국제이주의 글로벌 거버넌스: 민주화를 위한 차원 간 균형의 함의를 중심으로
Global Governance of International Migration: Implications for Democratizing Global Governance
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본 연구는 글로벌 거버넌스에 대한 비판적 관점 중에서, 특히 전 지구적 차원과 국민국가 차원 간의 균형을 소홀히 함으로써 글로벌 차원에서의 참여 확대만을 일방적으로 강조하는 것의 이론적, 실천적 문제점에 주목하였다. 이러한 관점에서 최근 이주법 개정을 통과시킨 독일의 사례를 통해, 글로벌 차원의 국제이주 거버넌스 제도의 형성과 활동이 국민국가 차원의 거버넌스 제도에 어떤 영향을 가져왔는지를 경험적으로 고찰하였다. 독일의 사례연구는 글로벌 거버넌스 제도의 형성과 활성화가 국민국가 차원에서 지속되어 왔던 거버넌스 제도의 역사적 단절을 가져왔음을 잘 보여주고 있다. 이러한 경험적 연구 결과는 글로벌 거버넌스의 민주화 논의가 글로벌 거버넌스 제도 자체의 민주적 형성에 지나치게 집착함으로써, 그것이 국민국가 차원의 민주주의에 가져오는 부정적 효과에 대해서는 자칫 소홀할 수 있다는 것을 잘 보여준다. 후자에 관한한, 글로벌 거버넌스 제도의 형성과정이 어느 정도의 민주적인가는 별로 중요하지 않다. 글로벌 거버넌스 제도 자체가 충분히 민주적이라 할지라도, 그것이 국민국가와의 불균형 속에서 가져올 수밖에 없는 부정적 효과에 대해서는 아무 말도 할 수 없기 때문이다. 결국 글로벌 거버넌스의 민주화의 핵심적인 한 축은 글로벌 차원과 지역적 차원을 매개해 주는 “민주적인” 국민국가의 역할에 주어져야 한다.
Abstract
Theoretically, this study starts with the assumption that more participation in, and more transparency of global governance institutions are not the only solution for democratizing global governance. Special consideration should be given to the balance between the levels when trying to promote "democratic" global governance. This study aims to reveal the reality of unbalance between the global and the national levels and its implication for the theoretical assumption, studying the case of international migration governance in particular. The research question is as follows: what is impact of launching global migration governance institution upon the governance institution at the national level? The empirical research focuses on the German immigration law reform process. The results show that the efforts to promote global migration governance institutions since 2000 at the global level resulted in the unexpected demise of the German typical corporative governance institutions in the policy process around the immigration law reform: it was conditioned by political calculations, not by institutionalized democratic policy process. It implies that you are likely to neglect the negative impacts of promoting global governance institutions upon the "democratic" governance institution which has been working, while focusing mainly on democratizing the global governance institutions itself, not the balance between the two levels. In conclusion, the one axis of democratizing global governance should be given to the 'democratic' nationstate which mediates between the global and the local.
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