위기 이후 금융개혁: 영국,독일,호주의 경험과 시사점

김홍범 ( Hong Bum Kim ) 한국금융학회 2015 금융연구 Vol.29 No.4

지난 2012년 말 대선 전·후로 약 1년(2012. 6~2013. 6) 동안 전개되었던 우리나라의 금융감독체계개편론은 실제 개편으로 이어지지 못했다. 저자는 당시 개편 논의에서 첫째, 소비자보호 강화를 위해 현행 통합모형을 버리고 쌍봉모형을 채택해야 한다는 시각에 처음부터 사회적·정치적 이목이 집중되면서 이후 논의가 내내 ‘모형 선택의 함정’에 빠진 점과, 둘째, 2013년 2월 현 정부출범 이후 금융위원회가 개편 논의를 주도하는 과정에서 이해관계자들과의 소통이 거의 이루어지지 않은 점에 주목한다. 이 글은 영국과 독일의 최근 금융개혁 사례를 통해 특정 감독모형의 선택은 소비자보호와는 직접적 관련성이 없음을 확인한다. 또한 호주가 최근 추진 중인 금융개혁에서는 정부에 의해 임명된 순수 민간위원회가 처음부터 이해관계자들과의 개방적이고 투명한 협의과정을 거쳐 개혁안을 마련함으로써 그 이후 전개될 개혁 이행단계의 성공 확률을 크게 높였음을 확인한다. 이들 외국 사례는 한국의 금융개혁 추진에 중요한 함의를 갖는다. The policy debate on reforming the financial supervisory system that began in June 2012, was unintendedly caught from the outset in ‘the trap of choosing a right model of financial supervision’, which led to the blurring of the entire focus of the debate that evolved for about a year since. There, the twin-peak model came into the limelight, being supported by many critics of the existing integrated model as one that would certainly help enhance financial consumer protection. Later in Spring 2013, the Park Administration (Financial Services Commission) that took the lead in the debate by setting up and operating the Task Force for Reforming the Financial Supervisory System, used the top-down approach to the issue and drew up its own proposal for reform, with little or no conscientious efforts made to consult publicly with stakeholders. This paper first examines the recent domestic financial reform experiences of the United Kingdom and of Germany, demonstrating that consumer protection does not directly depend on choosing a particular type of model of financial supervision. Note that the United Kingdom has newly adopted post-crisis a twin-peak model, with the extant integrated model abolished, and that the Germany’s current integrated model has survived post-crisis domestic financial reforms. Based on the recent experiences of the United Kingdom and of Germany, the paper has arrived at several findings as follows. First, recent financial supervisory reforms in the UK and in Germany focused not on which specific financial supervisory model to choose but on how to reallocate powers of financial supervision among the agencies concerned. That is, the United Kingdom’s discontinuance and Germany’s continuance with the use of the integrated model, have been the mere outcomes that accompanied respective countries’ decisions regarding reallocating financial supervisory powers among the agencies concerned. Second, the institutional structure of a financial consumer protection regime entrenched seems to have little to do with a specific type of financial supervisory model in use. This is the case with both the UK and Germany. Third, financial consumer protection has been enhanced again in both countries, not by the choice of a specific type of financial supervisory model but by the improvement in policy substance. The paper next looks at what the Murray Inquiry appointed by the Australian government has recently done during the 11-month period of its activities to make its own recommendations for financial reforms, arriving at the finding that the Inquiry’s activities themselves have represented its genuine efforts to consult with stakeholders and the public in an open, transparent, and independent manner, to resolve differences in views, and possibly to come, as closer as possible, to social consensus. Such “a consultative approach” to financial reforms which the Murray Inquiry, being an ad-hoc expert committee equipped with good governance, took from the beginning in the design phase of financial reforms, may well have raised greatly the chances of success in the implementation phase to come. It is particularly worthy to note that the Murray Inquiry was supposed to work in ways that bear the closest resemblance to the world-renowned Wallis Inquiry of the mid-1990s. The Wallis Inquiry operated for a prescribed period of eleven months, producing the interim report and the final one, right in the middle and at the end of the period, respectively. Further, the Wallis Inquiry made most use of two rounds of submissions from stakeholders and the public for information purposes, opening the first round soon after the beginning of its operation and the second round right after the delivery of the interim report. These submissions, together with numerous meetings the Inquiry members had with a variety of stakeholders, domestic or abroad, were in effect the primary source of information that was used to shape up the Inquiry’s interim and final reports. Exactly these and other features of the Wallis Inquiry have been purposely built into the Murray Inquiry from the beginning by the Treasurer of the Australian Government. Needless to add, the Murray Inquiry has been equipped with such good governance as the Wallis Inquiry was able to enjoy. The paper has probed into the post-crisis financial reform experiences in the United Kingdom, Germany, and Australia, revealing that the most recent policy debate on reforming the financial supervisory system in Korea has left a couple of things to be desired, as stated at the outset. This finding has straightforward implications to full-fledged financial reforms that still remain long overdue in Korea.

IMF위기 전후 한국 금융개혁의 정치경제

임성학 한국정치외교사학회 2004 한국정치외교사논총 Vol.25 No.2

The difference of YS and DJ administration in financial reforms is found on the speed, scope, sequence and success and failure. The distinguishing characteristics of YS's financial reform are followed; (1) partial implementation in spite of comprehensive reform plans; (2) opening domestic financial market first, rather than reforming domestic financial industries; and (3) a failure in the financial reform. On the other hand, DJ’s financial reform is characterized as rapid and wide-ranging reform and focuses more in domestic financial industries under more open market. DJ’s reform is estimated successful. But, economic crisis situation was the major cause of his success. Economic crisis in Korea spread a feeling of crisis consciousness to all of elite and general public. This legitimized the implementation of economic reforms and enabled DJ administration to put these reforms into practice. But, advantage of crisis situation to the ruling elite is not everlasting in whole process of reform. Crisis consciousness can support the establishment of economic policy, but its advantage is easily evaporated because, if no visible and instant benefit to people is materialized, the opposing group will be re-organized to challenge the reforms. Therefore, it is impossible to implement economic policy without appropriate compensation program for harmed groups. 세계화와 아시아의 경제위기로 한국경제의 전반적인 구조조정은 필수적인 것이 되었다. 특히 금융개혁은 다른 경제개혁보다 선행되어야 하는 개혁으로 인식되었다. 한국 기업의 과도한 투자와 문어발식 확장으로 기업은 부실해지고, 이들에게 자금을 빌려준 금융기관도 결국 부실대출로 인해 파산될 위기에 처하면서 한국경제 전반에 위기를 조장하게 되었다. 경제위기의 재발을 막기 위해 기업의 무리한 투자와 독단적인 경영을 감시할 건전한 금융기관이 필요하게 되었다. 이 논문은 1997년 경제위기의 전후 두 정부의 금융개혁을 정치경제학적 측면에서 비교분석하고 성공적인 금융개혁의 조건을 살펴보려고 한다. 정치경제학적 측면에서 경제(혹은 금융)개혁은 경제적 효율성을 추구하지만 정치적으로는 다양한 계층들의 분배구조를 바꾸는 결과를 가져온다. 또한 개혁의 피해는 특정 집단에 집중되고 피해 규모가 클 뿐만 아니라 즉각적이다. 반면 개혁의 이득은 분산되어 있어 각자가 취할 수 있는 이득의 규모는 적다. 따라서 개혁피해자는 정치적 행동을 통해 개혁을 적극적으로 저지하려고 하지만 개혁이득자는 이들을 저지하거나 개혁을 적극적으로 지지할 동기가 부족하다. 이와 같이 경제개혁을 올바르게 파악하기 위해서는 이해당사자들의 전략적 행동과 영향력, 정치적 행동 등에 대한 분석이 필수적이다. 김영삼정부(YS)의 금융개혁과 김대중정부(DJ)의 금융개혁의 차이점은 개혁의 속도, 범위, 순서, 성패에서 찾아 볼 수 있다. YS의 금융개혁은 점진적이고, 포괄적인 금융개혁에 대한 계획에도 불구하고 부분적으로 실시되었으며 국내 금융개혁보다 시장개방화가 먼저 시행된 개혁으로 결국 실패하였다. 반면 DJ의 금융개혁은 급진적이고 포괄적으로 실시되었으며 이미 개방된 금융시장 하에서 국내금융개혁에 보다 초점을 둔 개혁으로 대체로 성공적인 개혁으로 평가받고 있다. 그러나 DJ의 성공은 위기라는 특수한 상황이 작용한 결과이다. 즉 한국의 IMF사태는 엘리트와 일반 대중 모두에게 위기의식을 확산시켜 경제개혁의 당위성을 높여줌으로써 경제개혁정책의 실행의 가능성을 높인 것이 사실이다. 그러나 이런 위기의식의 이점은 개혁정책의 전과정에 영향을 미치지는 못한다. 위기의식은 경제정책의 수립에 도움이 될 수 있지만, 실행된 후 가시적 성과를 나타내지 못하여 대중들이 위기의 해결에 대한 이견을 나타낸다면 이런 이점은 쉽게 사라질 수 있다. 따라서 위기의식에만 의존한 개혁은 피해대상에 대한 적절한 대책 수립 없이는 불가능하다. 또한 금융이나 기업에 대한 통제권을 유지하려는 개발국가적 속성, 금융감독권에 대한 부처간의 갈등을 해결해야 한다. 또한 국내 금융산업의 경쟁력 향상을 위한 금융산업 개방과 금융기관 건전성 규제는 금융산업으로부터 많은 저항을 받을 것이다. 마지막으로 산업자본에 의한 금융자본의 지배의 표본인 제2금융권에 대한 개혁은 대기업집단의 조직적인 저항도 예상된다. 새로운 경제위기 가능성에 대비하기 위해서는 지속적인 금융개혁이 필요하고 금융개혁은 국내정치적 특성, 개혁의 이해당사자의 이해관계 등이 잘 고려되어 실행되어야 한다. YS와 DJ의 금융개혁의 비교를 통해 얻을 수 두 번째 교훈은 국내 금융시스템의 보완 없이 섣부른 대외개방은 경제위기를 가져올 수 있다는 점이다.

미국 금융규제제도의 개혁방향

심영(Young Shim) 한국비교사법학회 2010 比較私法 Vol.17 No.1

For the first time since the 1930s, the world economy experienced a systemic financial crisis in 2008. The causes of the global financial crisis are understood and financial reform plans are introduced around world. The global crisis has started with US financial problems. In order to response the current financial crisis, US has published Blueprint for a Modernized Financial Regulatory Structure, Financial Regulation : A Framework for Crafting and Assessing Proposals to Modernize the Outdated U.S. Financial Regulatory System, and Financial Regulatory Reform - A New Foundation: Rebuilding Financial Supervision and Regulation. The Financial Regulatory Reform has the detailed measures for new financial regulatory and supervisory architecture of the US. The reform plan sets out five key objectives: ‣ Promote robust supervision and regulation of financial firms ‣ Establish comprehensive supervision of financial markets ‣ Protect consumers and investors from financial abuse ‣ Provide the government with the tools it needs to manage financial crisis ‣ Raise international regulatory standards and improve international cooperation Upon these efforts, the US House Financial Services Committee prepared “the Wall Street Reform and Consumer Protection Act.” The House passed the bill on December 11, 2009. The Wall Street Reform and Consumer Protection Act includes; consumer protections, financial stability council, dissolution authority and ending “too big to fail,” executive compensation, investor protections, regulation of derivatives, reform of credit rating agencies, hedge fund, private equity and private pools of capital registration, and office of insurance. This article discusses the US financial reform. It is primarily intended to analyses the content of the reform plan and to provide lessons for Korean financial regulation and supervision system.

도드-프랭크법상 금융감독기구 개혁 및 입법적 시사점

오성근 한국경영법률학회 2012 經營法律 Vol.22 No.4

Since the Korean government's announcement made in January 2012 that it would pursue legislation of the Financial Consumer Protection Act, there have been ongoing debates over which direction should be taken for reform of the current two-entity regulatory supervision system. Proponents of multi-entity regulatory supervision argue that Korea will never be immune from such huge financial crises as the sub-prime mortgage crisis in the USA; therefore, it is more desirable for the country to embrace a multi-entity regulatory supervision framework such as the Dodd-Frank Wall Street Reform and Consumer Protection Act (the “Dodd-Frank Act”) because it is believed to have contributed at the least to making the US financial services industry sounder and financial consumers safer and to be more effective in preventing such crises from taking place. After reviewing the Dodd-Frank Act, the author suggests that anyone who is involved in the financial services industry of Korea should invest more time and put more effort into reestablishing the right rationale and then decide on a financial regulatory supervision framework that is fairer, more effective, and more workable on a long term basis. Quick adaptation to changes in financial markets without closely analyzing their ramifications or simple adoption of a new financial regulatory supervision system of a foreign country without seriously studying its merits and demerits may incur unnecessary costs and reveal unknown loopholes in the regulation and supervision when it is put into practice. The United States has traditionally taken a multi-entity regulatory supervision approach and the Dodd-Frank Act is also an extension of this with the addition of a few new items. As it is influenced to a great deal by US law, Korea also adopted a multi-entity regulatory supervision system when it enacted a number of financial market related laws. As part of the efforts to tackle the financial crisis of 1987, the Korean government enacted later that year the Financial Services Commission Act under which five agencies – the Securities Supervisory Board, Bank, Inspection Board, Insurance Inspection Board, and Credit Management Fund - were consolidated into two entities – the Financial Services Commission and Financial Supervisory Service. The main reason behind this consolidation was the belief of the policy planners at that time that the previous sector-specific approach had left numerous loopholes in regulation unaddressed, and this had been one of the causes of the financial crisis of 1987; therefore, a more consolidated form of a regulatory supervision system such as Britain's Financial Services Authority was critical for removing those loopholes. As such, Korea now has experience in employing both a consolidated system and a multi-entity system; therefore, one may assume that by now both policy planners and industry experts in Korea should know by experience which of the two is better to apply to and to implement in the country's financial market for at least the next 50 years. In Part II, which reviews the significance of the Dodd-Frank Act in the history of financial industry reform of the United States, the author finds that the Dodd-Frank Act stays within Korea’s traditional financial regulatory supervision framework by showing almost identical characteristics. Part III examines the four new agencies that the Act gave birth to and discusses in which way the financial system of the United States was reformed. Part IV looks at the evaluation reports on the regulatory and supervisory agencies that the law created. In Part V the author makes a few suggestions for the financial regulatory and supervisory agencies of Korea in relation to the Dodd-Frank Act.

Financial Reforms: Benefits and Costs

Jisoon Lee 서울대학교 경제연구소 2006 Seoul journal of economics Vol.19 No.4

Using financial reforms as example, we demonstrate that reform measures should be undertaken only when they have substantial net expected benefits. In most cases, financial reform measures entail substantial upfront fixed costs in return for a steady flow of benefits over a long period of time. The benefits tend to become larger in tandem with the volume of financial transactions. Because of these, it would be easier for wealthier countries to undertake financial reforms: They can afford expensive but better systems. However, poor countries cannot do so easily, because they lack sufficient resources. Consequently poor countries would better take more gradual and pragmatic approaches to financial reforms.

금융포용(Financial Inclusion)의 북한 적용 방안 연구

최상목 경희대학교(국제캠퍼스) 국제지역연구원 2018 아태연구 Vol.25 No.4

This study aims to emphasize that financial inclusion should be a main goal of North Korea’s financial reform. Theoretical discussions on financial inclusion, the policy proposals from international organizations, and the experience of many developing countries and transition countries are analyzed and the key factors that can effectively promote financial inclusion are derived. At the same time, the current status of financial inclusion in North Korea is examined and the financial inclusion strategies and key policy measures applicable to North Korea's financial reform process are presented. In the absence of a well-established financial market and financial system, it is inevitable to promote financial reform focusing on market-oriented liberalization, but many developing and transition countries experienced financial instability and worsening income inequality. To address these problems, most developing countries have started to put financial inclusion at the core of financial reform. North Korea also should set financial inclusion as a main goal of financial reform and establish a comprehensive strategy which should be pursued consistently under the solid support of the supreme power. First of all, it is necessary to establish nationwide mobile money service to increase significantly accessibility to financial services along with expanding the branch network of financial institutions. At the same time, there is an urgent need for improving trust in the financial system and financial literacy of the North Korean people. 이 글의 목적은 북한의 금융개혁의 주요 목표로서 금융포용을 제시하는 데 있다. 금융포용에 대한 이론적 논의, 국제기구들의 정책 제안과 주요 개발도상국과 체제전환국의 사례를 분석하여 금융포용을 효과적으로 확대할 수 있는 성공 요인을 도출하였다. 동시에 북한의 금융포용 수준을 추정하여 추진 여건을 점검하고 이를 바탕으로 북한의 금융개혁 과정에 적용 가능한 금융포용 전략과 주요 정책 대안을 제시하였다. 제도권 금융시장과 금융 시스템이 제대로 구축되어 있지 않은 상황에서 시장화·자유화 중심의 금융개혁 추진은 필요하지만, 많은 개발도상국과 체제전환국들은 이 과정에서 금융 불안과 소득 불평등 악화를 경험하였다. 이를 극복하기 위한 대안으로 대다수의 개발도상국들은 금융포용을 금융개혁의 주요 목표로 설정하고 추진하기 시작하였다. 북한도 초기 단계부터 금융포용을 금융개혁의 주요 목표로 설정하고 최고 권력층의 확고한 지원하에 종합적인 전략을 수립하여 일관성 있게 추진하여야 한다. 모바일 결제 시스템 구축을 통해 모바일 계좌를 적극적으로 도입하고 소외지역 등을 중심으로 금융기관의 지점망도 확대하여 금융 서비스에 대한 접근성을 획기적으로 높여야 한다. 동시에 북한 주민의 제도권 금융 시스템에 대한 신뢰와 금융 이해력을 높이는 노력도 시급하다.

주요국 금융정책의 동향 및 우리나라 금융정책에의 시사점: 금융소비자보호정책의 최근동향을 중심으로

박정국 경희대학교 법학연구소 2012 경희법학 Vol.47 No.2

Financial crisis was due to start the massive debt default crisis in the subprime mortgage market in 2008 and gave a shocking effect in the other credit markets around the world as well as the United States. The countries around the world has been promoting the reform for the effective protection of financial consumers as well as the reform of financial regulatory system and financial regulatory authorities. The United States Government has taken positive steps to stabilize financial markets and ensure consumer confidence and 「the Bill on Financial Supervision Reform」 was legislation as a result of the effort. Around the world in addition to the United States is conducted financial regulatory reform policy for its restaurant in order to overcome the chaos of the international economic order and in order to promote financial stability and financial rationalization. Financial regulatory reform and financial consumer protection policy as such left behind many lessons in Korea, various financial policies are being enforced as a result and 「Capital Market Law」 enacted in August 2007 and 「the Bill on the Protection of Financial Consumers」 submitted by the government in February 2012 are representative. 「Capital Market Law」 has an issue that it applies to limited in financial investment industry although a comprehensive law, in contrast 「the Bill on the Protection of Financial Consumers」 is more desirable for effective protection of financial consumers because it is applies to the banking industry and insurance as well as financial investment firms and it has been submitted to the National Assembly. Therefore, I would like to review the current trend of monetary policy and seek to improvement plan for legislative issues that might arise after find out the specific legislative direction through monetary policy of major countries in this paper. 2008년 서브프라임 모기지시장에서의 대규모 채무불이행 사태를 발단으로 시작된 금융위기는 미국뿐만 아니라 전세계의 금융시장을 대혼란으로 몰아갔고, 이에 각국은 금융규제체제 및 금융규제기관의 개혁과 더불어 금융소비자의 실질적 보호를 위한 개혁을 추진하고 있다. 미국은 금융시장을 안정시키고 금융소비자의 신뢰를 확보하기 위한 적극적인 조치들을 취한 결과 금융규제개혁안을 입법하였는데 대표적으로 「금융감독개혁법안」이 그것이라 할 것이다. 미국 이외에도 각국은 금융위기로 인한 국제적 경제질서의 혼란을 극복하고 금융안정화 및 합리화를 도모하기 위하여 자국의 실정에 맞는 금융규제개혁정책을 실시하고 있다. 이러한 각국의 금융규제개혁 및 금융소비자보호정책은 우리나라에도 많은 시사점을 남겼고 그 결과 우리나라도 다양한 금융정책을 실시하고 있다. 대표적으로 2007년 8월 제정된 「자본시장법」과 2012년 2월 정부가 제출한 「금융소비자 보호에 관한 법률안」이 그것이다. 「자본시장법」은 포괄적인 법률이기는 하지만 금융투자업에 한정되어 적용된다는 문제점이 있는 반면, 「금융소비자 보호에 관한 법률안」은 금융투자업자는 물론 은행업ㆍ보험업 등도 적용대상으로 하고 있다는 점에서 금융소비자의 실질적 보호를 위해 보다 바람직하다고 할 것이다. 그러나 동법률안은 2012년 5월 2일 열린 본회의에서 통과되지 못한 상태로 18대 국회가 종료되어 기존 법률안은 자동 폐기되고 19대 국회에서 동일한 내용의 법률안이 제출될 것으로 본다. 따라서 본고에서는 우리나라 금융정책에의 시사점을 얻기 위하여 먼저, 주요국 금융정책의 동향을 통하여 구체적인 입법방향을 살핀 다음, 제시된 시사점 특히, 세계금융의 중심에 있는 미국과 영국의 금융정책을 통한 법제적 시사점을 바탕으로 우리나라 현행 금융정책의 동향을 검토하고 제기될 수 있는 입법적 문제점에 대한 개선방안을 모색하기로 한다.

일본의 지방재정개혁:‘삼위일체개혁’의 성과와 한계

장원호,김종욱 21세기정치학회 2005 21세기 정치학회보 Vol.15 No.1

This paper offers an explanation of the background and factors prompting the recent Local Financial Reform in Japan. The 2004 reform is popularly known as ‘Trinity Reform’ because it tries to solve local financial problems in three ways: abrogation of the stipend system, abolition of local‐tax transfer, and establishment of a new local tax system. ‘Trinity Reform’ emerged through the Japanese system of local‐autonomy. It is an important moment in Japanese local history in that the Reform actually opens the way for fiscal autonomy of local governments. Local politicians’ activism in the process of the Reform also carries implications for the future relationship of central and local governments in Japan. In addition, the significant part played by private‐sector advisors in charting the reform blueprint shows that, in the near future, civil society can assume a more active role in Japanese political decision‐making. The success of the Reform, however, remains in the hands of the local governments that are exposed to various uncertainties. The paper considers the possibilities and limits of Japanese local autonomy and governance in the area of financial policy.

1997년 외환위기와 한국관료제의 변화: 공적자금투입과 금융감독체계 개편과정을 중심으로

송원섭 한국제도∙경제학회 2019 제도와 경제 Vol.13 No.4

This paper looked at the direction of the change in the Korean bureaucracy that had been under way since the financial crisis, and at the same time, it looked at the fundamental reasons why financial reform could not succeed by looking at whether the nation's intended goal was achieved through bureaucratic reform in the process of overcoming the financial crisis. In fact, the Korean bureaucracy was changing and its cohesiveness and policy execution within the bureaucracy was weakening in the process. What has been all the more important since the 1990s was how far we will establish a system of Korean bureaucracy that can properly cope with internal democratization and external neo-liberalistic globalization. Since 1997, however, the Korean bureaucracy has changed with a neo-public management reform direction, and the team system, position classification system and work evaluation system have been introduced as representative, and the intended goal of the state has not been achieved since such reform. With the large scale of several bureaucracies, the ‘internal cohesiveness' weakened further after the reforms, and as bureaucrats became increasingly influenced by political power, the ‘embedded autonomy' was also weakened, and officials were unable to find ‘bureaucratic rationality' in the face of an ‘identity crisis’, thereby providing a reason for their weakening confidence for the government. As a result, the country's attempts to overcome the financial crisis and establish an institution that will be the basis for future economic growth through bureaucratic reforms were unsuccessful and the reforms in the wrong direction resulted in shaking the stability of the Korean bureaucracy. After the financial crisis, the state bureaucracy that should have been the subject of all reforms shook for a variety of reasons, and this paper concluded that financial reforms could not be successful fundamentally. 본 논문은 한국경제발전의 핵심으로 평가 받았던 관료제를 내부적 변화를 중심으로 분석하고 그 정당성을 평가하는 한편 향후 경제성장을 위한 관료제 개편에 있어 참고가 될 정책사례를 제시하고자 한다. 1980년대 이후 한국은 발전국가체제의 국가 주도적 산업화전략에서 탈발전국가체제의 시장 주도적 산업화 전략으로 점차적으로 변화하고 있었다. 본고는 1997년 이후 금융개혁에서 관료의 행동들과 실제 관료제 내부의 변화를 중점적으로 살펴봄으로써 이러한 발전국가의 변화와 성장모델의 전환에서 가장 중요한 요인이 다름 아닌 국가 관료 기구 내부에 있었음을 보여주었다. 본 논문은 금융위기 이전부터 진행되어 왔던 한국 관료제의 변화가 금융위기 이후에는 어떠한 방향으로 진행되었는지를 살펴보면서, 동시에 금융위기 극복과정에서 관료제 개혁으로 국가가 의도한 목표가 달성되었는지를 살펴봄으로써 금융개혁이 성공할 수 없었던 근본적인 원인을 찾아보았다. 사실 한국 관료제는 변화하고 있었고 그 과정 속에서 관료제 내부의 응집력과 정책적 실행능력은 저하되고 있었다. 1990년대 이후 더욱더 중요했던 것은 내부적으로 민주화와 외부적으로 신자유주의적 세계화에 적절히 대처할 수 있는 한국 관료제의 시스템을 여하히 구축할 것인가 하는데 있었다. 하지만 1997년 이후 한국 관료제는 신 공공관리론적인 개혁 방향을 지닌 채 변화해 왔으며, 대표적으로 팀제, 직위 분류제, 업무평가제 등이 관료제에 도입되었고, 이러한 개혁 이후 국가가 의도한 목표는 달성되지 못했다. 몇 개 관료부처의 거대화로 ‘내부 응집력’은 개혁 이후 더욱 약화되었고, 개혁 이후 관료들이 더욱더 정치권력에게 휘둘리게 되면서 ‘연계된 자율성’ 또한 약화되었으며, 관료들은 정체성위기를 맞이하면서 ‘관료적 합리성’은 찾아볼 수 없게 되었고, 그에 따라 정부에 대한 신뢰가 약화되는 원인을 제공하기도 하였다는 정책사례를 제시할 수 있었다. 결국, 금융위기 극복과 앞으로 경제성장의 기반이 될 제도를 관료제 개혁으로 마련하려는 국가의 시도는 성공하지 못했으며, 잘못된 방향의 개혁으로 한국 관료제의 안정성을 뒤흔드는 결과를 초래했다고 할 수 있다. 이렇게 금융위기 이후, 모든 개혁의 주체가 되었어야 했던 국가 관료기구가 여러 가지 이유로 흔들리면서, 금융개혁이 성공할 수 없었던 가장 근본적인 원인이 되었다고 결론지을 수 있었다.

갑신정변 이후 유길준의 재정개혁론

양진아(Yang Jinah) 고려사학회 2014 한국사학보 Vol.- No.57

이 글에서는 유길준이 갑신정변 이후 시기에 작성한 稅制 관련 저술들을 정부재정의 관점에서 분석하였다. 그 결과 확인할 수 있었던 유길준의 재정개혁 구상은 다음과 같다. 첫째, 유길준은 정부재정을 확충하는 재원의 중심을 조세수입에 두고 있었다. 이는 조세납부를 정부에 대한 賃金지불에 비유한 納稅觀을 통해 뒷받침되었다. 조세수입 이외 또 다른 재원으로 내국채ㆍ외국채 모집을 구상하였지만 국채 원리금 상환 역시 결국 조세수입으로 해결되는 것임을 강조하였다. 둘째, 조세수입을 조세의 증설을 통해 확보하고자 하였다. 구체적으로, 세원을 不動産과 動産으로 나누고 동산에 대한 과세를 구상했으며 기존의 무명잡세를 정식 조세로 전환하여 과세하고자 하였다. 또 토지세를 지가에 의한 것과 토지소출에 의한 것으로 나눠 부과하고자 하였고, 간접세가 조세저항이 적다는 점을 포착하여 직접세ㆍ간접세 개념을 도입하고자 했다. 셋째, 이와 같은 유길준의 재정개혁 구상은 增稅論으로 정리될 수 있다. 이는 ‘重稅’가 타당하다는 주장을 통해 뒷받침되었고, 조세부담경감을 중시하는 전통시대 및 동시대 개화파의 재정론과 구별되었다. 오히려 같은 시기 일본에서 후쿠자와 유키치가 주장한 ‘地租輕減反對論’과 유사성이 있었다. 이러한 증세론은 조세저항을 야기할 우려가 있었는데 이는 재정 예ㆍ결산제도를 시행하여 인민에게 공개한다는 구상을 통해 해소될 수 있었다. 이러한 유길준의 구상은 외국방문과 유학을 통해 서양 근대재정운영시스템을 학습한 결과였고, 갑신정변 이후 심화되는 조선정부의 재정난에 대응해 제시한 개혁책이었다. 이후 단행되는 재정개혁들에서 조세 증설과 재정예결산제도의 시행 및 공개가 제한적이나마 실현된다는 점에서 유길준의 구상이 갖는 현실가능성을 확인할 수 있다. This study analyzes Yu Giljun’s taxation related works written after the Gapsin Coup of 1884 from the standpoint of government finance. Yu Giljun’s financial reform plan can be summarized as follows. First, Yu Giljun perceived tax revenues as the main financial means through which the government could expand its finances. This came as part of his perception of taxation payments, which he compared to the payment of wages to the government. In addition to tax revenues, Yu also suggested that national and international bonds be issued, and emphasized that the repayment of the principal on these bonds be made from tax revenues. Second, Yu intended to secure tax revenues through the increase of taxation. More specifically, Yu broke down the sources of taxation into that stemming from real estate and personal property, established taxes on personal property, and changed the existing anonymous miscellaneous taxes into formal tax items. Furthermore, Yu separated land taxes into taxes based on land value and taxes based on crop yields. Cognizant that there would be less resistance to indirect taxes, he also intended to introduce the concepts of direct and indirect taxes. Third, Yu Giljun’s financial reform plan can be summarized by his theory regarding tax increases. In this regard, he maintained that ‘heavy duties (重稅)’ were appropriate, a stance that differed from the financial theories of traditional officials and the progressive party, who placed great importance on the reduction of the tax burden. Yu’s position on financial reform plan in fact had more in common similarity with Fukuzawa Yukichi, who also opposed the easing of the tax burden. While the notion of increasing taxes could lead to tax resistance, this could in turn be mitigated by the implementation of transparent financial budgets and accounts systems. Yu Giljun’s financial reform plan were the result of his firsthand study of the modern Western financial management system during his time abroad. Yu suggested these reform plans as a way to counter the worsening financial difficulties of the Joseon government in the aftermath of the Gapsin Coup. One can see the realistic potential of Yu Giljun’s initiatives in the fact that although limited, his concepts of tax increases and the implementation of transparent financial budgets and accounts systems were subsequently implemented as part of financial reforms.