한국사회에서 지방분권의 이해와 분권전략의 탐색 = Understanding Decentralization in Korean Society and Formulating Decentralization Strategies

다국어 초록 (Multilingual Abstract)

Decentralization may be incompatible with Koreans, who have a stronger attachment to centralist values and national identity. Transformation of the current unitary territorial system into a federal one is not feasible, but even if it were, the compromising of important values might outweigh the gains. To reach this conclusion, this paper critically reviews two distinct, though closely related, views of decentralization espoused by Korean society: a view that regards decentralization as an end-value in itself, and a view that accepts it as a panacea to social problems. In addition, a specific dilemma of decentralization confronting Korean society is delineated. This paper offers two main prescriptions for resolving the decentralization dilemma. First, it judges that the decentralization reform proposed by the Moon Jae-In government falls short of an effective remedy to the decentralization issue. It instead suggests a variant of a Nordic free commune system as an alternative formulation.
Secondly, it is presumed that the expansion of legal localism without a strong base of political localism can easily make local governments vulnerable to centralization forces.
This paper proposes the liberalization of local parties to be far more effective in reinforcing political localism than the prescriptions outlined in the Moon Jae-In government’s decentralization reform package. The latter includes a compulsory hearing of local views on national legislation before its enactment and the establishment of a national committee on local self-government.

국문 초록 (Abstract)

분권의 가치보다 집권의 가치를 중시하며, 지방일체감보다는 국가일체감이 강한 한국인들에게 분권은 잘 맞지 않는 옷인지도 모른다. 한국사회에서 연방제 수준의 분권은 가능하지도 않고 설사 가능하더라도 얻을 것보 다는 더 많은 가치를 잃어버릴 수 있다. 이러한 결론에 도달하기 위해 한국사회가 신봉하는 분권지상주의와 분권도구주의 사고를 비판적으로 검토하며, 한국사회가 안고 있는 분권의 딜레마를 구체적으로 그려낸다. 문재인 정부가 제시한 분권개헌안은 한국사회가 직면한 분권딜레마의 유효한 해법이 될 수 없다고 판단하여 북유럽의 자유지방정부체제를 그 대안으로 제시한다. 더 나아가 정치적 자치권의 확대 없는 법적 자치권의 확대는 자치권을 매우 취약하게 만들 수 있다는 전제하에, 지방정당 설립의 자유화를 분권 개헌안에 포함된 정치적 자치권의 강화방안—법률안 의견청취의무제와 국가자치분권위원회—의 대안으로 제시한다.

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