전환기 중국 중앙경제관료조직 개혁과정부 조정기능의 변화: 국가경제무역위원회 사례 연구
Chinese Bureaucracy in the Time of Economic Transition: the Case of State Economic and Trade Commission
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중국의 사회주의경제가 시장경제로 성공적으로 전환해 가면서, 그에 수반된 다양한 제도적 개혁에 대한 연구가 활발히 이루어져 왔다. 이 논문은 그 전환의 중심에 있음에도 불구하고 상대적으로 간과되어 온 정부조직의 개혁, 특히 중앙정부 경제관료조직 개혁에 대한 연구이다. 사례는 중국경제의 시장화가 본격적으로 추진되기 시작한 1990년대에 중국 중앙정부 내 최고 조정기구로 부상했다 2003년에 해체된 국가경제무역위원회이다. 국가경제무역위의 해체를 시장화에 따른 거대 경제관료조직의 쇠퇴와 정부개입의 축소 사례로 이해하는 기존의 관점과는 달리, 이 논문은 관료조직 내의 역사적 경쟁관계의 맥락 속에서 국가경제무역위의 개혁 과정을 분석한다. 결국 국가경제무역위의 해체는 경쟁 부처로의 기능과 권한 재분배로 귀결되었으며, 오히려 그 과정에서 시장화 시대에 더욱 중요한 정부의 조정기능은 약화되었다. 국가경제무역위의 개혁사례는 중국이 급속한 시장경제로의 전환을 겪는 중에도 정부역할의 축소를 위한 관료조직 개혁은 쉽게 일어나지 않을 것임을 시사한다.
Abstract
There has been abundant studies on institutional reform in diverse sectors of China’s transitional economy, yet not much is known about the institutional reform of the Chinese bureaucracy that has managed the transition. This paper attempts to illuminate the institutional changes of the Chinese central economic bureaucracy in the time of economic transition. It focuses on the institutional changes of the State Economic and Trade Commission (SETC), which was the top coordination agency within the Chinese bureaucracy during the 1990s when active marketization of Chinese economy had begun. This paper focuses on the changes in the SETC's coordination function and argues that the SETC reform should be understood in the context of historic rivalry within the Chinese bureaucracy. Despite dominant reform rhetoric, the SETC abolition in 2003 was intended more for the redistribution of power within the bureaucracy than for the reduction of government role under the pressure of economic opening and marketization. The outcomes of SETC abolishment suggest that, despite dominant reform rhetoric, significant retreat of the Chinese central bureaucracy from the economy would not easily take place.
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