원조집행기관의 자율성과 제도적 변화: 영국 DFID 사례를 중심으로 = Autonomy and Institutional Changes of Foreign Aid Management System: The case of Department for International Development(DFID) in UK

다국어 초록 (Multilingual Abstract)

Aid delivery system of the UK is highly distinguished with most OECD/DAC member countries since not ministry of Foreign Affairs but Department for International Development (DFID) is the core institution for aid policy and its implementation. In most donor countries but the UK, Germany and Canada, the ministry of foreign affairs takes the lead and is responsible for policy and implementation, or coordinates activities of other ministries. DFID, in particular, which is the most independent, autonomous, and strong governmental body that has both policy and government leadership and aid delivery agency as well as technical expertise functions, plays a central role in all the government’s aid-related issues.
The paper aims for analyzing the backgrounds and process behind the development of the UK’s current aid management system. It critically examines exiting theories related to institutional changes such as isomorphism, punctuated equilibrium, and path analyses. It also suggests a new framework for describing institutional changes, which theoretically supplements existing limitations. The new framework mainly focuses on idea, political structure, and agent. It helps figure internal factors of institutional changes out as well as provides explanation of each organization and institution such as DFID that went through gradual changes.
The paper describes the process that discourse which considers aid policy as one of the diplomatic tools for maximizing the country’s interest has been diminishing due to the change of international norms in aid and a humanitarianism- centered view to foreign aid has taken the lead. With this, it analyzes how political structure has been ready for institutional changes which allow both establishing and maintaining DFID as the Labour party which took humanitarian discourse as policy stance has taken power and the influences of a strong will and roles individual agents including Prime Minister, Tony Blair have shown.

국문 초록 (Abstract)

영국의 원조집행체계는 대부분의 OECD/DAC 회원국과 달리 외교부가 아닌 국제개발부(DFID)가 원조정책을 주도한다는 점에서 매우 특이한 사례에 속한다. 영국, 독일, 캐나다를 제외한 선진공여국들은 외교부가 원조정책수립과 집행을 책임지거나 타 부처와의 조정역할을 담당하고 있다. 특히 영국의 국제개발부는 가장 큰 자율성을 확보하고, 독립적으로 영국 대외원조정책의 수립과 집행을 총괄하는 강력한 중앙부처이다.
본 연구의 목적은 영국의 원조집행체계가 어떻게 지금과 같은 제도적 틀을 갖추게 되었는지에 관한 배경과 과정을 분석하는데 있다. 이를 위해 제도변화와 관련된 기존의 이론(동형화(isomorphism), 단절된 균형(punctuated equilibrium), 경로분석)을 비판적으로 검토한 후 제도변화의 이론적 시각에서 보완적 분석 틀을 제시한다. 본 연구의 분석틀은 아이디어, 정치구조와 행위자(agent)를 주목한다. 이를 통해 제도변화의 내부적 요인을 규명해 DFID 사례와 같이 점진적으로 변화하는 조직과 제도 설명을 위해 기존 이론접근의 문제점을 보완하고자 하였다.
본 논문은 영국의 경우 국제원조규범의 변화의 영향으로 점차 원조를 외교전략으로 보던 담론이 힘을 잃고 빈곤퇴치 등 인도주의적 담론이 주도권을 갖게 되는 과정을 설명했다. 이와 함께 인도주의적 담론을 정책기조로 채택한 노동당이 집권하면서 어떻게 DFID를 설립, 유지라는 제도변화가 가능한 정치구조적 여건이 마련되었는지와 당시 블레어 총리 등의 개별적 행위자들이 보여준 의지와 역할의 영향을 분석했다.

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