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탈사회주의 이후 중⋅동유럽 고위공무원의 정치화에 관한 비교 연구

Politicization of Senior Civil Service in Central and Eastern Europe After Socialism

이은구
한국유럽학회 (The Korean Society Of Contemporary European Studies)|2018.02|유럽연구 (The Journal of Contemporary European Studies)|제36권 제1호|pp. 171-206|DOI 10.17052/jces.2018.36.1.171

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헝가리HungaryCentral and Eastern Europe체코폴란드Poland슬로바키아SlovakiaCzech Republic중⋅동유럽
주제분류지역학

초록

본 연구의 목적은 폴란드, 체코, 슬로바키아, 헝가리 등 중⋅동유럽 4개국을 대상으로사회주의체제 붕괴 이후 고위공무원의 정치화 현황을 비교⋅분석하여, 행정 민주화 및민주주의의 공고화 관점에서 평가하고 그 시사점을 도출하는 것이다. 이를 위해 우선공무원 인사제도 개혁의 근거가 되는 이론적 검토 사항으로 중⋅동유럽 국가에서 논의된 현대적 관료제 개혁 이론과 유럽화 이론을 살펴보고, 중⋅동유럽 고위공무원제도의특징에 관해 각 국가별로 정리하였다. 이후 중⋅동유럽 4개국 고위공무원의 정치화 현황을 1급 공무원에서 4급 공무원까지 국가별로 비교하고, 이를 토대로 평가하였다. 연구 결과 중⋅동유럽 4개국 가운데 폴란드와 슬로바키아의 고위공무원의 정치화가가장 높았으며, 다음으로 헝가리 그리고 체코 순으로 나타났다. 고위공무원의 비정치화문제는 사회주의식 당⋅국가 관계의 중추적 역할을 담당하였던 노멘클라투라의 청산과현대적 관료제를 수립하기 위한 우선적 과제이자 EU 회원국이 되기 위한 주요 실천과제였다. 그러나 중⋅동유럽 4개국은 국내 정치적 요인으로 인해 고위공무원의 정치화를 심화시켰을 뿐 아니라 EU 가입 이후에는 더욱 퇴행하는 경향을 보임으로써 ‘신노멘클라투라체제’를 구축하였다. 이에 본 연구는 앞으로 중⋅동유럽 4개국의 고위공무원의 정치화는 당분간 지속적으로 심화될 것이며, 이는 행정민주화는 물론 민주주의의 공고화에 역행할 것으로 전망하였다.

Abstract

The politicization of senior civil service was a key feature of the socialist administration. The strong nomenclature was an important institution for control the state and the society. Political and ideological reliability remained a key criterion for the selection of appointees until the end of the socialist regimes. Although the new democratic regimes announced to establish professional and de-politicized civil service system after socialism, the politicization of the senior civil service remained widespread in Central and Eastern Europe Countries (CEECs) In this context, the study purposed to analyse the politicization of senior civil service in CEECs and to find some of lessons from the viewpoint of administrative democracy and solidity of democracy. The study at first examined the theoretical bases for the reform of modern bureaucracy and Europeanization, and then evaluated the politicisation of senior civil service from level 1 to level 4 in CEECs. As a result, senior civil service politicization was common and “new nomenclature” was established. Poland and Slovakia stood out as the countries with the highest degree of politicization. Politicization reached down level 3 and level 4 into the ministerial hierarchy and was more intense than in the other countries. The Czech Republic and Hungary formed an intermediate group, even though the range and intensity of politicization was closer to Poland and Slovakia. It was predicted that democratization and administrative democracy would be retrograded in CEECs.

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