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약탈적 생산주의를 넘어: 신질서체제 이후 인도네시아의 복지자본주의

Beyond Predatory Productivism?: The Political Economy of Welfare Capitalism in Post-New Order Indonesia

Andrew Rosser|Maryke van Diermen
아시아연구소|2016.02|아시아리뷰 (Asia Review)|제5권 제2호|pp. 157-184

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인도네시아Indonesia복지자본주의welfare capitalism신질서체제약탈적 생산주의Predatory productivismpost-New Order
주제분류사회과학일반

초록

이 글은 최근 몇십 년 동안 이루어진 인도네시아 복지자본주의의 진화와 이 과정에서 형성된 정치적 역학을 검토한다. 이를 정치세력과 사회세력의 대결(contestation) 그리고 이들 간의 세력균형 측면에서 바라보며, 인도네시아 복지자본주의의특성을 이해할 수 있는 분석적 관점을 사용해 설명한다. 신질서체제 시기의 인도네시아는 ‘생산주의적’이고 ‘약탈적’인 특성을 가진 복지자본주의의 형태로 발전했고, 이 복지자본주의는 포스트-신질서체제 시기까지 이어졌다. 이러한 결과는 약탈적 군대와 관료 공무원, 국내ㆍ외 기업군, 자유주의적 경제-기술관료, 그리고 유동자본 통제자들의 정치적 지배가 신질서체제 시기부터 포스트-신질서체제까지 지속되고 있기 때문이라고 본다. 신질서체제 붕괴 이후 이루어진 민주주의의 분권화는 인도네시아의 정치 리더들에게 빈곤층에 우호적인 사회정책을 도입할 수 있는 선거경쟁 인센티브를 제공했고, 동시에 빈곤층과 이들과 연계된 NGO 운동 연합이 활동할 수 있게 만들어 주었으며, 이들은 그러한 정책들을 강력히 밀어붙였다. 하지만 지배세력은 충분한 정치적 영향력을 갖고 있었기 때문에, 정부의 사회정책 계획을 제한적이고 경제성장에 도움이 되는 분야이면서 한편 약탈적 네트워크에 포획될 수 있는 것으로 제한할 수 있었다. 그러므로 인도네시아에 도입된다양한 사회복지 프로그램이 진보적 형태를 띄고 있었음에도 인도네시아의 복지자본주의는 신질서체체에서 그랬던 것처럼 여전히 ‘생산주의적’이면서도 ‘약탈적’인 성격이었다.

Abstract

This paper examines the evolution of welfare capitalism in Indonesia inrecent decades and the political dynamics that have shaped this processby using an analytical framework that understands the nature of welfarecapitalism in terms of contestation between competing political and socialforces and the balance of power between them. During the New Orderperiod, Indonesia developed a form of welfare capitalism that was bothproductivist and predatory in nature and this has continued into the post-New Order period. We argue that this outcome reflects the continued political dominance ofpredatory military and bureaucratic officials, domestic and foreign businessgroups, liberal economic technocrats, and controllers of mobile capitalthroughout the New Order and post-New Order periods. Democraticdecentralization following the fall of the New Order has created anelectoral incentive for political leaders to introduce pro-poor socialpolicies while opening up spaces for the poor and their allies in the NGOmovement to push for such measures as well. But the ruling coalitionhas retained sufficient political strength to ensure that the government’s social policy initiatives remain limited, focused on areas that contributeto economic growth, and/or subject to capture by predatory networks. Accordingly, we suggest that welfare capitalism in Indonesia has remained essentially productivist and predatory in nature, as it was under the NewOrder, even as the introduction of several new social programmes hasserved to give it progressive features.

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