국민연금 기금운용 정책네트워크 분석 = A Study on the Policy Network Analysis of the National Pension Fund Management Governance Process in Korea

국문 초록 (Abstract)

이 논문은 정권이 바뀔 때마다 무엇이 국민연금 기금운용지배구조를 개편하게 하는지 그 이유와 배경에 대한 몇 가지 연구질문에서 출발하였다. 이 질문에 답하기 위하여 기금운용지배구조 개편 관련 정책과정을 정부별로 3기로 나누고, 정책결정시스템, 정책과정, 정책행위자들 간의 상호작용을 통하여 각 정부별 정책네트워크의 성격과 정책산출 결과를 비교분석하고, 정부 및 참여단체의 역할과 기능을 재조명하여 기금운용지배구조 개편의 바람직한 발전방향을 모색하였다. 분석결과 기금운용지배구조 개편의 핵심인 정책네트워크는 폐쇄적·수직적 구조에서 개방적·수평적 구조로 발전하였고, 엘리트주의에서 정책공동체와 이슈네트워크가 혼합된 유형으로 변화되어갔다. 즉, 비정부부문 단체들의 정책참여가 확대됨으로써 정책결정참여자의 수와 규모가 증대되었고, 정책결정의 형태도 민주성, 대표성이 중시되는 방향으로 제도화가 이루어졌음이 확인되었다. 본 연구분석 결과가 주는 시사점은 기금운용지배구조 개편시 어떻게 정부견제시스템을 갖추느냐 하는 것이 핵심이다. 지나친 정부개입을 최소화하는 동시에 기금운용의 독립성을 보장해야 하며, 또한 비정부부문 정잭행위자들의 전문성·책임성을 제고하여 기금운용위원회를 전문가 중심이 아니라 가입자대표의 직접 참여를 보장하는 비상설기구로 운영하도록 하는 것이 바람직한 기금운용지배구조 개편방향으로 사료된다.

다국어 초록 (Multilingual Abstract)

This paper examines a few questions on the causes and backgrounds of the reform in the fund management governance of the National Pension, the response and role of each organization in that, and the relationship between the policy goals and policy outputs. To answer this question, I have categorized the policy processes of the fund management governance reform of the National Pension into three categories according to past administrations, and then compared the unique characteristics of each government`s policy network as well as its policy outputs through analyzing the interaction among the policy making systems, policy processes and policy actors. In addition, in this paper, I have tried to find a direction for the development of the fund management governance reform by highlighting the role and function of the government and various interested organizations. Based on the result of the above analysis, the policy network, the key part of the fund management governance reform which has brought on discussion whenever political power was transferred, has evolved from a closed and vertical to an open and horizontal structure, while a system based on elitism has been changed into one based on a combination of policy communities and issue networks. In other words, I found that the expansion of policy participation of various non-government organizations led to an increase in the number and scale of policy making participants, and the type of policy making has been institutionalized towards emphasizing democracy and representation. How the government control system should be established at the time of fund management governance reform is the core analysis of this paper. I have concluded that the desirable direction for fund management governance reform is as follows; First of all, government intervention should be minimized; the independence of fund management should be secured; Secondly policy actors in the non-government organizations should promote their specialty and responsibility; Finally the Fund Operation Committee should be maintained as an ad-hoc committee, which allows representatives of insured persons to directly participate in it as at present, rather than as a specialist-centered standing committee.