지역경제 활성화를 위한 방법론으로서의미국 ‘지역재투자법’ :지역금융의 ‘사회적 조정’에 초점을 맞춰
The U.S. “Community Reinvestment Act.” as a Methodology for Revitalizing the Local Economy :Focusing on ‘social adjustment’ of finance
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초록
미국의 이른바 ‘지역재투자법(이하 CRA)’은 한 도시 내 저소득 지역 및 중간소득 지역의 신용대출 수요를 해당 지역에서 영업활동을 하고 있는 금융기관 즉 대형 상업은행들이 충족시킬 것을 의무화함으로써 지역금융 전체를 활성화하는 것을 목적으로 하는 법제도이다. 미국 연방정부 차원의 금융감독 당국은 CRA가 의무화하고 있는 금융기관의 지역재투자 수행 여부를 감독하고 있으며, 이들 금융감독 당국은 상업은행들이 CRA의 목적에 부합된 형태로 운영되고 있는지에 대해 평가를 시행하고 또 그에 맞는 등급을 매긴다. CRA 평가에서 지역재투자 활동에 관한 ‘만족스러움’ 이상의 등급을 받은 상업은행은 다른 금융기관을 인수하거나 지점을 설치하는 등의 경영 활동에 있어서 그 어려움이 적어진다. 바로 이와 같은 금융감독 당국의 법적인 규제로 인해, 미국의 상업은행들은 의무적으로 해당 영업지역의 저소득층, 저신용등급자, 담보능력을 갖추지 못한 자, 재무제표상의 실적을 갖추지 못한 사업체, NGO, 그리고 협동조합 등의 사회적경제기업과 같은 이른바 ‘금융 약자’들의 신용대출 수요에 의무적으로 대응할 수밖에 없게 되는데, 이로 인해 CRA는 지역 금융시장 내 ‘금융배제 ’현상을 완화하고 지역경제 전반을 활성화하는데 크게 기여하고 있음을 알 수 있다. 그리고 본고에서는 이와 같은 미국 CRA의 기본 내용에 관해 살펴보는 것을 넘어, 미국 CRA를 둘러싼 여러 논쟁의 논점들을 검토해봄으로써 한국형 지역재투자법을 법제화하고 제도화하는 데 있어서의 여러 단서들과 관련 논쟁에서의 유의사항들을 추출할 수 있었다. 마지막으로 CRA는 지역 내 금융시장(상업은행)에 대한 국가와 시민사회의 동시적인 통제를 가능케 한다는 점에서 매우 진보적인 의의를 갖는다. CRA는 위에서 언급한, 지역 금융시장에 대한 연방 정부 차원의 금융감독 당국에 의한 ‘국가적 조정’과 함께 지역 내 금융시장을 시민사회가 직접적으로 관여하고 통제하며 또 기획해낼 수 있게 하는 즉 ‘사회적 조정’을 작동시킨다. 이는, 방임적인 자유시장의 폭주를 견제하고자 하는 진보적인 공공정책과 시민실천의 방법론 모색에 있어서도 매우 중요한 단서로 작용하게 될 것이다.
Abstract
The so-called 'Community Reinvestment Act. of 1977 (hereafter CRA)' in the United States makes it mandatory for financial institutions operating in the region or community, that is, large commercial banks, to meet the demand for credit loans in low- and middle-income regions within a city, thereby regulating the entire regional finance. It is a legal system aimed at activating The U.S. federal government-level financial supervisory authority oversees whether financial institutions subject to the CRA conduct regional reinvestment. Implemented and graded accordingly. Commercial banks that receive a rating of “satisfactory” or higher for community reinvestment activities in the CRA evaluation have less difficulties in business activities such as acquiring other financial institutions or establishing branches. Due to the same legal regulations of the financial supervisory authority, large commercial banks in the United States are obliged to engage the low-income class, the poor credit rating, the insecure person in the business area, the business entity with the financial statement lack of a track record, the NGO, and the cooperative It becomes obligatory to respond to the credit loan demand of the so-called 'financial underdogs' such as social economy enterprises such as cooperatives. As a result, the CRA greatly contributes to alleviating the 'financial exclusion' phenomenon in the local financial market and revitalizing the overall local economy. In addition to examining the basic contents of the US CRA, in this paper, several clues and considerations in the relevant debates in enacting and institutionalizing the Korean Community Reinvestment Act. are reviewed by examining the issues of various controversies surrounding the US CRA. Lastly, CRA has very progressive significance in that it enables the simultaneous control of the state and civil society over the local financial market (large commercial banks). CRA, along with the above-mentioned 'national adjustment' by the federal financial supervisory authority for regional financial markets, is a 'social adjustment' that enables civil society to directly engage, control and plan regional financial markets. This will act as a very important clue in the search for a radical public policy and civic movement method to check the runaway of the laissez-faire free market.
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