민주화 이후 한국의 문화정책에 관한 연구 : 정치적 결정요인을 중심으로 = Study on the Cultural Policy of Korea after Democratization : Focusing on Political Determinants

다국어 초록 (Multilingual Abstract)

The purpose of this study is to consider how the cultural policies in the past Administrations have changed in accordance with political features and the features of cultural policies in each period, to synthetically analyze these and produce results of research on the relations between politics and cultural policies. This leads to the comparisons on cultural policies in each period, to consider the directions of further studies on Korean cultural policies in the future, and to suggest projects for better cultural policies in the future.
This study discusses within political features and cultural policies of these Administrations, which have founded on formal democracy since the Democratization, such as the Kim Young-Sam Administration (1993-’98), the Kim Dae-Jung Administration(1998-‘03), and the Roh Mu-Hyun Administration (2003-’08).
Moreover, the scope of the study focuses on political determinants in decision-making of cultural policies. However, in terms of three determinants of political structure, presidents' leadership, and political situations, the study also shows that these determinants have effected cultural policies and analyzes what kinds of features and achievement are produced.
The author discusses three political determinants; first, the political system is about the state structure and the form of government, ruling ideology, and state indicator and state project; second, president's trait is about president's background and profile, character and leadership, presidential election pledges and orders; third, the political situations focus on the political trend, political change and events, political culture, and circumstances. As features of cultural policies, the author explore cultural administration system and the state project on culture in the Ministry of Culture, mid/long-term projects and major executive plans, and major policy-executions.

The theoretical background of the study is to explore in detail such factors as ideas, concepts, and purposes of the cultural policy, political decision in cultural policy (so-called determinants of political system), presidents' characters and leadership, and political situations and circumstances. the author discusses such determinants as the relations between political system and the policy in discussion of political system determinants, president's characters in the past Administrations and types of leaderships, and political theories about democratization, globalization, political culture, etc. for the discussion of determinants in political situation and circumstances.
Additionally, to emphasize the significance and importance of the study and to show differences from previous studies on culture and culture policies, the author explores the scope and objectives, research trends and results, and major issues in previous studies; and then, the author emphasizes how this study can contribute to the further research on the cultural policy.
The methodology for the analysis in this study is to develop analysis-model to analyze the correlations between political determinants and cultural policies. This methodology will prove how each political determinants affect cultural policies and how this effects have brought about changes in the cultural policies.

Therefore, this study speculates on, after the democratization, how the Kim Young-Sam, the Kim Dae-Jung, and the Roh Mu-Hyun Administrations administrated the state affairs with what kinds of political systems―namely, forms of government as well as organizations of government, state indicators and state projects, with what kinds of character and leadership each president had, and in what kinds of political situations and circumstances policies are processed.
The author synthetically analyzes the contents and achievements of mid/long-term plans and how they carry out the polices in these administrations; and then, analyzes how each administration formed different features in accordance with different political determinants, in terms of such cultural/administrational systems as structure, personnel adminstration, budget, and legislation as well as the aims and achievements of mid/long-term plans and policies as specific determinants.
Therefore, the author categorizes into such periods as the period of foundation and development (1948-’72), the period of establishment and leaping-stage (1973-’89) and overviews, focusing on changes in cultural policies, each period from the Fist Republic after the foundation of Republic of Korea to the 6th Republic in the era of the Democratization. Then, the author synthetically analyzes in detail the goals and achievements of cultural policies in each Administration from the Kim Young-sam Administration to the Roh Mu-Hyun Administration.
The overview of relations between political determinants and cultural policies before the Democratization shows that cultural policies in such authoritarian-presidency system as despotic regime or military dictatorship were made use of as methods for public relation of ruling system in order to legitimate the regimes in respect of state-ruling enlightenment of people's consciousness. For this reason, the policies were detached from people's cultural interests and demands and carried out passively without people's consents. Furthermore, in those Administrations before the Democratization, the ideas of policies were more or less so abstract and superficial that they suggested uniformity or publicity lacking logical legitimacy of policy methods and contents; and, they were recognized and used as methods or tools for economic purposes in virtue of political or economic logics rather than objectives.
The overview on purposes and achievements of cultural policies after the Democratization, shows three things.
First, the Kim Young-Sam Administration established the Ministry of Culture and Sports by merging the Ministry of Culture and the Ministry of Sports and Youth, and the Bureau of Cultural Industry newly; additionally, it founded development in regional cultures by enforcement of the local autonomy. Moreover, it led "Reform and Change" for the purpose of 'Creation of New Korea' and furthered such major policy plans based on "5 Years' Plan of Cultural Development" as establishment of national spirit, development in cultural industry, revitalization of regional culture, and globalization of Korean culture. Though sounding familiar with ""10 Years' Plans for Cultural Development," the Kim Young-Sam Administration emphasized cultural welfare as main ideology of cultural policy and proceeded such major policies as everyday-life culture, globalization, informatization, and cultural industrialization.
Second, the Kim Dae-Jung Administration changed the Ministry of Culture and Sports to the Ministry of Culture and Tourism, reorganized administrative system, and progressively established the fiscal foundation of cultural policies by allotting 1 % of whole national budget (one hundred million won) to it.
This Administration, purporting "Establishment of Creative Cultural-Welfare State" and being founded on the "New Cultural Policy of People's Government," focused on cultural welfare of people, development of cultural industry, cultural democracy solution of cultural imbalance, and national unification based on culture. This Administration, emphasizing economically additional value of culture, focused on expansive fiscal support to centrally develop the cultural industry to nation-foundational industry and reorganized the supporting system to realistically found basic structure of cultural industry. In the same token, the Administration tried to institutionalize cultural exchange between North and South Koreas via "Sun-Shine Policy".
Third, the Roh Mu-Hyun Administration, for the reform of cultural administration and organizations, reorganized administrative system and solidify the culture of creative reformation and system of reformative procedure. From perspective of three values of "Autonomy, Participation, Division of Power,' this Administration executed administrative reformation and reformation of organization as well as expansion of autonomy and creativity of cultural policy and endeavored to achieve, in virtue of "Creative Korea" the development of the education of culture and art, the development of cultural industry, and balanced development in regional cultures. With progressive policy-making, this Administration not only focused on equality and distribution but also proceeded such cultural welfare policies as cultural benefit plan for the unprevileged class.

As a result, the relations between political determinants and cultural policies show as follow.
First, in terms of such systems as the political system of each Administration, though having the same political system of presidential government, each has different form of government in accordance with political ruling system―authoritarian system or democratic system or whether the ruling ideology is progressive or conservative; in addition, state indicators or state projects are shown to be greatly influenced by features and contents in policies. In organization of Administration, whenever new Administration initiates, due to reorganization of administrative system in terms of new organization of the office within the government, institutes have been newly-made or merged, which have resulted in changes in significance and priority of policies.
State indicator or state project has directly affected on the contents of cultural policy; especially, it has become standards in policy ideologies and policy aims in establishing long/mid-term plans; moreover, it has been reflected on policy executions.
By the change of political system from the past authoritarian dictatorship to liberal democracy system, each Administration commonly not only changed the recognition of the culture from political one to cultural one but also emphasized the culture as a significant strategy of national development and the power of the national economy. Additionally, they changed the direction of cultural policy from providers to consumers and from cultural producers to people. Because of changes in cultural policy through the liberal democracy, there were mainly establishment of cultural welfare and cultural identity as well as policies for cultural democratization.
Second, in respect of president's character and leadership, such president's traits as his character, leadership, and styles in management are most directly and powerfully reflected on policy. Such presidents' dispositions as introvert or extrovert and types of leaderships differently affect on cultural policy. In policy-making, especially setting policy issues and policy-decision, president's political philosophy will reflect on policy through his staffs and ministers.
International exchange of culture, unification cultural policy, cultural exchange between South and North Korea in terms of 'Sun-Shine Policy', etc. can be striking cases. And, it affects policy through presidential orders in accordance with operational reports and long/mid-term plans; additionally, presidential election pledges as policy-goals directly and practically affect administrative system and policy system. For example, new establishment of Ministry of Culture, development of cultural industry, expansion of cultural budget, project of cultural city, etc. has been executed in this circumstance.
Third, in terms of political situations and circumstances, policies have been affected as methods for adaptation to situation or problem-solving methods; especially, political trend, as political circumstances in relation with political culture, functions and reflects on policies as countermeasures for democratization, culturalization, informatization. Democratization, globalization, IMF, progressive politicalization, political situation of impeachment of president, etc. have affected on aims of policies and policy-making, which have brought about countermeasures and new cultural policy. Cultural democratization, globalization of Korean culture, reorganization of cultural society, measure to solve cultural imbalance, changes in policies on journalism, etc can be striking examples.
Such political determinants as political system, president's character and leadership, and political situation affect complexively rather than individually on cultural policy. And, contents and traits in cultural policies in reality are determined not by one political determinants singularly but by inter-relationally or complementarily.
The common features of cultural policy is as follow. First, there were differences in priority of policies though ideology and aims of policy has been common issues as cultural identity and establishment of identity, cultural democracy, cultural welfare. Second, though cultural policies in the each Administration have referred to the contents of cultural policies in the previous Administration and reflected it, each Administration tried to differentiate from the previous Administration. Third, each Administration used directly or indirectly the cultural policy in terms of political direction. Fourth, the ideology and aims of cultural policy or priority and contents of policies have changed in accordance with president's traits or political circumstances rather than political system.
This study has aimed 1) to understand ideologies and changes in values in the past cultural policies in order to help establish and enforce cultural policy by establishing new ideology of cultural policy and suggesting policy-issues/goals; 2) to suggest the direction of cultural policy based on the ideology of policy to actively engage any political changes in Korea; 3) to call people's attention to the necessity of more solid preliminary political policy preparation and to bring up cautions against failure in executions of cultural policies executed by the past Administrations and cultural disparities. Therefore, for more appropriate cultural policy, politically continuous endeavors for reformation of the structure of political system or management, overall enhancement in policy-decision and judgement of policy-makers, preliminary preparation of policy for righteous policy direction and selection of contents, and precautious attitude.
In addition, cultural policy in the future must be determined and executed not by political or economic logic but by cultural logic and perspectives, and sustain consistency of mid/long-term cultural policy despite change of government, which guarantees autonomy of cultural policy detached from politics. Moreover, the cultural policy in the future has to consistently try to keep the original status of the culture as enhancement of quality of people's lives and the core of national development.

목차 (Table of Contents)

• 제1장 서론 = 1
• 제1절 연구의 목적 = 1
• 제2절 연구의 범위 및 방법 = 2
• 제2장 이론적 배경 = 7
• 제1절 문화정책의 개념과 목표 = 7
• 1. 문화정책의 개념 = 7
• 2. 문화정책의 이념과 목표 = 19
• 제2절 문화정책의 정치적 결정요인 = 25
• 1. 정치체제적 요인 = 28
• 2. 대통령의 리더십 요인 = 38
• 3. 정치상황적 요인 = 48
• 제3절 선행연구 개관 = 54
• 제4절 분석의 틀 = 63
• 제3장 민주화 이후의 정치환경 = 68
• 제1절 민주화 이전의 정치환경 개관 = 68
• 1. 일인지배구조의 권위주의적 독재체제와 장기집권 = 70
• 2. 권위적 신군부독재와 과도기적 민주체제 = 75
• 제2절 민주정부의 정치환경과 특성 = 83
• 1. 문민화 정부의 출범과 정치개혁 = 83
• 2. 수평적 정권교체와 정치환경의 변화 = 88
• 3. 정권재창출과 탈권위주의 정치문화 = 92
• 제4장 민주화 이후의 문화정책 전개 = 98
• 제1절 민주화이전의 문화정책의 변천 = 99
• 1. 문화정책의 생성과 규제위주의 정책 = 100
• 2. 정책기반조성과 추진체계의 정비 = 105
• 3. 문화정책 활성화와 발전체제의 구축 = 110
• 제2절 김영삼 정부의 문화정책 = 127
• 1. 행정체계개편과 문화창달5개년계획 = 127
• 2. 탈군사문화정책과 민족정기의 확립 = 133
• 3. 문화산업 개발과 우리문화 세계화 = 135
• 4. 자율적 문화복지의 확대 = 139
• 제3절 김대중 정부의 문화정책 = 141
• 1. 문화관광부 출범과 행정체계 확대 = 141
• 2. 새문화정책과 팔길이원칙의 지원정책 = 147
• 3. 문화산업의 국가기간산업화 = 152
• 4. 햇볕정책과 남북문화교류의 본격화 = 156
• 제4절 노무현 정부의 문화정책 = 159
• 1. 문화행정쇄신과 조직혁신 = 159
• 2. 문화정책의 다양성과 다원화 = 167
• 3. 문화창의성과 문화예술교육의 강화 = 171
• 4. 인사 및 언론정책의 개혁과 논쟁 = 176
• 제5절 문화정책의 특성 비교 = 181
• 제5장 문화정책의 정치적 결정요인 = 192
• 제1절 정치체제적 측면 = 193
• 제2절 대통령의 리더십 측면 = 203
• 제3절 정치상황적 측면 = 214
• 제6장 결론 = 223
• 참고문헌 = 234
• 영문초록 = 243