서울特別市議會의 機能遂行 관한 硏究

Abstract

地方議會의 構成을 앞두고 過去 地方議會에 관한 經驗的硏究가 要請됨에 따라 本 硏究는 서울特別市議會의 機能遂行에 관해 分析하였다. 韓國의 강력한 中央執權化傾向은 서울特別市를 政治·經濟·社會·文化 全般에 걸쳐 상당히 중요한 地域으로서의 位置를 차지하게 하였다. 그러므로 이에 관한 硏究는 어떤 다른 地方議會에 관한 연구보다도 그 重要性과 意義가 크다고 볼 수 있다. 서울特別市議會에서는 議員의 政黨構成이 급격하게 變化되었는데 興·野黨議員의 活動에 차이가 있다고 하는 것을 고려하여 그것이 議會의 機能遂行에 어떠한 영향을 미쳤는지를 연구하기 위해 다음과 같은 가설을 설정하고 그것을 검증하고자 한다. 假說 :議會內에서 野黨議員이 減少되고 與黨과 無所屬議員이 增加되면 行政府에서 발의한 案件의 修正率이 낮아지 行政府統制機能은 弱化된다. 그러나 本 硏究의 對象과 範圍의 制限으로 인해 위의 假說을 검증함으로서 경험적 일반화에 도달한다는 것은 不可能하다. 硏究는 經驗的 一般化를 위해 必要한 좀더 信賴性 있는 假說을 제시하는데 그 目的을 두었다. 議會內의 政黨構成은 初代 議會 議員 選擧結果 당시 中央政治에서 野黨의 位置에 있는 民主黨이 전의석의 85.1 %를, 與黨인 自由黨이 2.1 %를 차지하여 야당이 多數議席을 確保하였다. 그러나 1957년 11월 30일을 기해 民主黨所麗議員이 대거 脫黨하여 無所屬이 됨에 따라 이후에는 정차 野黨議員이 減少되고 반면에 無所屬과 與黨議員이 增加되는 현상이 나타났다. 이러한 變化는 民主黨 議員間의 갈등과 對立에 기인하거나 아니면 自由黨의 包攝에 의해 이루어졌다. 따라서 本 硏究는 의회내의 政黨構成이 급변한 1957년 11월 30일을 기점으로하여 그 前後의 議會機能遂行을 比較分析함으로서 위에서 제시한 가설을 검증하려 하였다. 議會의 機能은 이에 관한 제이론 중에서 알몬드( Gabriel A Almond )의 政治體系論에 입각하여 過程水準의 議會機能 즉 利益集約·表出機能, 政策決定機能, 政策執行에 대한 統制機能을 분석하였다. 利益集約·表出機能은 지방의회의 諸活動 中에서 請願의 受理를 통하여, 政策決定機能은 條例案의 審議와 建議案·流議案의 채택을 통하여 그리고 정책집행에 대한 통제기능은 동의·승인안과 質問을통하여 각각의 1日平埼 處理件數와 그 採擇率이나 修正率을 中心으로 분석하였다. 그 결과 野黨議員이 多數일 때에는 建議案·決議案의 採擇, 條例案의 修正, 質問 등이 많이 행하여졌다. 그러나 與黨議員과 無所屬이 增加되코 野黨議員이 減少됨에 따라 建議案·決議案의 採擇率과 條例案의 修正率, 質問 등의 處理件數가 매우 減少되었으며 반면에 請願과 同意 ·承認案의 處理件數와 그 採擇率은 增加된 것으로 나타났다. 議會의 諸 機能遂行에 있어서 政黨構成이 미친 영향을 살펴보기 위해 與·野黨議員의 제 안건의 提案回數를 中心으로 分析한 結榮 各 活勳에 있어 野黨議員은 積極的인 活動을 與黨과 無所曆議員은 消極的인 活動을 遂行한 것으로 나타났다. 그러므로 議會內의 野黨議員의 減少와 無所屢과 興黨議員의 증가는 行政府 發議 案件에 대한 修正率의 減少와 行政府에 대한 統制機能의 弱化를 招來한 것으로 나타나 本 硏究에서 제시한 假說이 妥當한것으로 檢證되었다.;The purposes of this study are to analyze the functions of the Seoul Special City provincial council. The constitution rate of the members of the council at each party had been frequently changed in the Seoul Special City provincial council. The functions of the government party members and the opposition party members were different. The following hypothesis had been inspected in order to study how the constitution rate of the council at each party effected on the functions of the council. The hypothesis: As the constitution rate of the opposition party decreases and the constitution rate of the government and independent party increases, it decrease the rate of the amendment to the proposed items of the executive and it also weakens the control function to the executive. But it was difficult to generalize the experiences by inspecting the above position of the hypothesis, because there- were limits in the objects and the scope of this study. So it was the aim of this study to present the more reliable hypothesis for generalize the experiences. As a result of the first election for the members of the council, the members of the Democratic Party, the opposition party then, occupied 85.1% of all seats, and the members of the Liberal Party, the govenment party, occupied 2.1%. But a lot of members gradually seceded from the Democratic Party after 30 Nov. 1957 and became independent members. Therefore the members of independent and the government party increased. These changes were caused not only by the trouble and rivarly between the Democratic Party members but also bringing around them to the Liberal Party side. This study tries to inspect the hypothesis by analyzing the functions of the council around 30 Nov. 1957. the functions of the council of the process level such as interest aggregation and articulation, policy making and control function of policy execution were analyzed according to the theory of political system by Gabriel A. Almond. The function of interest aggregation and articulation was studied through the acceptance of the petition among the activities of the provincial council. The function of the policy making was studied through the deliberation of the regulation bill and the acceptance rate of the proposition bill and the determination bill. And the control function of policy execution was studied through the agreement and acceptance bill and the questions. And then each of the functions was analyzed using the average number of the treatment, the rate of the adoptation and the rate of the amendment. According to the above analysis, the following results obtained; when the opposition party was the majority party, there were a lot of acceptance of the proposition bill and the determination bill, amendment of the regulation bill and questions. But when members of the independent and the government party increased, there was a remarkable decrease in the treatment of the above items, while there was a increase in the number of the treatment and the rate of the adoptation of the petition and the agreement and acceptance bill. In order to investigate the effect of the party constitution on the functions of the council, the number of the suggestions by each member of the council was analized. The members of the opposition party were active but the others were not. As the members of the opposition party decreased and the members of the opposition party decreased and the members of the independent and the government party increased, in resulted the decrease in the rate of the amendment to the proposed items of the executive and the weakening of the countrol function to the executive. As raresult of this study, it can be concluded that the hypothesis has been proved to be reasonable.