복지국가 축소정치와 뉴질랜드 노령연금개혁
The Politics of Welfare State Retrenchment and New Zealand’s Superannuation Reform
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1970년대까지 대부분의 복지국가 관련 문헌들이 복지의 성장과 확대를 논의한 것과 대조적으로 최근의 문헌들은 ‘복지국가의 새로운 정치’로 특징되는 복지축소에 대한 논의에 관심을 기울이고 있다. 특히 복지축소 논쟁의 주역 중 한 사람인 피어슨은 복지축소를 둘러싼 정치적 과정이 복지 확대를 둘러싼 과정들과 매우 다르다고 주장하면서, 복지축소가 불가능한 것은 아니지만 현실적으로 매우 어렵다고 지적하고 있다. 하지만 뉴질랜드를 비롯한 몇몇 국가들에서는 대대적인 복지축소가 단행되었다. 본 연구에서는 한때 복지국가 발전의 선도적 역할을 담당했던 뉴질랜드에서 복지축소가 어떤 조건하에서 어떤 경로를 거쳐 단행되었는지를 노령연금개혁을 통해 살펴보고자 했다. 뉴질랜드 노령연금개혁을 분석한 결과 피어슨이 언급한 바와 같이 복지축소는 복지확대와는 전혀 다른 상황에서 단행된 것을 발견할 수 있었다. 특히 뉴질랜드 노령연금 개혁 과정에서 정치 이념보다는 당면한 정치 ․ 경제적 요인이 보다 큰 영향을 미쳤을 뿐 아니라 복지국가 발달을 설명하는 권력자원적 접근보다는 제도주의적 접근이 보다 타당한 것을 발견하였다.
Abstract
Once New Zealand was known as a welfare state pioneer with the Old Age Pension Act of 1898, the Social Security Act of 1938 and ‘by other means’, that is, through a range of policy instruments that tackled inequality and hardship within the labour market. However, the New Zealand government has made trials and errors to reform the Superannuation during the 1980s and 1990s. Superannuation reform was introduced in the context of a much wider revolution of economic policy, perhaps the most radical programme of economic liberalization an OECD country has ever seen. This revolution made New Zealand a political symbol of neo-liberal economic and social reform. But oversea attention has tended to focus on the economic half of the story while the welfare state reforms have rarely figured. Therefore, we will analyse the New Zealand’s Superannuation reforms: under what conditions is radical Superannuation retrenchment feasible? At a core of the analysis is the impact of the state of the domestic economy and of partisan factors, which, in turn, are likely to be mediated and cross-influenced by institutional configurations. One of my main conclusions is that the state of the domestic economy plays a much greater role in explaining Superannuation reform than is usually acknowledged in the political science theory. Moreover, we find evidence that the partisan composition of government impacts on retrenchment. Political institutions do matter, particularly the electoral system, which has important efforts on the way partisan influences.
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