유엔군사령부 기능 변화에 따른 발전방향에 관한 연구 : 역사적 신제도주의의 경로의존성을 중심으로 = A Study on the Future Direction for the United Nations Command Following Changes in its Functions: Focusing on Path Dependence in Historical Institutionalism

국문 초록 (Abstract)

본 연구는 유엔군사령부가 1950년 창설 이후 70여 년간 해체되지 않고 제도적 지속성을 유지해 온 이유를 역사적 신제도주의 관점에서 분석한 것이다. 아울러, 이러한 변화의 원인ㆍ과정ㆍ결과가 유엔사의 미래에 어떤 함의를 갖는지를 함께 고찰하였다. 기존 연구가 유엔사의 법적 지위나 특정 이슈에 한해 설명해 온 데 반해, 본 연구는 유엔사를 하나의 ‘제도적 행위체’로 규정하고, 장기적 관점에서 그 지속성과 변화 메커니즘을 통합적으로 분석하였다.
이를 위해 본 논문은 제도 변화 분석을 위한 이론적 틀로 역사적 신제도주의의 ‘경로의존성’과 Mahoney & Thelen(2010)이 제시한 ‘점진적 제도 변화’의 유형을 적용하였으며, 유엔사 제도 변화를 한미 간 지휘구조 변화를 기준으로 정착기(1950~1977), 조정기(1978~1993), 정체기(1994~2005), 재구조기(2006년 이후)의 네 시기로 구분하여 연구하였다.
분석의 세 가지 수준에 따른 주요 영향요인으로, 거시적 환경 수준에서는 국제정세와 미국의 안보전략을, 제도적 맥락 수준에서는 한미관계와 남북관계를, 주요 행위자 수준에서는 한미 대통령 등을 설정하였으며, 결과요인은 유엔사의 네 가지 핵심 기능인 전쟁 수행, 전쟁 억제, 정전체제 관리, 회원국 전력제공으로 정하여 연구를 진행하였다.
연구결과, 각 시기마다 유엔사의 제도적 변화는 외부 안보환경 변화에의 적응, 제도적 제약 조건의 대응, 행위자의 전략적 선택이 상호작용하는 과정을 통해 나타났으며, 유엔사의 네 가지 기능은 시기별로 의미와 운영 방식이 다르게 적용되었다. 정착기에는 상기 네 가지 기능을 행사하는 초기 제도적 기반이 마련되었고, 조정기에는 작전통제권(전쟁 수행 기능) 이양이라는 외형적 변화에도 불구하고 여타 기능이 재배치되면서 제도적 지속성이 유지되었다. 정체기에는 상위 규범과 제도적 관성이 유엔사의 최소 기능을 유지하는 기반이 되었으며, 재구조기 이후에는 다국적 협력 구조 강화 등 회원국 전력제공 기능이 대폭 강화되는 제도적 조정이 지속적으로 누적되었다. 이는 기존 제도의 틀 내에서 기능의 재해석과 활용 방식이 조정되는 ‘전환(conversion)' 유형의 점진적 제도 변화임을 확인하였다.
본 연구는 이러한 유엔사의 기능 변화를 규명하고, 이를 토대로 두 가지 제도적 발전방향을 제시하였다. 첫째, 안보리 결의·정전협정·후방기지 체계 등 기존 상위 규범에 대한 법적·운영적 명료성을 확보하여 유엔사의 국제적 정당성을 강화할 필요가 있다. 둘째, 재구조기 이후 확대된 전력제공국 네트워크를 정례화·표준화하도록 제도화함으로써 다국적 협력 기반을 안정적으로 발전시킬 필요가 있다. 이러한 발전방향은 유엔사가 변화하는 안보환경 속에서도 제도적 지속성을 유지하며 중요한 안보자산으로서의 전략적 역할을 수행하는 데 크게 기여할 수 있을 것이다.
본 연구는 유엔사의 기능 변화와 제도적 지속성을 장기적·구조적으로 분석함으로써 안보 분야에서 역사적 신제도주의의 적용 가능성을 확장하였으며, 향후 한반도 안보체제 논의에서 유엔사의 가치와 활용 방향을 설정하는 데 참고할 수 있는 분석 틀을 제공하였다.

목차 (Table of Contents)

• 목 차
• 국문 초록 ············································································ I
• 제1장 서론 ·········································································· 1
• 제1절 연구의 배경 ·································································· 1
• 제2절 연구의 범위 및 방법 ······················································· 5
• 1. 연구 범위 ······································································· 5
• 2. 연구 방법 ······································································· 6
• 3. 연구의 구성 ····································································· 8
• 제2장 이론적 배경 및 선행연구 ··············································· 10
• 제1절 유엔군사령부에 관한 일반적인 고찰 ···································· 10
• 1. 유엔사의 편성 및 조직 ······················································ 10
• 2. 유엔사의 임무 ································································· 12
• 제2절 신제도주의 ································································· 14
• 1. 신제도주의의 개념과 등장 배경 ············································ 14
• 2. 신제도주의의 세 가지 유형 ················································· 15
• 3. 역사적 신제도주의의 핵심 개념: 경로의존성과 점진적 제도 변화 ···· 16
• 제3절 선행연구 검토 ····························································· 18
• 1. 유엔군사령부에 대한 연구 ·················································· 18
• 2. 국방정책 및 군사조직 관련 제도주의 연구 ······························· 26
• 제3장 연구설계 및 방법 ························································ 32
• 제1절 분석의 세 가지 수준 ······················································ 32
• 1. 거시적 환경(국제정세, 미국의 안보전략) ································· 32
• 2. 제도적 맥락(한미 관계, 남북 관계) ······································· 34
• 3. 행위자(한미 대통령 등) ····················································· 35
• 4. 거시적 환경ㆍ제도적 맥락ㆍ행위자에 대한 통합적 접근 ··············· 36
• 제2절 연구의 구성요소와 분석틀 ··············································· 40
• 1. 구성요소 설정 ································································· 40
• 2. 분석틀 ·········································································· 41
• 제4장 유엔군사령부 형성 및 변천 과정 ··································· 44
• 제1절 정착기: 유엔사 작전통제권 행사 시기(1950～1977) ················· 45
• 1. 유엔, 유엔군사령부 창설(1950) ············································ 46
• 2. 조ㆍ중측과 정전협정 체결(1953) ·········································· 48
• 3. 전쟁 억제 및 정전체제 유지 활동(1953년 이후) ························ 50
• 4. 유엔, 총회에서 유엔사 해체 결의안 의결(1975) ························· 51
• 제2절 조정기: 작전통제권 한미연합사 이양 시기(1978～1993) ············ 52
• 1. 한미연합사로 작전통제권 이양(1978) ····································· 52
• 2. 일본 후방기지 활용 재확인(1983) ········································· 54
• 3. 정전체제 유지와 억지력 기능 지속 ········································ 55
• 제3절 정체기: 평시 작전통제권 한국군 전환 시기(1994～2005) ··········· 56
• 1. 실질 기능 축소와 상징적 기구화(1994～1997) ·························· 57
• 2. 구조 정비와 제도적 기반 확충(1998～2005) ···························· 58
• 제4절 재구조기: 전작권 한국군 전환 합의 시기(2006년 이후) ··········· 60
• 1. 전작권 전환 논의 속 전략기구로 재부상(2006～2014) ··············· 60
• 2. 전략 문서 체계화와 제도 기반 확대(2014～2018) ···················· 61
• 3. 재활성화 발표와 구조 정비 완료(2018년 이후) ························ 62
• 제5장 시기별 유엔군사령부 기능 변화 ····································· 65
• 제1절 정착기(1950～1977) 기능 변화 ········································· 66
• 1. 거시적 환경 ··································································· 66
• 2. 제도적 맥락 ··································································· 74
• 3. 행위자 ·········································································· 78
• 4. 소결론: ‘전환’ 유형의 경로 진화 ··········································· 84
• 제2절 조정기(1978～1993) 기능 변화 ········································· 87
• 1. 거시적 환경 ··································································· 87
• 2. 제도적 맥락 ··································································· 93
• 3. 행위자 ·········································································· 97
• 4. 소결론: ‘전환’ 유형의 경로 진화 ········································· 102
• 제3절 정체기(1994～2005) 기능 변화 ········································ 105
• 1. 거시적 환경 ·································································· 105
• 2. 제도적 맥락 ·································································· 112
• 3. 행위자 ········································································ 115
• 4. 소결론: 구조 유지 ＋ 부분 조정의 변화 ································ 119
• 제4절 재구조기(2006년 이후) 기능 변화 ····································· 122
• 1. 거시적 환경 ·································································· 122
• 2. 제도적 맥락 ·································································· 129
• 3. 행위자 ········································································ 132
• 4. 소결론: ‘전환’ 유형의 경로 진화 ········································· 138
• 제5절 시기별 유엔사 기능 변화 종합분석과 발전방향 ····················· 141
• 1. 시기별 유엔사 기능 변화의 종합적 분석 ································ 141
• 2. 유엔사 기능 변화에 따른 제도적 발전방향 ····························· 143
• 제6장 논의 및 결론 ······························································ 145
• 제1절 논의 ········································································ 145
• 제2절 연구의 시사점 및 향후 과제 ··········································· 148
• 참고문헌 ·········································································· 152
• ABSTRACT ····································································· 164