자율적 의회의 조건: 미국의회의 경우
Conditions for the Autonomy of the Legislature: The Case of U.S. Congress
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이 글은 미국의회의 자율성을 의원 개인의 자율성과 의회제도의 자율성이 적절히 결합하여 나타난 결과라고 파악하고 논의를 전개하였다. 이러한 논지를 전개하기 위해서 이 글은 의원의 개인 수준과 의회의 제도화 수준에서 의회 자율성에 기여한 요인을 각각 의원의 선거정치과정과 의회 상임위원회제도의 영역에서 발견하고자 했다. 먼저 의원 개인의 자율성 제고와 관련된 선거정치과정에서 필자는 예비선거제도의 도입, 후보중심의 선거운동, 높은 재선율이 중요하다고 보고, 이러한 요소들의 내용, 역사적 기원 등에 대해서 설명하고자 하였다. 한편 의회의 제도적 영역에서는 미국의회의 핵심기구인 상임위원회가 행정부에 대한 의회의 자율성 확립에 결정적인 역할을 한 기제였다고 파악하고, 상임위원회제도의 역사적 발달과정과 상임위원회의 권한의 토대에 대해서 설명하고자 하였다. 선거정치과정에 있어서 예비선거제도, 후보중심의 선거운동, 높은 재선율 등은 당선된 의원이 정당 지도부의 영향력에서 독립하여 자율적으로 의정활동을 수행할 수 있게 해 주는데 기여했다. 그리고 상임위원회제도는 자율적인 의원들이 자신의 영향력을 극대화하면서 정책전문성을 발휘하여 의회전체가 집행부에 대해서 독자적인 정책대안을 제시할 수 있게 해 주었다. 이와 같이 선거정치과정을 토대로 나타난 의원 개인의 자율성이 의회제도 수준에서 상임위원회를 통해서 의회 전체의 자율성으로 발현됨으로써 미국의회는 견제와 균형, 그리고 권력분립의 원칙에 따라서 대통령과 함께 명실상부한 국정의 동반자로 기능할 수 있게 된 것이다.
Abstract
This article aims to analyze the foundations of the legislative autonomy of U.S. Congress. The thesis unfolds into two mutually related domains, individual member’s electoral politics on the one hand and the standing committee system in Congress on the other hand, arguing that when combined, the two domains help Congress enhance its policy-related autonomy vis-a-vis the executive branch. More specifically, a member’s autonomy gained through his electoral campaign—including primary election, candidate-centered campaign, and high reelection rate—and the standing committee system, where the elected member can accumulate policy expertise, are the foundations of congressional autonomy. A congressional candidate, selected through the primary system, where the party leadership’s pulse is less felt than in the traditional caucus-convention system, and running the campaign on his own, can be a best model of an independent member of Congress when elected and working in Congress. The standing committees, on the other hand, by providing the committee members with opportunities to repeatedly delve into committee jurisdiction-specific policy areas, help the members to grow as and remain experts when it comes to their policy turf. In this way, when a member’s electoral independence is coupled with the institutional support, such as the committee system, where policy expertise reinforces the member’s autonomy, Congress as a whole stands on its own in its interaction with the executive branch.
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