위험한 연방제: 러시아 중앙-지방관계 변화의 정치적 원인 분석
Federalism in Danger: Political Foundations of Federalism in Russian Style
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초록
연방제가 친발전적이고 친자본적이라는 일반적 평가에도 불구하고 1990년대 러시아의 연방제는 실패 그 자체였다. 국가재정이 공유지의 비극을 경험하며 파탄 났고 정상적 시장은 지방엘리트에 의해 왜곡되었다. 이에 반해 2000년대 푸틴 정부는 혼란스러운 중앙-지방관계를 청산하고 중앙정부의 압도적 우위를 확보했다. 특히 선거법과 정당법 개정 등을 통해 지방엘리트를 중앙정치에 종속시켰다. 이러한 1990년대와 2000년대 러시아의 중앙-지방관계를 주로 재정연방주의의 관점에서 비교분석한다. 이와 함께 본고는 이러한 변화의 역사구조적 원인보다 단기 정치적 원인에 주목하여 선거권위주의의 정치동학과 국가-기업의 힘 관계를 살펴본다. 그리고 마지막으로 연방제를 통한 제한정부의 수립 가능성이 러시아에서 사라져가고 있다고 평가한다.
Abstract
This study attempts to offer actor-based explanations of federalism in Russian style. Federalism is supposed to maintain balance of power between the federal government and regional ones in order to function as institutional foundations for a limited and market-preserving government. Yet, the Russian federalism has failed to stay at the balancing equilibrium since the collapse of the USSR. In the 1990s, the regional elites defied the central authority hard enough to create tragedy of the commons in the area of taxation. In the 2000s the balance clearly tipped toward to favor the federal authority. Putin's recentralization eroded the political autonomy of regional elites to be totally dependent on the central political machine. These two contrasting features in the Russian federalism can be explained in terms of strategic interactions of elites combined with the logic of electoral authoritarianism.
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