진보적 자유주의, 복지국가, 조정시장경제, 합의제 민주주의 등 한국 사회의 질적 발전에 필요한 대안담론들을 제시하고, 그 구현 방안들을 논의하고 도출해내는 열린 토론의 장입니다.

[제5회 대안담론포럼 - 제2의 민주화운동: 합의제 민주주의를 향하여]

 

 

왜 비례대표제인가? : 경제민주화, 복지국가, 그리고 합의제 민주주

                                         
   선학태(전남대학교)

 

I. 머리말

 

  민주주의는 이익·가치의 상충으로 인한 사회의 갈등·분열·긴장·대립을 전제로 한다. 서유럽 국가들에선 역사적으로 다양한 사회균열과 갈등이 상존했기 때문에 역설적으로 민주주의가 발전했다(선학태 2005; 2006). 서유럽 민주주의는 정치참여의 평등을 지향하는 ‘프로세스’(how) 중심의 절차적 민주주의가 경제민주화-복지국가라는 ‘정책콘텐츠’(what) 중심의 실질적 민주주의를 촉진하면서 계급·계층 갈등을 제도화했다. 이러한 서유럽 민주주의의 역동적 발전 경로는 절차적 민주주의의 선차성을 시사하고 있다.


  절차적 민주주의를, 자본주의 시장경제의 불평등·소외·배제·차별구조를 교정하는 실질적 민주주의로 연계시키는 매개 고리는 선거제도이다. 선거제도야말로 정당체제/의회권력관계/정부유형·이념적 성격/의회-행정부관계/노사정 관계/자본주의 시장경제 유형/조세·복지국가 유형 등과 같은 제도적 매트릭스를 규정하는 독립변수이다. 한 나라의 민주주의 발전 모델을 설계하는 가장 강력한 정치적 지렛대가 바로 선거제도이다.   


  이 같은 선거제도-민주주의모델의 연계성을 인식하는 레이파트 학파(Lijphart school)에 따르면(Birchfield and Crepaz 1998: 177-183; Lijphart 1999), 절차적 민주주의에는 다수대표 선거제에 기초하는 다수제(majoritarian) 모델과 비례대표 선거제에 기초하는 합의제(consensual) 모델, 두 유형이 있다. 다수제 민주주의는 정치적 의사결정 과정에 참여하는 행위자 수를 줄여 권력을 가능한 소수 행위자에 집중시키는 제도적 조건이 사회의 특수 이익집단의 영향으로부터 자율성을 확보하여 보다 효과적인 경제민주화-복지국가를 산출할 수 있다고 가정한다. 반면 합의제 민주주의는 정치적 의사결정 과정에 가능한 다수 행위자(veto players)가 참여하는 권력분점(power-sharing)의 제도적 조건이 다양한 사회이익과 요구를 대표하고 경제민주화-복지국가를 효과적으로 산출할 수 있는 것으로 가정한다.

    
  한국 ‘87년체제’는 다수제 민주주의의 아이콘이다. 즉 그것은 소선거구 다수대표제/거대양당제/집권당 단독정부/권력독점 대통령제 등에 의해 작동되고 있다. 이 제도조합은 무한경쟁의 선거에서 승리한 정당과 후보가 권력을 싹쓸이하는 승자독식(winner-take-all) 민주주의이다. 이에 따른 정치적 양극화는 IMF관리체제 이후 강화된 신자유주의 시장경제(97년체제)가 야기하는 사회경제적 양극화의 씨앗을 뿌리고 있다(McCarty, Poole, and Rosenthal 2006: 3-10). ‘87년체제’가 ‘97년체제’의 충격을 흡수하는 데 실패하고 있는 것이다. 소선거구 다수대표제에 기초하는 미국의 다수제 민주주의도 사회경제적 불평등과 인종차별, 사회저변층·소수인종의 사회경제적 시민권을 외면하는 ‘부자·강자 민주주의’로 변질, 미분열국(Disunited States of America)을 만들고 있다. 미국 사회가 ‘20 대 80’의 불평등 구조를 넘어 ‘1 대 99’라는 승자독식 자본주의로 가고 있다는 분노의 함성이 아메리칸 드림의 상징인 월가를 강타한 것도 미국 승자독식 민주주의의 치명적 한계를 반증하는 것이라 하지 않을 수 없다(Hacker and Pierson 2010).

 
  그렇다면 우리는 다수제 민주주의에 의해 작동하는 87년체제의 적실성과 실효성에 대해 심각하게 회의해야 한다. 한국 승자독식 경제의 뒤에는 87년체제의 승자독식 정치가 자리하고 있다. 승자독식 경제라는 ‘불평등한 1% 자본주의’와 승자독식 정치라는 ‘불평등한 1% 민주주의’의 관계는 동전의 양면과 같다(Bartels 2008: 25-28; 10장). 이 지점에서 우리는 ‘포스트 87년체제’ 구축을 위한 합의제 민주주의를 그랜드 디자인해야 할 시대적 과제를 안고 있다. 합의제 민주주의가 사회경제적 양극화를 극복하는 ‘포스트 97년체제’를 이끌어낼 수 있다는 것이 이 글의 주장이다.

 
  다수제 민주주의의 안티테제인 합의제 민주주의의 제도적 매트릭스를 유도하는 독립변수는 비례대표 선거제도이다. 비례대표제는 경제민주화-보편적 복지국가와 제도적 친화성을 갖는다. 서유럽 비례대표제 국가들의 경제민주화-보편적 복지국가는 조합주의적(corporatist) 노사정 정치의 산물이고 이를 제도화한 것은 의회·정부 차원에서 작동하는 정당 간 연합정치(coalition politics)이다(Lijphart 1999). 이러한 서유럽 복지국가 정치경제가 시사하는 바는 비례대표제의 동학이 연합정치와 사회적 협의(social concertation)의 기능적 연계를 중심축으로 하는 합의제 모델의 절차적 민주주의를 유도하며, 이것이 실질적 민주주의의 핵심 콘텐츠인 경제민주화-보편적 복지국가의 정치제도가 되고 있다는 점이다.


  그런데 절차적 민주주의의 요체는 이해당사자들이 정치적 의사결정 과정에 ‘동등하고 효과적으로’ 참여하는 정치이다(Lijphart 1999: 31; Topperwien 2004: 46-47). 이 프레임으로 보면 한국민주주의의 아킬레스건은 시장경제의 낙오자·실패자를 비롯한 사회경제적 약자들의 이익과 가치가 정치적 결정과정에 제대로 투입·대표되지 못하고 있다는 데 있다. 실질적 민주주의의 경제민주화-복지국가가 후진국 수준에 머물러 있는 까닭도 사실은 정치참여의 평등을 지향하는 절차적 민주주의의 제도적 결손에 있다. 한마디로 정치참여의 불평등이 사회경제 불평등을 만들어내는 구조이다.
  하지만 현재 한국 정치권, 시민사회, 학계의 경제민주화-복지국가 담론은 사회경제적 양극화를 해소하기 위해 경제민주화-보편적 복지국가의 정책콘텐츠가 무엇이어야 하고 어떠해야 하는가에 초점이 맞춰지고 있다. 이런 까닭에 경제민주화-보편적 복지국가의 정치제도적 함의는 거의 주목을 받지 못한다. 즉 경제민주화-보편적 복지국가의 산출을 가능하게 하는 인풋사이드인 정치제도의 요건은 무엇이고 그것이 어떻게 작동하는가에 관해서는 관심이 없다.

 
  이런 문제의식에서 이 글은 정책 산출(policy output)을 가능케 한 이해관계 투입(input-side)과정에 주목하고 한국민주주의가 경제민주화-보편적 복지국가의 구축을 위해 왜 비례대표제가 필요한가? 라는 물음에 답하고자 한다. 이를 위해 이 글은 첫째, 다수대표 선거제에 기초하는 다수제 민주주의와의 비교 시각에서 비례대표 선거제에 기초하는 합의제 민주주의의 정치경제적 틀을 구안한다. 둘째, 이를 토대로 서유럽 비례대표제 국가들의 복지국가 정치경제를 분석한다. 셋째, 한국 경제민주화-보편적 복지국가의 정치제도적 조건은 비례대표 선거제가 유도하는 연합정치와 사회적 협의의 제도적 연계를 중심으로 하는 합의제 민주주의 동학을 디자인한다.

 

[전문보기] 선학태_왜 비례대표제인가.pdf  


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List of Articles
번호 제목 글쓴이 날짜 조회 수
42 강병구, "복지국가의 미래와 재정" (제7회 대안담론포럼 2013. 8. 23) file IPM 2013-08-28 2444
41 고세훈, "진보적 자유주의, 사민주의 그리고 케인스"(제2회 대안담론포럼 2010.12.2) file [118] IPM 2011-08-16 3721
40 고원, "연정형 권력구조의 선택지: 대통령제와 내각제, 그리고 그 너머" (제5회 대안담론포럼 2012.6.27) file IPM 2012-07-06 2973
39 고원, "연합정치의 유형과 복지국가의 진로"(제4회 대안담론포럼 2011.12.8) [236] IPM 2011-12-09 4326
38 김상조, "분배친화적 성장을 위한 기업정책"(제3회 대안담론포럼 2011.6.3) file [220] IPM 2011-08-16 4920
37 김영태, "어떤 비례대표제인가? 한국비례제의 제도설계" (제5회 대안담론포럼 2012.6.27) file IPM 2012-07-06 3085
36 김유선, "한국 노사관계 진단과 대안 모색" (제7회 대안담론포럼 2013. 8. 23) file IPM 2013-08-28 2207
35 김정주, "새로운 산업생태계의 구성과 대안적 산업정책의 가능성 (제7회 대안담론포럼 2013. 8. 23) file IPM 2013-09-02 2305
34 김호기, "한국의 거버넌스 모색: 사회갈등과 거버넌스 구축의 과제" (제6회 대안담론포럼 2013. 4. 24) imagefile IPM 2013-07-08 2213
33 남찬섭,"한국사회서비스 제도화의 현황과 전망"(제3회 대안담론포럼 2011.6.4) file [23] IPM 2012-07-04 3946
32 박상훈, "누가 어떻게 정치를 하나" (제5회 대안담론포럼 2012.6.27) file IPM 2012-07-06 2707
31 서복경, "공직선거법과 민주주의" (제5회 대안담론포럼 2012.6.27) file [79] IPM 2012-07-06 3454
» 선학태, "왜 비례대표제인가? : 경제민주화, 복지국가, 그리고 합의제 민주주의" (제5회 대안담론포럼 2012.6.27) file [303] IPM 2012-07-06 3767
29 선학태,"시장조정기제로서의 사회적 합의주의: 한국형 모델"(제2회 대안담론포럼 2010.12.2) file [46] IPM 2011-08-16 4119
28 신동면, "어떤 복지국가인가?:복지담론의 평가와 발전 방향"(제4회 대안담론포럼 2011.12.8) [138] IPM 2011-12-09 4072
27 신동면, '스페인의 사회협약: 경쟁력 자합주의의 발전" (제6회 대안담론포럼 2013. 4. 24) file IPM 2013-07-08 2429
26 싱크탱크연구팀, "외환위기 이후 금융·재벌 체제 변화와 대안모델" (제7회 대안담론포럼 2013. 8. 23) file IPM 2013-08-28 2275
25 오건호, "공공부문 대안체제 모색: 공공기관을 서민의 벗으로" (제7회 대안담론포럼 2013. 8. 23) file IPM 2013-08-28 2307
24 오건호, "복지국가 증세전략과 재정주권운동"(제4회 대안담론포럼 2011.12.8) [383] IPM 2011-12-09 11294
23 유종일, "성장과 분배의 선순환"(제3회 대안담론포럼 2011.6.3) file [48] IPM 2011-08-16 4583


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