트럼프 이후 바이든 시대 미국 의회-대통령 관계와 북한 정책 변화
Legislative-Executive Relations from Trump to Biden and the New Dimensions of North Korea Policy Making
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외교 정책 결정을 둘러싼 미국 의회와 대통령의 권한 및 역할에 대한 논란은 그 역사가 길다. 최근에는 비(非)개입주의와 국방비 증강이라는 전례 없던 정책 조합을 국내 정치 용도로 이용했던 공화당 대통령 트럼프로 인해 외교 정책과 관련된 국내 정치가 복잡성을 더해 가고 있다. 바이든 행정부가 추구하는 미국 글로벌 리더십 복귀의 의미와 성격에 대한 논쟁이 벌어지는 배경이기도 하다. 본 연구는 이러한 미국 정치 변화 흐름에 대해 대통령-의회 관계 관점으로 살펴봄으로써 트럼프 이후 바이든 시대 미국은 북한 이슈를 어떻게 다루는지 분석한다. 117대 미국 의회는 개원한지 1년이 되지 않은 시점이지만 북한과 관련된 다양한 법안과 결의안들을 이미 쏟아내고 있다. 특히 북한 핵무기 개발 관련 위기가 고조되었던 오바마 및 트럼프 시대에 넘쳐났던 제재 법안들과 달리 바이든 시대에 공화당 및 민주당 진보파가 자신들의 정치적 목표에 따라 북한 이슈에 관심을 보이고 있다. 트럼프 영향으로 인해 국제 이슈의 미국 정치화(Americanization)가 일상화된 국면에서 미국의 글로벌 리더십 복귀를 천명한 바이든 대통령 시대에 미국 의회가 제시하는 다양한 북한 정책 및 접근법은 체계적 분석을 요구한다. 동상이몽(同床異夢)의 미국 내 정치 세력이 새로운 미국 대외 정책 방향을 모색하는 중이다. 결국 한미 동맹, 미중 갈등, 북미 관계 등 거의 모든 외교 영역에서 미국의 국내 정치-국제 관계 상관성은 이제 변수가 아닌 상수가 되었다. 바이든이 복귀시키려는 미국의 글로벌 리더십에 대해 미국 정치 내외의 다양한 관점과 체계적 해석이 더욱 중요해지고 있다.
Abstract
Since the founding days, the American position on foreign relations has been an “invitation to struggle” between Congress and the president. Former President Trump, who called for two conflicting goals simultaneously — non-interventionism and defense build-up — has further complicated the institutional and partisan dimensions of US foreign policy making. This is yet another reason why analysts and pundits alike continue to debate on the true nature of the Biden administration’s “America back” claim, which stands contrary to the “America first” motto of the previous administration. Biden, known as the so-called “transition candidate” during the campaign, seems to have a grasp on handling the chasm between moderates and progressives after entering the Oval Office. This article illuminates the changes and continuities of America’s response to North Korea in the post-Trump era and during Biden’s “First One-hundred Days.” On different issues ranging from China tariffs to North Korea, the Trump period supposedly “Americanized” foreign policy; in contrast, the Biden administration is making an ongoing effort to internationalize foreign policy by talking to global allies, not domestic voters. In addition, the 117th US Congress is introducing and debating a host of bills related to North Korea, ranging from the reunion of separated-families to the restriction of WHO funds for the Pyongyang regime. This analysis weighs in on domestic politics and foreign policy in the context of the Trump and Biden presidencies, elaborating on how US foreign policy is continuing or changing concerning challenges presented by North Korea.
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