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]

 

 

공직선거법과 민주주의

 

서복경(서강대 현대정치연구소)

 

1. 문제의식

 

  선거제도는 총의석수 크기, 당선자 결정방식, 선거구별 의석수, 의석할당방식, 선거구경계 획정, 의석획득을 위한 진입장벽의 크기 등과 함께, 정해진 선거규칙을 집행하고 관리해나가기 위한 선거관리의 여러 요소들로 구성된다. 이 글은 한국 국회의원 선거의 당선자 결정방식인 병립제의 변경이나 총의석수 규모 변경, 1인 선거구의 선거구 크기변동 등 선거제도에 대한 기존 관심영역들 대신, 일상적인 시기와 선거 시기에 정당(정치인)과 유권자가 만나는 방식 전반을 규제함으로써 한국 정당정치를 특정한 형태로 주조하고 있는 보다 넓은 맥락에서의 선거제도 원리에 관심을 갖는다. 


  한국에서 정당(정치인)이 유권자를 만나 자신의 정책을 설득하고 지지를 호소하고자 할 때, 무엇은 할 수 있고 무엇은 할 수 없나? 유권자가 정당과 정치인을 통해 자신의 이해와 의견을 정치에 반영하고자 할 때, 할 수 있는 것과 할 수 없는 것은 무엇인가? 투표일 투표할 자유가 허용되는 유권자와 그렇지 못한 유권자가 구분되는 원인은 무엇인가? 유권자의 특정한 정치의사 표명이 허용되는 시기와 그렇지 않은 시기를 구분하는 기준은 무엇인가? 일상적인 정치활동과 선거운동을 구분하는 기준은 무엇이며, 그런 구분은 왜 생겨났나? 나의 정치활동을 합법적 선거운동으로도, 불법적 선거운동으로도 해석할 수 있게 만든 권위는 어디에서 나오며, 무엇으로부터 정당화될 수 있나? 


  한 나라의 선거제도는 당연하게도, 역사적인 과정을 통해 만들어져온 특정한 형태의 선거와 정치에 대한 이해를 담고 있다. 그 위에서 정당(정치인)과 유권자가 할 수 있는 행위와 그렇지 못한 행위가 구분되며, 합법과 불법의 경계가 만들어진다. 2012년 한국의 「공직선거법」역시 특정한 방식으로 정치와 선거, 정당과 유권자를 이해하는 틀에서 제도가 주조되어 있으며, 정당과 유권자의 만남은 그 안에서 이루어지고 있다. 


  이 글의 관심은, 당선자 결정방식이나 선거구의 크기 같은 개별적 구성요소들이 작동하게 되는 보다 큰 틀의 「공직선거법」의 체계와 원리에 있다. 현행 「공직선거법」의 정치와 선거, 정당과 유권자에 대한 이해방식이 근본적으로 바뀌지 않는다면, 개별 구성요소들을 어떻게 바꾸든 의도와는 다른 효과를 나타낼 수 있다고 보기 때문이다. 또한 당선자 결정방식 등에서 현행 제도가 지속되든 다른 제도로 변화가 일어나든, 「공직선거법」이 기초한 특정한 방식의 정치에 대한 이해를 변화시키는 것은 한국의 정당정치의 발전과 민주주의의 토대를 강화하는데 시급한 문제라고 인식하기 때문이다. ‘투표당일에만 자유민’이 되는 선거제도가 아니라, ‘항상 자유로운 유권자’를 위해서 현행 「공직선거법」을 어떻게 재구성해야 할 것인가를 모색보기 위해, 먼저 현행 「공직선거법」이 토대를 두고 있는 특별한 정치에 대한 이해방식을 밝혀보고자 한다.

 

2. 한국 선거법의 원리와 기원

 

  현행 「공직선거법」은 총 17개의 장과 부칙으로 구성되어 있다. 이 가운데 한국 선거제도를 다른 선거제도 유형들과 구분시키는 요소들로서, 당선자 결정방식과 의석획득을 위한 진입장벽에 관한 제도는 제12장(당선인)에, 총의석수와 선거구별 의석수, 의석할당과 선거구 경계 획정(re-districting) 규칙은 제3장(선거구역과 의원정수)에 담겨 있다.

 
  반면, 총 17개의 「공직선거법」의 장들 가운데 「공직선거법」이 토대를 두고 있는  원리와 이해에 관한 내용들은 1장(총칙)과 7장(선거운동), 9장(선거와 관련 있는 정당 활동 규제)에서 찾아볼 수 있다. 총칙에서는 전체「공직선거법」의 목적과 원리를 다루고 있으며, 7장(선거운동)은 정당(후보자)과 유권자의 선거 관련 정치활동을, 9장은 정당의 선거 관련 정치활동을 별도로 다룸으로써 한국 민주주의에서 정당(후보자)과 유권자가 선거 시기 뿐 아니라 일상적인 시기에 어떤 형태와 방식으로 만나야 하는가를 총괄적으로 규정하고 있기 때문이다.

 

 

[전문보기] 서복경_공직선거법과 민주주의.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 3722
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 4921
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 3947
32 박상훈, "누가 어떻게 정치를 하나" (제5회 대안담론포럼 2012.6.27) file IPM 2012-07-06 2707
» 서복경, "공직선거법과 민주주의" (제5회 대안담론포럼 2012.6.27) file [79] IPM 2012-07-06 3454
30 선학태, "왜 비례대표제인가? : 경제민주화, 복지국가, 그리고 합의제 민주주의" (제5회 대안담론포럼 2012.6.27) file [303] IPM 2012-07-06 3768
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 4073
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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