민주주의, 정치과정, 그리고 공공정책: 민주적 정치과정론에 대한 비판적 재검토
Democracy, Political Processes, and Public Policies: A Critical Reconsideration of the Democratic Political Process
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민주주의는 그 규범적 함의로 말미암아 정치학과 현실 정치 모두에서 지고지순(至高至純)의 정치 가치로 인식되고 있다. 그러나 민주주의는 ‘신데렐라의 유리 구두’와 같아서 그 외관상의 아름다움과 달리, 그것의 이상적인 형태에 꼭 맞는 정치체제를 찾기는 쉽지 않다. 현실에서는 평균적인 유권자들의 요구에 부응하는 이상적인 정치과정이 아니라, 잘 조직된 소수의 이해관계가 관철되는 비대칭적 역학관계의 장인 경우를 심심치 않게 볼 수 있기 때문이다. 본 논문이 주목하는 ‘정책중심적 관점(policy-centered perspective)’의 문제의식은 바로 여기서 출발하며, 공공정책이 그러한 정치과정의 편향성을 확대ㆍ재생산한다고 보고 있다. 이러한 맥락에서 우리는 ‘규범적인’ 관점에서 ‘실증적인’ 관점으로 눈을 돌릴 필요가 있다. 이렇게 할 경우, 우리는 훨씬 더 많은 것들을 볼 수 있다. 국민주권의 원리가 구현될 것이라는 민주국가에서도 ‘고객정치’의 논리가 지배하고, 기업형 슈퍼마켓(SSM)에 대한 영업제한과 같이 명백하게 대중의 이익에 반하는 정책이 오히려 대중들의 광범위한 지지 하에 채택되는 ‘아이러니’가 나타나기도 하며, 기득권자들이 자신들의 이해관계를 관철시키기 위해 대중들의 정책 요구에 ‘부작위’로 일관하기도 하고, 장기적으로는 모두를 공멸로 이끌 수 있는 대중영합주의가 횡행하는 것은 모두 민주주의의 이상과는 거리가 먼 ‘낭만이 없는’ 정치 현실이다. 이러한 현실을 받아들이는 것은 분명 불편하고 거북할 수 있지만, 그것을 받아들이는 것이 보다 높은 차원의 논의로 나아가기 위한 첫걸음이 된다. 그리고 이러한 논의들을 통해 얻을 수 있는 결론은, 관념화된 민주적 정치과정이 그럴듯해 보이지만 실제와는 거리가 먼 ‘신화(myth)’에 불과할 수 있다는 것이다.
Abstract
Democracy is considered as a noble political value in both political science and real politics due to its normative implication. Democracy, however, is like ‘Cinderella’s glass shoes’, unlike its cosmetic beauty, it is not easy to find a political system that suits its ideal type. In reality, an ideal political process does not cater for the needs of an average voter, but rather the case of an arena with asymmetric power relations carrying out a well-organized interest. A theme of ‘a policy-centered perspective’ begins here, and public policy is seen as expanding such bias. In this context, we need to turn our eyes away from the ‘normative’point of view and see things from an ‘empirical’ point of view. This way, we can see much more. In a democratic country where the principle of national sovereignty is to be realized, the logic of ‘client politics’is widespread, for instance, the restriction on the sales of SSM, policies that explicitly go against the public interest are adopted under the broad public support, and people with vested interests may consistently reject the public’s policy demands in an effort to push ahead with their interests, and populism that could lead to all of them rampantly collapsing in the long run. These are all political realities that are far from the ideals of democracy. Embracing this reality may certainly be uncomfortable and awkward, but accepting it is the first step of moving toward a higher level of discussion. The conclusion from these discussions is that the idealized democratic political process may seem plausible, but it could be nothing more than a myth.
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