문화행정의 공공성 가치충돌에 관한 실증연구

An Empirical Study on Public Value Conflict in Cultural Administration: Comparison and Analysis Based on Administrators, Planners, and Artists

본 연구는 행정인, 기획인, 예술인 집단으로 직무자를 나누어 문화행정의 공공성 우선가치 인식을 비교하였다. 이를 통해 자율성-책무성, 형평성-효율성 간의 2×2 가치매트릭스 위에서 집단별 당위와 현실에서 가치분배에 따른 유형화 분석을 진행하였다. 연구결과 자율성-책무성 우선 가치 비교는 현실에서 모든 집단이 책무성 요구가더 강하게 작동한다고 인식하였다. 당위적으로는 행정인, 기획인, 예술인으로 예산분배의 흐름에서 아래로 내려갈수록 책무성보다 자율성이 더 필요하다는 당위 가치선이 나타났다. 집단별 자율성-책무성 충돌에서 당위와 현실의 인지부조화의 크기는행정인, 기획인, 예술인 순으로 예산의 위계에서 하위로 갈수록 커지는 결과가 나왔다. 집단 간, 효율성-형평성 우선 가치 비교는 현실에서 모든 집단이 효율성 요구가더 강하게 작동한다고 인식하였다. 당위적으로는 예술인, 행정인, 기획인 순으로 형평성을 강조하였다. 집단별 효율성-형평성 충돌에서도 당위와 현실의 인지부조화의크기는 예산의 위계에 따른 행정인, 기획인, 예술인 순으로 커지는 결과를 나타냈다. 이를 바탕으로 집단별 당위-현실 간, 2×2 가치 매트릭스를 유형화하여 비교분석하였다. 당위적인 가치분배는 문화를 통한 공동체주의 가치추구형과 개인의 문화적 자유균등가치를 균형있게 추구하는 방향을 강조하였다. 하지만 현실에서는 공동체주의가치추구와 문화의 경제적 가치추구형을 강조한다고 인식하였다. 한국문화행정은 현실에서 자율보다 책무를 기반으로 관료통제를 통한 공동체주의 가치와 경제적 가치를강조하는 가치분배 압력이 작동하고 있음을 확인하였다. 본 연구는 문화행정 현장에서 이루어지는 가치분배를 위한 의사결정과 정책실행에 함의를 줄 수 있을 것이다.

This study empirically analyzed the value conflicts of cultural administration based on the needs of axiological discussions and the differences in intersubjectivity among the cultural administration groups and the contradicting attributes of culture and administration. The study classified the stakeholders into administrative staff, planners, and artists to compare their value priorities of publicness in cultural administration. A classification analysis was also conducted based on the normative by each group and the value distribution on a 2×2 value matrix between autonomy and accountability and fairness and efficiency. Based on the results of the quantitative study, the awareness of the relationships among the groups and cause and effects of value conflicts was analyzed through in-depth interviews. Thus, the study aimed to identify the directions for value distribution wherein the values of administration and culture can coexist and determine the implications of expanding this mutual understanding. The results revealed that in the conflict between autonomy and accountability, all groups had a greater awareness of accountability. In terms of normative aspects, it was possible to see a normative value line with an emphasis on autonomy, rather than on accountability from the lower stages on the budget hierarchy (administrators at the top, followed by planners and artists). In the conflict between autonomy and accountability, the size of dissonance between appropriateness and reality was the largest among the groups in the lower stages of the budget hierarchy, and became larger along the order of administrators, planners, and artists. In the conflict between efficiency and fairness, all groups had a greater awareness of efficiency . In terms of fairness in normative aspects, emphasis was placed on was artists, administrators, and planners, in that order. The size of dissonance between efficiency and fairness by groups became larger along the order of budget hierarchy—administrators, planners, and artists. Based on the results, the study compared and analyzed the 2×2 value matrix between the normative and actualities by groups. The normative value distribution emphasized Type 1 (accountability x fairness) as seeking communitarianism values through culture and Type 2 (autonomy x fairness) as seeking balanced values of cultural freedom of individualsonabalance. However, in actualities, although the communitarianism values of Type 1 were considered important, there were no distributions to the liberal values of Type 2, rather to the economic values of culture from Type 4 (accountability x efficiency). In summary, the Korean cultural administration isunderapressureof value distribution to emphasize the communitarianism and economic rather than liberal values, through bureaucratic control in actualities compared with the normative. This study will have significant implications on value distribution decisionmaking by groups and political implementations within the purview of cultural administration.