韓國 地方議會議員 選擧制度의 發展方案에 관한 硏究 = (A) Study on the Development of Local Councilor Election System in Korea

다국어 초록 (Multilingual Abstract)

This study analyzes some important problems of election system shown in the process of local election for 10 years since the revival of local autonomy system and aims at presenting a developmental method of a desirable local councilor election system.
The analysis of actual status of local election system suggests problems shown in local councilor election due to the following; first, political party's involvement in local election including party's nomination of candidates; second, demarcation of electoral district and councilor number; third, election campaign (method and the public management system for election); fourth, method of electing a representative; and finally, insufficient system for women to secure political representation. And, it is to suggest an alternative to improve the local election system based on such an analysis.
It is considered local councilor election that these problems have been pointed related to the current out as those to be improved by civic organizations and local councilor themselves as well as voters. I agree those are the structural problem of local election system and implementing an improvement method are the best alternatives for developing local autonomy system.
On the one hand, there may be a lot of approaches in grasping the actual status and problems of local election system and seeking ' its improvement methods, but this research examines problems of local election system and its reasons from law, system and operational irrationality, discrepancy and unreality of the system and is primarily concerned with seeking a legal and institutional prescription of it.
A scope of the research was three local elections including the revival of local autonomy system in 1991 and confined to the analysis of problems in the current local election system based on the .above analysis and the suggestion of developmental methods of a desirable local election system.
An analysis of actual status of concrete election system should be conducted with the analysis of local election system and a theoretical discussion of its improvement methods. Theoretical discussion is examined through existing literatures related to local election system and election cases of Korea including foreign countries. This study is based on literature analysis including local election research, statistical data of Election Management Committee, press reports and periodicals. In addition, I refers to my own experiences as one of voter in the process of election and as one of local councilors.
This study is composed of the following systems on the basis of the above research ranges and methods;
Chapter 1 describes the purpose, range, analysis frame and method af the research.
Chapter 2 examines the history of local autonomy system in Korea and change of local election since the establishment of Korean government. It also examines relation between local autonomy and local election, concept and function of local election and the basic principle and contents of local election system.
Chapter 3 investigates the general conditions of Korean local election system prescribed in Election Law and examines the foreign local election cases. Chapter
4 outlines actual stabs of three local elections since 1991 with local councilor election and analyzes the characters and problems of the current local election system. Especially, it suggests problems and alternatives of actual status analysis, and finally, I concluded in Chapter 5.
This thesis draws the problems and alternatives of local councilor election system in Korea from the following sides,
First, it is found that an excessive involvement of a political party in local election might be an obstacle to development of local autonomy. Especially, undemocratic party nomination and election process of a candidate has distorted an essential purport of local autonomy system. For improving these problems, it is not the only concern to exclude a party's involvement in local election thoroughly. As described above, it is pointed out that a political party's involvement in local election or party nomination system are not essential problems, but boss centered undemocratic party management and regionalism is an essential problem. Therefore, an institutional participation device of party, residents and civic organizations should be arranged in order that a democratic candidate selection and nomination can be made within the framework of current system.
Second, from the side of electoral district and councilor number, the single-member electorate system doesn't reflect the local representation of residents exactly and councilor number is not appropriate to reality, considering parliamentary activity services of good quality for residents concerned and giving local councilor salaries. So it will be desirable that the current single-member district should be changed into system of having medium-sized district and multi-member district system. Above all, the introduction of medium-sized and multi-member district systems will be helpful to escape from regionalism. In addition, although the single-member district system will not contribute to reduction of a dead vote, middle-sized and multi-member district systems can reduce a dead vote and it will be able to reflect a local representation sincerely. Further, it will be clear that keeping the current councilor number might cause a serious problem to local finance in a situation of giving the councilor a salary in future. So it will be desirable that local politics of good quality are led by small elite councilors.
Third, the election without voting and proportional representation system might weaken the purport of local autonomy system for residents' participation and can not reflect on the political representation of voters. So the system of return without voting should be abolished and proportional representation system should be revised because it was judged unconstitutional by Constitutional Court. Consequently, the system of one man, two votes should be introduced within the framework of proportional representation system of current political party register type.
Fourth, while public management of election was adopted, it still damages equal opportunities among candidates in the process of election campaign and caused political corruption due to expenses of excessive election costs. For solving these problems, local political structure of high cost related to local election should be improved and the demand of money should be reduced in order that clear and fair election can be conducted from the side of election costs and local autonomy system can be rooted in the nation. On the one hand, freedom of election campaign should be secured suitable to characteristics of local election and social changes, but a fairness of election should be kept and a legal device for transparent income and expenditure process of election costs should be arranged more strictly. And an excessive burden of contacting voters by candidates should be reduced to eliminate factors of occurring a lot of expenses in the process of local election. Especially, law should be revised to improve an inefficient election system, minimize costs and activate election campaign methods. The range of public management of election should be extended by arranging a device to consolidate regulations of election costs and secure its efficiency.
Fifth, although over majority of voters in local councilor election are women, women's advance into local council was remarkably lower than those in advanced countries and women's political representation has not reflected. A dichotomous or patriarchal thinking of the politics for men and housework for women rooted deeply in our society should be eradicated to secure women's political representation. Since an institutional improvement should be arranged with conversion of such a thinking, development of long-term programs for enacting and revising politics related laws and supporting and cultivating women candidates and introduction of women electorate system securing the women's advance into local council should be considered in order that mitigation of refund condition of deposit and women's political representation can be considered, but women electorate system was already conducted to secure women's participation in politics legally and institutionally. Also it is prescribed that each party assigns women 30% of electorates in all kinds of elections, but it has not been realized wholly and reflected on women's political representation. To achieve its efficiency, each party must legalize the regulations of nominating a woman candidate in a fixed rate and if such a regulation is violated, the party concerned should be excluded from all kinds of 'benefits from national supports.
This study presents the problems and reforms of local election systems in Korea, but what is more important is that elimination of local conflicts, increase of national integration and satisfaction of democracy and proportionality, induction of policy competition and increase of national representation should be preceded as the basic conditions of election system reforms Korean politics have. In addition, the subject of discussion of election system should not be confined to political circle. That is, the voters should be included in the subject of discussion of election system.

목차 (Table of Contents)

• 목차 = ⅰ
• ABSTRACT = ⅰ
• 第1章 序論 = 1
• 第1節 硏究의 目的 = 1
• 第2節 硏究의 範圍와 方法 = 5
• 1. 硏究範圍 및 分析의 틀 = 5
• 2. 硏究方法 및 分析資料 = 10
• 第2章 韓國 地方選擧制度에 관한 歷史的 考察 = 12
• 第1節 選擧制度와 政治的 效果 = 12
• 1. 選擧制度의 意義와 政治的 效果 = 12
• 1) 民主主義와 選擧制度 = 12
• 2) 選擧制度의 政治的 效果 = 13
• 2. 地方選擧制度의 意義 및 機能 = 15
• 第2節 地方選擧의 沿革 = 16
• 1. 地方自治 흔적 = 16
• 1) 朝鮮時代의 地方分權 = 17
• 2) 甲午·光武改革期의 住民自治 傳統 = 19
• 3) 日帝下의 地方自治制 (1920년~1945년) = 21
• 4) 美軍政期의 地方自治 = 22
• 2. 地方自治法의 制定 및 施行 = 24
• 3. 地方選擧의 實施 = 27
• 1) 1952년 1차 地方選擧 : 1차 地方議員選擧 = 29
• 2) 1956년 2차 地方選擧 : 2차 地方議員選擧, 1차 團體長選擧 = 29
• 3) 1960년 3차 地方選擧 : 3차 地方議員選擧, 2차 團體長選擧 = 30
• 4) 1991년 4차 地方選擧 : 4차 地方議員選擧 = 30
• 5) 1995년 5차 地方選擧 (1차 同時地方選擧) : 5차 地方議員選擧, 3차 團體長選擧 = 31
• 6) 1998년 6차 地方選擧 (2차 同時地方選擧) : 6차 地方議員選擧, 4차 團體長選擧 = 32
• 第3節 地方選擧 主要 爭點의 變遷 = 34
• 1. 地方自治 復活을 둘러싼 政治權의 利害關係 = 34
• 1) 選擧運動 = 34
• 2) 候補者에 대한 政黨推薦 및 比例代表制 採擇與否 = 35
• 3) 地方議會의 議員定數 및 選擧區 問題 = 36
• 2. 選擧區制의 變遷 = 39
• 3. 選擧運動과 選擧公營制 = 39
• 4. 女性의 政治 參與와 政治的 代表性 = 41
• 1) 女性政治 開拓期 = 41
• 2) 女性政治 形成期 = 43
• 第3章 韓國 地方議會議員 選擧制度의 現況 = 47
• 第1節 地方選擧의 種類와 選擧權·被選擧權 = 47
• 1. 地方選擧의 種類 = 47
• 2. 選擧權·被選擧權 = 49
• 第2節 候補者 規定과 政黨公薦 = 51
• 1. 政黨의 候補者 推薦 = 51
• 2. 選擧權者의 候補者 推薦 = 52
• 3. 主要 政黨別 候補者 公薦規定 및 實態 = 54
• 1) 새천년 民主黨 = 54
• 2) 한나라당 = 58
• 3) 自由民主聯合 = 62
• 4) 外國의 境遇 = 63
• 第3節 選擧區制劃定 및 議員定數 = 69
• 1. 選擧區制 = 69
• 1) 選擧區의 劃定 = 69
• 2) 現行 地方議會議員 選擧區制 = 70
• 2. 議員定數와 選擧區의 劃定 = 72
• 1) 市·道議會의 議員定數와 選擧區의 劃定 = 72
• 2) 自治區·市·郡議會의 議員定數와 選擧區의 劃定 = 72
• 3) 地方議會議員 定數와 選擧區의 劃定 = 73
• 4) 外國의 境遇 = 75
• 第4節 選擧運動과 選擧法 = 80
• 1. 選擧運動의 槪念 = 80
• 2. 選擧運動의 範圍 = 81
• 1) 文書 및 圖書에 의한 選擧運動 = 83
• 2) 言論·放送등에 의한 選擧運動 = 83
• 3) 集會에 의한 選擧運動 = 84
• 4) 컴퓨터 通信을 이용한 選擧運動 = 85
• 5) 政黨·候補者등에 의한 演說會 = 86
• 6) 公開場所에서 의 演說·對談會 = 87
• 7) 團體의 候補者 등 招請 對談·討論會 = 90
• 8) 言論機關의 候補者등 招請 對談·討論會 = 92
• 9) 公營放送주관 텔레비전 對談·討論會 = 93
• 第5節 女性의 議會進出과 政治的 代表性 = 94
• 1. 女性의 議會進出 現況 및 世界的 水準 = 94
• 2. 女性의 地方議會 進出 必要性 = 99
• 第4章 韓國 地方議會議員 選擧制度의 改革方向과 그 代案 = 101
• 第1節 政黨關與와 候補者 公薦制度 = 101
• 1. 政黨公薦制의 存廢에 관한 論議 = 101
• 1) 政黨公薦制度 廢址의 論據 = 102
• 2) 政黨公薦制度 存續의 論據 = 106
• 2. 政黨關與와 公薦制度의 改善方案 = 110
• 1) 廣域議會 議員選擧 = 111
• 2) 基礎議會 議員選擧 = 113
• 第2節 選擧區制와 議員定數 = 114
• 1. 選擧區制 = 114
• 2. 議員定數 = 121
• 3. 代表 選出方式 = 125
• 1) 比例代表 選出方式 = 126
• 2) 無投票當選制 = 135
• 第3節 選擧運動과 選擧公營制 = 136
• 1. 選擧運動의 問題點과 改善方案 = 137
• 1) 選擧運動의 事務關係者 = 138
• 2) 弘報物 등에 의한 選擧運動의 改善 = 140
• 3) 大衆媒體 및 集會에 의한 選擧運動의 改善 = 141
• 2. 選擧費用 公營制 = 143
• 第4節 女性의 政治的 代表性 確保 = 149
• 1. 政治的 代表性에 관한 問題點 = 150
• 2. 女性의 政治的 代表性 確保方案 = 155
• 1) 地方議會 選擧區制의 改善 = 155
• 2) 寄託金 返還要件의 대폭적인 改定 = 157
• 3) 女性의 代表性이 고려된 政治關聯法의 制·改定 = 158
• 4) 政黨의 地域區 및 比例代表制 割當制 導入 = 159
• 5) 女性候補者 育成을 위한 敎育·訓練프로그램 강화 및 人力銀行 運營 = 161
• 6) 女性候補 支援基金 設置 및 女性候補 選擧支援 活動强化 = 161
• 第5章 結論 = 163
• 參考文獻 = 169