit-oriented public project(The problems in the profit-oriented public projects might be mainly divided into three parts: - the problems related to the selection of areas for the projects; - the problems in planning stage for the projects; and - the problems in the management of the projects), ② too much tendency about the profit-oriented public project than privatization and contracting out, ③ the problems of the budget compilation, ④ unsettlement of long-term or mid-term financial planning.
Third, the problems of the side of Customer-oriented Administrative System is as follows; ① the problems of privatization or the third sector, ② the insufficiency of the residents' participation.
5. The Alternatives for Developing Direction of The Management-Oriented Administration
This thesis presents structural reforming of Local Autonomy Authority, establishing a customer-oriented civil service system, and building an effective Local Autonomy System and tasks to innovation for change of public officer's attitude and reform of public management.
A desirable orientation of Local Autonomy Authority's Management-oriented Administration should be configured to help to improve social welfare, local development, financial ability and the efficiency of administration. To achieve those goals, we need the enforcement strategy as follows.
First, the alternatives of the side of Entrepreneur's Management Mind-oriented Administrative System is as follows; ① strengthening of local autonomous power, ② strengthening of the policy decision making capacity of Local Autonomy Authority, ③ the improvement in organization and manpower management type, ⑥ enhancing of servant's professional capacity, ⑦ formulation of the Management-oriented Administration Bodies.
I should introduce an entrepreneurship into the realm of economic and financial task in the Local Autonomy Authority. To harvest the desired outcome by settling down Management-oriented Administration of Local Autonomy Authorities, they should recognize the exact aim of Management-oriented Administration as mentioned above and try to introduce an enforcing strategy suitable. for local reality and its citizen's desire. Activities can be entrusted to autonomous professional managers held responsible for performance. "Let the managers manage", people say. Many have great faith in managers trained in the so called profession of management. "Make them accountable. If they perform according to plan, as indicated by measurement, reward them. If they don't, replace them."
Second, the alternatives of the side of Result-oriented Administrative System is as follows; ① efficient operation of the profit-oriented public project ② settlement of long-term or mid-term financial planning, ③ the strengthening of its functions through the structural conversion of local expenditure, ④ improvement of the budget compilation system, ⑤ introductions of Expenditure Control Budget and Capital Budget, ⑥ improvement of account system. ⑦ development of performance measurement program, ⑧ introduction of servant incentive system.
Performance can be fully and properly evaluated by objective measures. The goals that each activity must achieve can be expressed in quantitative terms : Both costs and benefits can be measured. That way, there can be "objective" assessment, which is a political in a nature. The system cannot afford a great deal of distracting ambiguity or nuance. We should make out an exact mid & long term financial management plan and make this plan go in organic accordance with its enforcement. Also we need to introduce the merits of expenditure rationally and make out a reasonable budget plan.
Third, the alternatives of the side of Customer-oriented Administrative System is as follows; ① activation of privatization and the third sector and contracting out, ② enlargement of local public enterprise scope, ③ activation of the residents' participation, ④ development of supply skills of residents-oriented services.
Customer-oriented Administration Service is a core part in Management-oriented Administration. All public institutes introduce customer satisfaction systems as civil service ways like private firms which concentrate their businesses to make profits. Thus, customer satisfaction is actualized for civil services that create common profits.
6. Conclusion
In conclusion, the Management-oriented Administration System has sufficient value as policy means for enlargement of Local Autonomy Authority revenue and Regional Development.
Management-oriented Administration means that it is a new way to effective local management of Local Autonomy Authority. The actual necessity of the Management-oriented Administration reflects Local Autonomy Authority' self demands which introduce and operate innovative management method to usual Local Autonomy Authority Management. These are for innovation of Local Autonomy Authority management, improvement of financial independence, consideration of public services, increase of local competitive power, and improvement of quality. Therefore, Local Autonomy Authority System is operated successfully to aim efficiency, good output, quality, and innovation. Management-oriented Administration, however, has its real value to achieve Local Autonomy Authority Management's original meaning which is a qualification or a methodology. This is because if it is emphasized excessively, there will be infringed people's rights. This also originates a basic collision between profit inclination of private firms and public benefits of public administration.
Although this thesis suffers its diverse limitations, it points out the present problems of the Management-oriented Administration of Local Autonomy Authority in Korea, and suggests the desirable directions for improving the Management-oriented Administration System. Thus, this thesis is expected to make an important contribution to the development of future Local Autonomy System, and especially the efficient the Management-oriented Administration of Local Autonomy Authority in Korea.
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