2000년대 독일 노동시장 개혁과 복지국가의 미시적 작동방식 변화
Labour Market Reforms and Changes in the Micro Functioning of the German Welfare State
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전통적 독일 복지국가 모델의 성공적 운영은 고용의 양과 질에 달려 있었다. 제2차 세계대전 이후 대략 1970년대 중반까지 독일에서 고용과 실업보험 및 고용과 연금보험 사이의 미시적 작동방식은 완전고용과 표준고용관계를 근간으로 매우 촘촘하게 운영되었다. 1970년대 중반 이후 발생한 대량실업과 고용형태 다양화는 독일 복지국가에 대한 도전을 의미하는 것이었는데, 이에 대한 독일의 정책적 대응은 기본적으로 고용의 양을 희생하더라도 고용의 질과 소득 유지에 초점을 두었다. 그러나 2000년대에 들어 슈뢰더의 적록연정은 실업보험의 개편과 저임금 일자리 확대를 통한 노동공급 확대전략으로 선회하였다. 고용의 질을 희생한 노동공급 확대전략을 “서비스 경제의 트릴레마”의 관점에서 보면 정책방향이 기존의 기독교 민주주의적 대응으로부터 신자유주의적인 대응으로 전환되었음을 의미한다. 노동시장 개혁은 연금개혁과 맞물리면서 고용과 실업보험 및 고용과 연금보험 사이의 작동방식에 변화를 초래하였다. 실업급여의 소득연계성 약화, 불안정 고용형태에 대한 복지의 공백 발생, 공적연금의 약화와 사적 연금 의존도의 강화 등 새롭게 나타난 현상은 고용과 복지 간의 강력한 연계가 크게 약화되었음을 의미한다. 이러한 변화를 사회정책 원리들간의 관계로 보면 자기책임성 원리가 강화되고 연대성 원리가 약화되었음을 뜻한다. 이러한 미시적 작동방식의 변화는 독일 복지국가에게 새로운 과제를 안겨주고 있다.
Abstract
The traditional German welfare state depended heavily on the quantity and quality of employment for successful operation. Due to full employment and the dominance of the regular employment form (Normalarbeitsverhältnis) the micro functioning between employment and unemployment insurance, and that between employment and pension insurance was almost without any major faults from 1949 until about the mid-1970's. The emergence of mass unemployment and the diversification of employment forms in the last two decades of 20th century, however, has disturbed the employment-welfare nexus on which the operation of the German welfare state had depended. The German responses to these challenges in the 1980~90s were of a Christian Democratic nature, in terms of "the trilemma of service economies". The Kohl administration moved to maintain employment quality by securing living standards through high replacement rates and long duration of payment in unemployment benefits while sacrificing full employment. The Red-Green Alliance led by Schröder, in contrast, made drastic reforms in labour market policies. Unemployment insurance reforms and activation policies initiated by the Hartz Commission represented a fundamental policy shift towards a neoliberal approach. Such policy reorientation, coupled with pension reforms, weakened the relationship between employment and public social insurances, including the loosening of earnings-related benefits in unemployment insurance, the emergence of a welfare vacuum for the atypically employed, and the weakening of public pension schemes and the corresponding strengthening of private pension schemes. All of these changes can be seen as reflecting the growing importance of self-responsibility and the decline of solidarity in German social policy principles. These institutional changes and shifts in norms pose new challenges for the German welfare state.
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