윌리엄 템플의 중국 내각제 분석과 영국 내각제의 기획·추진 - 공자의 분권적 제한군주정과 영국 내각제의 기원(2)
William Temple’s Understanding of the Chinese Cabinet System and His Design & Institutionalization of the Britain Cabinet System: The Confucian Divided Government of Limited Monarchy and the Origin of the Britain Cabinet System(2)
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초록
중국 내각제는 17세기 중후반 여러 저작과 보고서를 통해 서양에 알려졌고, 특히 영국의 대정치가 윌리엄 템플에 의해 환호 속에 수용되면서 영국에 적용되기에 이르렀다. 템플은 중국제국을 유럽 철학자들의 모든 공상적 유토피아 기획을 극하는 ‘실존하는 유토피아’로 간주했고 공자와 그의 철학을 숭배했다. 또한 그는 명·청대의 중국 내각제를 잘 알고 있었고, 이 내각제에 대해 경탄했다. 템플은 1678년 정치적 궁지에 몰린 찰스 2세의 부름에 응해 국왕과 하원을 타협시키는 획기적 방안으로서 1679년 중국 내각제를 응용하여 ‘신(新)추밀원’을 설계하고 관철시켰다. 템플은 왕권신수설을 신봉하며 ‘절대군주정’을 추구하는 찰스 2세와 ‘고대헌법론’의 관점에서 왕권을 견제하려고 벼르는 의회를 타협시켜야 하는 ‘불가능한 임무’를 중국 내각제의 응용에 의해 성공적으로 완수할 수 있었던 것이다. 템플은 절대군주의 왕권신수설적 또는 왕위천여론적 ‘레토릭’을 조금도 손대지 않으면서 왕권을 소극적·의례적 비준권으로 축소시킨 명·청대의 내각제에서 그 해법을 찾았기 때문이다. 찰스 2세는 1679년 4월 20일 일요일 ‘신추밀원 설치에 관한 선언’을 발표했다. 이 선언에서 국왕은 기존의 추밀원을 해체하고 의회의 주요 지도자를 포함한 신추밀원을 구성하고 향후 왕의 모든 칙령을 반드시 추밀원의 조언을 듣고 발령할 것이며 이제 과거의 ‘외무위원회’와 같은 측근들의 밀실협의체를 활용하지 않을 것이라고 공약했다. 그리고 업무를 효율하기 위해 추밀원 위원의 수를 50명에서 33명으로 축소했다. 이어서 바로 신추밀원을 소집하고 9명의 ‘정보위원회’ 등 4개의 분과위원회를 설치했다. 그리고 추밀원의장이자 의회의원인 섀프츠베리도 참여시킨 이 정보위원회를 국왕과 면의하는 상임위원회로 운영했다. 이 정보위원회는 명·청대의 ‘내각’과 거의 동일한 구조와 기능을 갖추고 유사한 역할을 했다. 이로써 찰스 2세는 내각제적 제한군주정의 시발점을 이루는 ‘The King in Council’로 재탄생했다. 템플과 찰스 2세의 이 원형 내각제는 시행과 더불어 바로 변형되고, 국왕과 의회 간의 격렬한 갈등 속에서 뒤틀린다. 심지어 제임스 2세는 이 추밀원 내각제를 철폐하기까지 했다. 그러나 이 원형 내각제는 명예혁명과 더불어 다시 부활하여 중국 내각제의 발전행로와 유사한 길을 따라 근대적 내각제로 발전하게 되는데, 이에 대한 논의는 다음 기회로 미룰 수밖에 없다.
Abstract
Since the mid 17th century, the Chinese cabinet system of Ming and Ch’ing dynasty was known in the West through the various books and reports, and was accepted with cheers especially by the great statesman Sir William Temple, 1st Baronet(1628‒1699), coming to be applied to the Britain politics. Temple regarded the Chinese Empire as a ‘existing utopia’ which overcame all sorts of imaginary utopian state design ever described by European philosophers, and worshipped Confucius and his philosophy. He well knew and admired the Chinese cabinet system, too. Temple 1678 acceded to the help call of Charles II who was politically driven into the predicament due to the severe defeat in the struggle with the parliament, and 1679 designed and realized a ‘New Privy Council’ plan by applying the Chinese cabinet system to the English Privy Council, in order to rescue the king out of the present political dilemma. By the application of the idea of Chinese cabinet system Temple could accomplish a ‘mission impossible’ to compromise the obstinacy of Charles II who espoused the divine theory of kingship and stuck to the absolute monarchy, and the defiant power claim of the parliament which for once waited for limiting and checking the royal power. Because he found a solution in the cabinet system of Ming and Ch’ing dynasty. This Chinese cabinet system reserved the power of deliberative decision to itself and hereby limited emperor’s absolute power to a passive and formal power of ratification, without desecrating in the least the sacred rhetoric of ‘divine or heavenly’ kingship of a absolute monarch, as fully discussed. On April 20, 1679, Charles II announced ‘A Declaration relating to the Establishment of the New Privy Council.’ In this Declaration he promised to abolish the existing 50‒membered Privy Council, to build a 33‒membered New Privy Council which includes also most important parliamentary leaders, from now on to issue all decrees always after taking the advise of the New Privy Council, and not to use such a clandestine groups of close people as a ‘Foreign Committee’ in the past. And he reduced the personnel size of the Privy Council from 50 to 33. He took follow‒up measures to convene the New Privy Council and to set up such four committees as the ‘Information Committee’ etc.. He managed this 9‒member ‘Information Committee’ including Lord President & leading parliamentary member Anthony 1st Earl of Shaftesbury(1621‒1688) as standing committee over which King presided. This ‘Information Committee’ took nearly same structure and function and played similar role with the cabinet system of Ming and Ch’ing Dynasty. With this governmental reform Charles II was regenerated into ‘The King in Council’, which constitutes the start idea of the monarchy limited by the cabinet system. The prototype cabinet system of well hidden Chinese origin, designed by Temple, was soon after its enforcement transformed, and twisted in the heated conflict between the king and the parliament. James II who 1685 succeeded Charles II went even so far to abolish the New Privy Council and its cabinet system. But Temple’s prototype cabinet system was revived with the Glorious Revolution, and developed to the modern cabinet system according to the similar way with the way of the development of the Chinese cabinet system, but we hold the discussion on it over till next time.
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