영상산업정책의 유럽화: 초국가적 정책네트워크의 정치
The Europeanization of Audiovisual Policy: the Politics of Supranational Policy Network
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본 연구는 1989년 TVWF 지침이라는 유럽연합 영상산업 정책의 출현과 2007년 AVMS 지침의 개정으로 영상산업 정책이 경제적 영역에서 문화적 영역으로 심화 발전되어 가고 있는 현상을 이 분야의 유럽화로 보고 그 원인과 추동력을 분석하는데 목표가 있다. 영상물은 경제적 상품인 동시에 문화적 성격을 갖고 사유재인 동시에 공공재라는 특수성을 갖는다. 또한 유럽 각국은 문화정책 분야에서 상이한 전통을 가지고 있다. 따라서 이 분야의 유럽화는 다양한 정책주체들의 이해관계가 상호작용한 결과라고 볼 수 있다. 이 글에서는 정책결정과정에 참여하는 정책행위자와 그들 간의 자원의존적 관계에 중점을 두고 영상산업 정책 결정과정에 참여하는 정책 주체들이 각각 자신이 선호하는 방향으로 정책이미지와 정책 논의장소를 전환시키며 초국가적 지지연합을 형성했다고 주장한다. 또한 TVWF 지침이 채택된 1980년대의 EU로비 환경과 비교하여 AVMS로 개정된 2000년대에는 문화이익을 포함한 다양한 이익집단이 EU에 직접 로비가 가능한 제도적 틀이 마련되었다. 자원의존적 관계에 놓여있는 EU 관료와 이익집단들은 공식적인 정책결정 이전에 자문과 포럼 등과 같은 비공식적 거버넌스에 지속적으로 참여함으로서 EU 정책결정에 영향을 미친다. 본 논문은 이와 같이 EU 정책결정과정에 참여하는 행위자 수 증가와 임시적 지지연합을 형성하는 초국가적 정책네트워크의 출현이 결국 이 분야의 유럽화를 심화시킨 원인이라 주장한다.
Abstract
The objective of this study is to analyze the reason of the Europeanization in the audiovisual sector which means that European audiovisual policy is developed and the sector’s governance takes place at the supranational level such as TVWF directive in 1989 and AVMS directive in 2007 by further expanding to the cultural area. For this, the thesis scrutinize policy networks on audiovisual sector and explore how they come to reach the compromise among different member states and interest groups at the European level. This thesis assumes that not only the EU Commission can be characterized as a policy entrepreneur in the audiovisual and furthermore cultural sector to mobilize as many policy actors as possible, but also the member states wanted to secure the policy outcomes closer to their interests at the European level. It seems that the Europeanization process in the audiovisual sector can be characterized by the interaction of two conflict policy images and venues. On the one hand, European institutions and certain private actors favoured an approach based on the application of economic principles to audiovisual policy. On the other, member states with strongest policy preferences and ‘cultural’ interest groups attempted to lock in its preferred policy model at the EU level by actively participating in the informal decision making process such as consultation process and forums lead by EU commission. Finally, this study contends that the emergence of the ‘supranational and multi-level ad-hoc advocacy coalition’ led the Europeanization in this area.
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