초판발행 2021. 02.  01

제2판발행 2026. 5. 15

서 문

행정학을 공부하는 학부 학생 중심으로 원론적인 이론을 가르칠 교재용으로 『K행정학』 초판이 출간된 지도 어언 5년이라는 세월이 지나가고 있다. 전공 심화 과목이 아닌 원론 성격의 교재를 이 정도의 시간을 두고 개정 또는 수정판을 발간하는 일은 정상적이다. 그러나 2020년대 초반에, 특히 인공지능(AI) 전환인 AX의 개념으로 대표되는 디지털 기술과 응용이라는 커다란 사회적 변화나 변동을 온 세계는 경험하고 있다. 이에 따라서 행정학의 전통적인 이론의 효용성이나 대학의 강단에서 행정학을 가르치는 방법이나 내용도 큰 변화를 강요받고 있다. 더불어 행정학자 스스로나 교육을 담당하는 분들도 자발적으로 이와 같은 대변동을 수용하고 있기도 하다. 그래서 개정2판이 아무래도 좀 늦은감이 있는 것도 사실이다. 아마 독자 편에서도 개정판이 더욱 필요했을 것으로 여겨진다.

정부를 중심으로 하는 공공분야에서 조직이나 인원, 예산 및 의사결정이라는 관리 중심의 이론 개발이나 이것을 행정현장에 적용하고 실천하는 실천성에 초점을 둔 전통적인 행정학이, 특히 한국의 행정현실에 여전히 유용하다는 사실을 행정학계뿐만 아니라 인근 사회과학도 인정하고 있다. 그런데도 AX의 문명사적인 사회변동이 인간의 창의성과 존재감, 자존감, 개인정보 및 안전성 등의 원칙을 정합할 수 있어야 한다는 인간 중심의 AX, 즉 HX(인간중심 전환: human transformation) 사상이 대두되면서 전통적인 행정학의 이론과 교육 방법이 이와 같은 변화와 변동을 어떻게 수용할 것인가 하는 것이 행정학계의 화두로 등장하고 있다. 즉 지난 20세기 중후반부터 공공분야 관리학의 대명사 격인 행정학이 AX와 HX 시대에도 계속해서 학문적이고 실천적인 적합성을 이어갈 것인가 하는 것이다.

『K행정학』 저자들은 이와 같은 문제점을 깊이 있게 성찰하면서 제2판을 준비하여 행정학계에 선보이고자 했다. 아직 사회문명사적으로 디지털 기술과 응용이 전환을 겪고 있지만 제2판의 저자들은 더 이상 머뭇거릴 여유가 없다는 절박한 심정으로 행정학의 교과서를 수정하거나 개정하지 아니할 수 없다는 사실을 깊이 공감하고 제2판을 준비했다는 점을 서문에서 밝히고자 한다.

초판과 같이 행정학의 기초이론(제1장)이나 행정조직론(제3장), 인사행정론(제4장), 재무행정론(제5장), 지방행정론(제7장), 행정책임과 통제(제10장) 등은 변화된 행정법령이나 역사, 이론변천 등을 참조하면서 소폭으로 수정되었지만, 제2장의 인공지능(AI)행정론은 본 교과서의 핵심 내용으로 제1판에서 다루지 아니했던 분야를 처음으로 소개하고 있다. 특히 인공지능 행정의 기술적, 조직적, 제도적, 환경적 동인을 설명하면서 이에 따라서 AI행정의 행정적 · 정치사회적 효과와 윤리 문제도 자세히 설명하여 제2장이 『K행정학』제2판의 백미라고 할 수 있다.

이에 더하여 제2판 제6장의 정책이론은 전통적인 정책과정 중심으로 정책이론을 설명하면서 여기에 더하여 AI시대의 정책의 활용, 그의 위험성과 대응성 등도 추가해서 설명하고 있다. 이와 같은 정책이론은 국가의 정책결정과 집행 및 평가분야 등에서 AI 기반 정책실무에 크게 이바지할 것으로 여겨진다.

『K행정학』제2판의 세 번째 특징으로 제9장의 문화행정론이 새롭게 등장하고 있다는 점이다. AX와 HX의 중심에 있는 인간이 살아가는 모습들인 문화의 개념, 공권력 작용의 주체인 국가와의 관계, 국가개입주의 원칙, 특히 한국문화의 우수성과 대중성이 지구촌 사회에서 큰 반향을 불러오고 있는 K-문화와 이것을 행정이론으로 설명하는 문화행정이론이 행정학의 중심이론으로 자리 잡아가고 있는 사실을 자세히 설명하고 있다.

초판 때부터 지금까지 『K행정학』저자들은 급격히 변화하는 행정환경에 따라서 끊임없이 『K행정학』을 수정하고 개정해서 행정학의 이론 발달과 교육에 온 힘을 기울이고 있다는 사실을 독자들에게 전하고자 한다. 물론 독자들의 비판이나 조언도 항상 수용하면서 『K행정학』교과서를 발전시키고자 한다. 마지막으로 최근의 경기변동과 물가상승 등의 출판시장의 어려움에도 불구하고 『K행정학』제2판을 출간해 주신 박영사 회장님과 임직원 여러분들에게 깊은 감사의 말씀도 드린다.

2026년 4월

집필발기인 대표 이 해 영 씀

저자 약력

김동신

행정학 박사

대구대학교 행정학과 부교수

한국행정학회 외 다수 학회 이사

김준형

행정학 박사

국립순천대학교 행정학전공 교수

한국거버넌스학회 연구위원장(2025)

행정안전부 공공데이터 및 데이터기반행정 평가단 위원(2025)

김태운

도시계획학 박사

경북대학교 행정학부 교수

제2회 지방고등고시 합격(1996)

한국정부학회장, 행정안전부 정책자문위원

5급공채시험 및 입법고시위원 역임

송건섭

행정학 박사

대구대학교 행정학과 교수

행정고시출제위원(2020)

한국정부학회 회장(2021)

오선정

사회과학(정책학) 박사

전남대학교 행정학과 조교수

한국거버넌스학회 총무위원장(2025)

이시철

도시계획학 박사

경북대 교학부총장/행정학부 교수

제31회 행정고시 합격

한국정부학회장, 인사혁신처 정책자문위원, 대구광역시 인사위원 역임

이윤석

행정학 박사, 정책학 박사

계명대학교 행정학과 교수

게이오대학교 법학부 교수, 대통령직속 저출산고령사회위원(장관급) 및 정책기획위원(차관급)

이준호

공공관리학 박사

동국대학교 WISE캠퍼스 행정･경찰공공학부 교수

한국행정학회 이사

한국정부학회 편집부위원장 역임

정준호

행정학 박사

전북대학교 행정학과 교수

정부업무평가위원회 전문가 평가위원, 문화영향평가 전문가위원회 위원

한국자치행정학회 회장(2025-2026)

황성수

행정학 박사

영남대학교 행정학과 교수

지역정보화학회 회장(2021)

차 례

제1장 행정학의 기초

제1절 행정과 행정시스템  4

1. 행정이란 무엇인가?  4

1) 공공부문과 민간부문, 그리고 제3섹터 _ 4

2) 공공부문 관리의 필요성 _ 9

3) 행정의 개념과 특성 _ 14

2. 행정시스템 · 16

1) 행정환경 _ 18

2) 행정프로그램관리 _ 20

3) 행정자원관리 _ 21

제2절 행정의 가치 · 22

1. 행정가치의 의미  22

2. 행정가치의 종류  23

1) 법적 가치 _ 23

2) 정치 ․ 사회적 가치 _ 25

3) 행정관리적 가치 _ 28

4) 그 밖의 현대적 가치 _ 30

제3절 행정이론의 전개 30

1. 행정연구의 전통적 관점  31

1) 매디슨주의 관점 _ 31

2) 잭슨주의 관점 _ 31

3) 윌슨주의 관점 _ 32

4) 루즈벨트주의 관점 _ 34

2. 행정연구의 과학화와 정체성 위기 34

1) 행태이론 _ 34

2) 신행정학 _ 36

3) 공공선택이론 _ 37

3. 최근의 행정이론  39

1) 신공공관리론 _ 39

2) 뉴 거버런스론 _ 40

3) 공공가치론 _ 42

제2장 인공지능행정론

제1절 인공지능의 이해  48

1. 인공지능의 개념 ·········································································· 48

2. 인공지능의 작동 ·········································································· 49

3. 인공지능의 요소 ·········································································· 50

제2절 인공지능행정의 이해  53

1. 인공지능행정의 이론 ··································································· 53

1) 인공지능행정의 개념 _ 53

2) 인공지능행정의 유형 _ 54

2. 인공지능행정의 실제 ·································································· 57

1) 인공지능행정의 정책과정별 활용 _ 57

2) 인공지능행정의 공공업무별 활용 _ 58

제3절 인공지능행정의 동인  61

1. 기술적 동인 ·················································································· 61

2. 조직적 동인 ·················································································· 63

3. 제도적 동인 ·················································································· 64

4. 환경적 동인 ·················································································· 65

제4절 인공지능행정의 효과  67

1. 행정적 ․ 운영적 효과 ···································································· 67

2. 정치적 ․ 사회적 효과 ···································································· 69

3. 경제적 ․ 산업적 효과 ···································································· 71

제5절 인공지능행정의 윤리  73

1. 인공지능행정의 역효과 ······························································· 73

2. 인공지능행정의 윤리적 과제 ····················································· 77

제3장 행정조직론

제1절 조직과 조직이론  86

1. 조직의 의의 ·················································································· 86

2. 조직의 유형 ·················································································· 88

3. 조직의 환경 ·················································································· 89

4. 조직이론의 흐름 ·········································································· 90

1) 고전적 접근 _ 91

2) 인간관계론 _ 93

3) 시스템이론 _ 94

4) 상황적 접근 _ 94

제2절 조직의 미시적 차원  95

1. 개인특성 및 인간관 ···································································· 95

2. 동기부여이론 ················································································ 97

1) Abraham H. Maslow의 욕구계층제 모델 _ 97

2) Clayton Alderfer의 변형된 욕구계층제 _ 98

3) Frederick I. Herzberg의 2요인이론 _ 99

4) David McClelland의 성취동기이론 _ 100

5) Chris Argyris의 성숙-미성숙이론 _ 100

3. 집단과 리더십 ············································································ 102

1) 성격특성이론 _ 103

2) 리더의 행동이론 _ 103

3) 리더십의 상황이론 _ 106

4) 변혁적 리더십 이론 _ 107

4. 권력과 갈등관리 ········································································ 108

5. 의사전달 ······················································································ 111

제3절 조직의 거시적 차원  111

1. 조직구조의 요소와 유형 ··························································· 111

1) 집권과 분권 _ 112

2) 계선과 참모 _ 113

3) 공식조직과 비공식조직 _ 114

4) 위원회 조직 _ 115

5) 동태적인 조직 _ 115

2. 조직의 목표와 효과성 ······························································ 117

3. 조직문화와 조직혁신 ································································ 118

제4절 관료제와 포스트 관료제  121

1. 관료제의 관리 및 원리 ····························································· 121

1) 계층제의 원리 _ 122

2) 통솔범위의 원리 _ 122

3) 명령통일의 원리 _ 122

4) 분업 ․ 전문화의 원리 _ 123

5) 조정의 원리 _ 123

2. 초기 관료제론 ············································································ 123

3. 포스트 관료제론 ········································································ 126

제4장 인사행정론

제1절 인사행정의 의의와 특성  134

제2절 인사행정의 체계와 제도  137

1. 우리나라 인사행정의 법적 기반 ············································· 137

2. 중앙 및 지방의 인사행정기관 ················································· 139

3. 한국의 공무원, 규모와 유형 ···················································· 140

제3절 인사행정의 기본 가치와 공직유형 · 142

1. 엽관제와 실적제 ········································································ 142

2. 대표관료제와 현대적 변용 ······················································· 146

3. 직업공무원제 ·············································································· 149

4. 계급제와 직위분류제 ································································ 151

제4절 인사행정의 과정  152

1. 인적자원의 확보: 모집, 신규 채용 ········································· 152

2. 공무원 채용시험 ········································································ 155

3. 내부임용 ····················································································· 157

4. 능력발전과 교육훈련 ································································ 160

5. 공무원에 대한 평가 ································································ 162

6. 보상 체계: 보수, 연금 ······························································ 164

1) 공무원의 보수 _ 165

2) 공무원 연금 _ 168

제5절 공무원의 책임과 노동조합  170

1. 책임 체계: 규범, 징계, 구제 ··················································· 170

2. 공무원의 사회적 책임 확보를 위한 제도 ······························ 173

3. 공무원 노동조합 ········································································ 176

제5장 재무행정론

제1절 재무행정의 의의와 특성  184

1. 재정의 의의 ················································································ 184

2. 재정의 3대 기능 ········································································ 185

1) 자원의 효율적 배분 _ 185

2) 소득의 재분배 _ 187

3) 경제의 안정화 _ 188

제2절 예산의 개념과 원칙  189

1. 예산의 개념 ················································································ 189

1) 재정과 예산 _ 189

2) 회계연도 _ 190

2. 예산의 원칙 ················································································ 190

1) 사전 의결의 원칙 _ 190

2) 완전성의 원칙 _ 190

3) 한정성의 원칙 _ 192

4) 단일성의 원칙 _ 194

5) 통일성의 원칙 _ 194

6) 공개성의 원칙 _ 194

제3절 예산의 종류 · 195

1. 일반회계 예산과 특별회계 예산, 기금 ··································· 195

2. 예산의 총계 ․ 순계와 통합재정 ················································ 197

3. 예산의 구분과 과목 ·································································· 199

4. 예산의 분류 ················································································ 200

5. 조세지출과 조세지출예산 ························································· 201

제4절 예산의 불성립과 변경  202

1. 본예산 ·························································································· 202

2. 예산의 불성립 ············································································ 202

3. 예산의 변경 ················································································ 203

제5절 예산과정과 결산  204

1. 예산결정이론 ·············································································· 204

2. 예산 편성 ···················································································· 205

3. 예산 심의 ···················································································· 206

4. 예산 집행 ··················································································· 208

5. 결산과 감사 ················································································ 209

제6절 정부회계와 조세행정  211

1. 정부회계 ···················································································· 211

2. 조세 체계 ···················································································· 212

1) 국세와 지방세 _ 212

2) 직접세와 간접세 _ 212

3) 보통세와 목적세 _ 213

4) 종가세와 종량세 _ 213

제6장 정책이론

제1절 정책이론의 기초 개념  218

1. 정책의 의미와 필요성 ······························································· 218

1) 정책의 개념 _ 218

2) 정책의 분류 _ 218

3) 정책 참여자 _ 219

4) 정책 네트워크 _ 220

2. 정책과정 ····················································································· 221

제2절 정책의제 설정 222

1. 개념 ····························································································· 222

2. 정책의제 설정 모형 ·································································· 222

1) 외부주도모형 _ 223

2) 동원모형 _ 223

3) 내부접근모형 _ 223

3. 권력구조 이론 ············································································ 223

1) 엘리트론 _ 224

2) 다원주의론 _ 224

3) 무의사결정론 _ 224

4) 이익집단정치론 _ 225

제3절 정책결정 225

1. 개념 ····························································································· 225

2. 정책결정 이론 ············································································ 226

1) 합리모형 _ 226

2) 만족모형 _ 226

3) 점증주의모형 _ 227

4) 혼합탐사모형 _ 227

5) 최적모형 _ 228

6) 쓰레기통모형 _ 228

7) 엘리슨모형 _ 229

제4절 정책집행  229

1. 개념 ····························································································· 229

1) 고전적 정책집행의 관점 _ 229

2) 현대적 정책집행의 관점 _ 230

2. 정책집행의 접근방법 ································································ 231

1) 하향식 접근방법 _ 231

2) 상향식 접근방법 _ 231

3) 통합식 접근방법 _ 232

제5절 정책평가 233

1. 개념 ····························································································· 233

1) 정책평가의 기준 _ 233

2) 정책평가의 시기와 목적 _ 234

2. 정책평가의 방법 ········································································ 235

1) 질적 방법 _ 235

2) 양적 방법 _ 235

3) 요약 _ 236

제6절 AI 시대의 정책  237

1. 정책에서 AI의 활용 ··································································· 237

2. 정책에서 AI 활용의 위험성 ····················································· 237

3. AI의 위험성에 대한 대응책 ····················································· 238

제7장 지방행정론

제1절 지방자치의 기초 이론  244

1. 지방자치의 개념과 구성요소 ··················································· 244

1) 개념 _ 244

2) 지방자치의 구성요소 _ 245

2. 지방자치의 가치와 문제점 ······················································· 245

1) 지방자치의 가치 _ 245

2) 지방자치의 문제점 _ 246

제2절 지방자치단체와 자치권  247

1. 지방자치단체의 종류 및 계층 ················································· 247

1) 지방자치단체의 개념과 특성 _ 247

2) 지방자치단체의 종류 _ 248

3) 지방자치단체의 계층 _ 248

2. 지방 자치권 ················································································ 250

1) 의미 _ 250

2) 자치입법권 _ 251

3) 자치행정권 _ 251

3. 사무배분 ····················································································· 252

1) 지방자치단체의 사무 _ 252

2) 중앙과 지방 간의 사무배분 _ 253

제3절 주민참여 254

1. 주민참여의 개념 ········································································ 254

1) 주민참여의 의미 _ 254

2) 주민참여의 필요성 _ 255

3) 주민참여의 한계 _ 256

2. 주민참여제도 ·············································································· 256

1) 주민 협력적 참여수단 _ 256

2) 주민 감시적 참여수단 _ 257

3) 주민 권력적 참여수단 _ 257

제4절 지방의회와 집행기관  258

1. 지방자치단체의 기관구성 형태 ··············································· 258

1) 기관통합형 _ 258

2) 기관대립형 _ 259

2. 지방의회 ····················································································· 260

1) 지방의회의 지위와 권한 _ 260

2) 지방의원의 신분과 의무 _ 260

3) 지방의회의 조직과 운영 _ 261

3. 집행기관(지방자치단체장) ························································ 262

1) 집행기관의 의미 _ 262

2) 지방자치단체장의 권한 _ 262

3) 보조기관과 하부 기관 _ 263

4) 지방교육자치 _ 264

4. 지방의회와 집행기관에 대한 통제 ········································· 264

1) 의미 _ 264

2) 지방의회에 대한 통제 _ 265

3) 지방자치단체장에 대한 통제 _ 265

제5절 지방재정  266

1. 지방재정의 의미 ········································································ 266

1) 지방재정의 개념과 특징 _ 266

2) 재정분권 _ 267

2. 지방세와 세외수입 ···································································· 267

1) 지방세입의 의미 _ 267

2) 지방세 _ 268

3) 세외수입 _ 268

4) 지방채 _ 269

3. 정부간 재정조정제도 ································································ 269

1) 정부간 재정조정의 의미 _ 269

2) 지방교부세 _ 270

3) 국고보조금 _ 270

4. 지방정부 예산에의 주민참여 ··················································· 271

1) 재정 민주주의 _ 271

2) 주민참여 예산제도 _ 271

제6절 광역행정과 행정구역 개편  272

1. 광역행정 ······················································································ 272

1) 개념과 필요성 _ 272

2) 광역행정의 방법 _ 273

3) 광역행정의 한계 _ 273

2. 행정구역 개편 ············································································ 274

1) 행정구역 설정의 기준 _ 274

2) 행정구역 개편 방식과 사례 _ 275

제8장 디지털행정론

제1절 디지털 행정의 등장과 의의  280

1. 디지털 행정의 의미와 필요성 ················································· 280

2. 정보통신기술의 발전 ································································ 281

3. 행정환경의 변화와 정보통신정책 ··········································· 284

제2절 전자정부  285

1. 전자정부의 개념과 전자정부 평가(UN) ································· 285

2. 전자정부 성과와 행정혁신 ····················································· 287

3. 전자정부와 시민참여 ······························································ 291

제3절 디지털정부  293

1. 디지털 전환 ················································································ 293

2. 디지털정부로의 변화 ······························································ 294

3. 데이터 기반행정과 애자일 거버먼트(Agile Government) ···· 297

4. 미래정부의 모습 ······································································ 300

5. 인공지능정부의 등장 ································································ 302

제9장 문화행정론

제1절 문화의 개념 및 특성  310

1. 문화의 개념 ················································································ 310

2. 문화와 국가의 관계 ·································································· 311

3. 문화에 대한 국가 개입의 필요성 ··········································· 312

4. 문화행정의 한계와 기본 원칙 ················································· 313

제2절 문화행정조직의 유형 및 변천 315

1. 문화행정조직의 유형 ································································· 315

1) 독립부처형 _ 316

2) 분산부처형 _ 316

3) 통합부처형 _ 317

4) 부처 관할 위원회형 _ 317

5) 완전독립 위원회형 _ 318

2. 한국의 문화행정조직 ································································ 318

1) 문화체육관광부의 역사적 변천 _ 319

2) 국가유산청의 역사적 변천 _ 320

제3절 문화행정 관련 주요 법규 322

1. 문화예술진흥법과 문화의 공공성 ·········································· 322

2. 문화산업진흥기본법과 문화산업 관리 기능 ·························· 323

3. 문화기본법과 국민의 문화권 ··················································· 324

4. 지역문화진흥법과 문화행정의 분권화 ··································· 326

5. 국가유산기본법과 국가유산 관리 패러다임의 변화 ············· 327

제4절 K-문화 확산과 문화행정 327

1. 한국문화원: 문화외교의 거점 ·················································· 328

2. 세종학당: 한국어 교육의 중심 ················································ 328

3. 한국콘텐츠진흥원 해외 비즈니스센터

: 문화산업의 글로벌화 핵심 ···················································· 330

제10장 행정책임과 통제, 개혁

제1절 행정신뢰 336

1. 행정신뢰의 본질과 속성 ··························································· 336

2. 행정신뢰의 결정요인 ································································ 337

3. 행정윤리 ·················································································· 339

제2절 행정책임 340

1. 행정책임의 본질과 속성 ··························································· 340

2. 행정책임과 기준 ········································································ 341

제3절 부정부패와 행정통제 343

1. 부정부패의 의의 ········································································ 343

2. 부정부패의 통제 ········································································ 346

1) 법제도적인 통제 _ 346

2) 부패기회와 동기를 감소 _ 346

3) 부패이미지 개선 _ 347

3. 행정통제와 모형 ········································································ 349

1) 행정통제의 의의 _ 349

2) 행정통제의 모형 _ 350

4. 행정통제의 유형 ········································································ 353

제4절 행정개혁 355

1. 행정개혁과 특징 ········································································ 355

1) 행정개혁의 의의 _ 355

2) 행정개혁의 특징 _ 356

2. 행정개혁의 접근방법과 과정 ··················································· 358

3. 행정개혁의 저항과 극복방안 ··················································· 360

4. 주요국의 행정개혁 동향 ·························································· 361

1) 미국의 행정개혁 _ 361

2) 일본의 행정개혁 _ 362

5. 한국의 행정개혁과 과제 ··························································· 364

1) 행정개혁의 변천 _ 364

2) 행정개혁의 필요성 _ 367

3) 행정개혁의 방향과 혁신과제 _ 369

색인  379