코로나 팬데믹과 독일의 자유주의적 민주주의: 2020~22년 경험과 논쟁에 대한 성찰
COVID-19 Pandemic and Liberal Democracy in Germany: Reflections on the Experience and Controversies of the Years of 2020-2022
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이 글은 지난 코로나 팬데믹 동안 독일이 걸었던 험난한 길을 추적하고 재구성하면서 팬데믹이라는 급박한 상황에서 자유주의적 민주주의가 어떻게 작동했고 어떤 압력에 노출되었는지 분석하고자 한다. 이 작업은 두 단계를 거치면서 진행된다. 우선 제2장에서는 독일에서 코로나 팬데믹이 전개되는 양상과 더불어 어떤 방역조치들이 등장했는지 간략히 추적하며 재구성한다. 다양한 이름을 가진 이 방역조치들의 핵심은 감염 상황이 악화될 때는 연방정부의 지휘가 강화되었고 기본권을 제한했지만, 감염 상황이 개선되면 주정부와 지방자치체로 권한이 이양되었고 기본권을 보장하려 시도했다. 제3장은 독일이라는 자유주의적 민주주의를 기본원리로 작동하는 의회제 연방주의 국가가 코로나 팬데믹을 통해 어떤 긴장과 어려움에 노출되었는지 네 가지 측면에서 주목하려고 한다. 첫째, 팬데믹 상황에서도 사적 영역의 보호라는 자유주의적 원칙이 포기되지 않았기에 스마트폰 등을 활용한 추적과 감시 같은 기술적 대응이 등장하지 않았다. 둘째, 팬데믹을 일종의 긴급 상황으로 해석하고 비상사태를 선언했더라면 연방정부가 보다 효율적으로 방역을 주도할 수 있었을 것이다. 그러나 이는 역사적·정치적으로 가능한 대안이 아니었고, 의회제라는 주권의 구성원리 안에서 방역조치를 시행했다. 셋째, 팬데믹은 독일의 연방주의에도 큰 시련을 의미했다. 그럼에도 불구하고 팬데믹 상황에서도 연방제의 근간은 유지되었으며 감염상황이 개선되면 주정부에 방역권한을 이양하는 방식으로 문제를 해결하였다. 넷째, 팬데믹과 더불어 자유권과 생명권이 충돌하는 사상 초유의 사태가 벌어졌다. 생명권의 보호를 위해 자유권을 일정 기간 유보하는 것을 강제하기 위해서는 논리와 설득이 필요했다. 이 논리는 사회적 접촉의 자제, 즉 개인들의 자발적인 자유의 유보가 수많은 생명을 구할 수 있다는 식의 설득과 호소에 기반을 두고 있었다.
Abstract
This article aims to analyze how liberal democracy operated and what pressures it was exposed to during the urgent situation of the COVID-19 pandemic through tracing and reconstructing Germany's arduous walk during this period. This work is conducted in two stages. At the first stage, in Chapter 2, it briefly traces and reconstructs the development of the COVID-19 pandemic in Germany and the emergence of various containment measures. The key aspect of those variously named containment measures is that when the infection situation worsened, the federal government's command authority was strengthened while the basic civil rights were restricted. However, as the infection situation improved, the federal government’s authority was transferred to state and local governments with attempts to guarantee basic rights more. In Chapter 3, this paper focuses on the tensions and challenges that Germany, a parliamentary federation based on the principles of liberal democracy, has faced during the COVID-19 pandemic from four perspectives. Firstly, even in the pandemic situation, technological responses such as surveillance and tracking of mobile phones did not emerge because the principle of protecting personal privacy, a fundamental core of liberal democracy, was not completely disregarded. Secondly, the containment measures were implemented only within the boundary of parliamentary sovereignty principle in Germany. If the pandemic had been regarded as an emergency and, thus, a state of national emergency had been declared, federal government could have enforced more efficient containment measures from the start. However, it was not a historically or politically viable alternative in Germany. Thirdly, the pandemic posed significant challenges to German federation system. Nevertheless, even in the pandemic situation, the foundation of federalism was maintained, and the problem was resolved by transferring containment authority to state and local governments as the infection situation improved. Fourthly, to enforce containment measures efficiently, which involved temporal suspension of the right to freedom in order to protect the right to life, better logical reasoning and persuasion were required. More appealing persuasion for raising containment measures was actually based on the logical reasoning of voluntary restraint of individual freedom by saying that less social contact could save more lives in the end.
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