경제침체기의 일본형 복지체제 변화에 관한 연구: 자본주의 다양성 관점의 적용
A study on the Changing Welfare Regime in Japan during the Economic Recession: Applying the Perspective of Varieties of Capitalism
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1990년대부터 최근까지 일본 복지국가의 변화는 고령화에 대한 대응의 결과라고 설명된다. 이러한 일반적 설명에 더하여 이 논문에서는 ‘자본주의 다양성’ 관점에 기초하여 1990년대 초반 이후 장기적 경기침체가 가져온 일본 생산레짐의 변화가 국가복지 확대를 수반한 복지체제 변화에 영향을 미쳤음을 주장한다. 1990년대 초반까지 일본은 평생고용이 보장되는 안정된 노사관계, 주거래은행과 기업 간 금융거래를 통해 장기자본(patient capital)을 제공하는 금융제도, 이해당사자 중심의 기업 거버넌스 제도, 그룹(keiretsu)내 기업 간 협력관계 등이 결합되어 독특한 경제체제를 유지해 왔다. 버블 붕괴 이후 지난 20여 년 동안 일본 기업의 소유구조에서 안정주주 역할을 하는 금융기관과 비금융기관의 주식 소유비율이 감소하였고, 외국인 투자자와 개인투자자의 주식소유 비율이 증가하였다. 또한, 기업들은 노동비용 절감과 고용 유연화를 위해 비정규직 고용을 늘리고 있으며, 성과주의 인사관리를 도입함에 따라 기업별 집단적 노사관계가 약화되고 있다. 이에 따라 버블붕괴 이전 시기에 일본 기업들에게 비교제도우위를 제공해 왔던 생산레짐과 복지체제의 제도적 보완성 - 종신고용에 바탕을 둔 완전고용과 관대한 기업복지가 저발달된 국가복지와 보완관계를 형성 - 이 균열을 보이고 있다. 생산레짐의 변화에 맞추어 기업들은 자발적 기업복지를 위한 지출을 줄이고 있으며, 정규직 내부자 보호를 강화하는 반면에 비정규직 외부자에 대해서는 임금, 기업복지, 사회보장에서 차별적 대우를 취한다. 사회보험료 부담이 증가하면서 기업들은 노동비용 상승을 우려하여 사회보장 재원에서 기업이 부담하는 비중을 줄이고 국가의 부담을 늘리는 것을 선호한다. 1990년대 초반 이후에 일본 복지체제에서 나타나는 자발적 기업복지의 약화와 국가복지 확대 등은 생산레짐의 변화에 따른 사회복지에 대한 기업의 변화된 선호를 반영한 것이라고 하겠다.
Abstract
It is generally said that changes in the Japanese welfare state since the early 1990s have been made by the government's responses to an aging society, in particular the increase of public pensions and health care for the elderly. In addition to this explanation, the following article argues that the change of production regime brought about by the lasting economic recession since the early 1990s has had an effect on the welfare regime, contributing to the expansion of state welfare. Japan had drawn great praise due to the unique characteristics of its production regime, which has maintained an institutional setting composed of the following: stable industrial relations with the lifelong employment system, a financial system providing patient capital based on the relationship between the main bank and enterprises, the stakeholder's enterprise governance system, the cooperative relationship among enterprises in keiretse(large conglomerates). After the collapse of its bubble economy, however, Japan has experienced a gradual change of the production regime from a stakeholder market economy to a shareholder market economy. The ratio of financial institutions(mainly banks) and non financial institutions(mainly employees) in the ownership of shares has decreased, while the ratio of foreign investors and individual shareholders has increased. Enterprises have increased the employment of irregular workers in order to reduce labor costs and raise labour flexibility. The stable collective industrial relations have been weakened by the introduction of new personal management skills, in particular the transition from seniority based wage system to performance based wage system. The institutional changes in the Japanese production regime have led to a break of institutional complementarities between the production regime and the welfare regime that had provided comparative institutional advantages prior to the collapse of the bubble economy. Full employment based on lifelong employment as well as generous enterprise welfare, which complemented a relatively low level of state welfare, has become increasingly difficult to maintain. Japanese enterprises have significantly decreased the expenditure of voluntary enterprise welfare. They have tended to consolidate the protection of insiders-that is, regular workers- but outsiders, irregular workers, have been discriminated against in wage, enterprise welfare, and social security. Growing concerns about social security contributions paid by enterprises have made Japanese enterprises prefer to ease their social security burden and instead increase the state's burden. Thus, the expansion of state welfare accompanied by the reforms of the social security system since the early 1990s have been influenced by the changed preferences and interests of enterprises regarding social welfare. They have reformed the selective affinity between production regime and welfare regime and as a result, the welfare mix has shifted towards the reduction of voluntary enterprise welfare and the expansion of state welfare.
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