입법관료의 의사규칙 관련 권한과 대의민주주의: 미국의회 의사규칙자문관(Parliamentarian) 사례의 시사점 = Legislative Bureaucrats’ Role on Legislative Rules and Procedures and Its Implications to Representative Democracy: the Case of U.S. Congressional Parliamentarians

다국어 초록 (Multilingual Abstract)

This paper argues that, contrary to what some critics allege, the rising political influences of U.S. congressional parliamentarians as legislative rule referees help to mature American representative democracy. The parliamentarians’ discretionary authority, which is a natural product of party dynamics, promotes such crucial values as non-partisanship, non-arbitrariness, stability, and consistency in the U.S. Congress. It also lessens institutional conflicts of interest, and contributes to completing a multifaceted character of representative democracy. Furthermore, it aesthetically appeals to citizen spectators and boosts their senses of political efficacy and trust. The positive roles of U.S. parliamentarians send comparative implications relevant to the Korean National Assembly: representative democracy, far from being a narrow stage monopolized by elective politicians, calls for bigger roles of non-elective actors in order to be balanced and harmonious. In particular, high-ranked legislative bureaucrats need to be authorized to make neutral referees’ final calls on interpreting and applying legislative rules and procedures.

국문 초록 (Abstract)

이 글은 비선거직 입법관료인 미국의회 의사규칙자문관의 영향력 증대가 대의민주주의를 침해한다는 일각의 비판은 적절하지 않고 오히려 미국 대의민주주의의 성숙을 도모해준다는 점을 여러 근거로 밝힌다. 의사규칙자문관의 영향력은 첫째, 정당정치의 자연스러운 산물이고, 둘째, 비정파성, 비자의성, 안정성, 일관성 등 입법과정의 여러 가치를 제고하고, 셋째, 제도적 이해충돌의 여지를 줄이고, 넷째, 대의민주주의 이상의 다면성, 총체성을기하고, 다섯째, 정치미학 차원에서 유권자의 정치적 효능감과 신뢰감을 높일 수 있다. 이러한 정당화 논리는 한국국회에도 적용될 수 있는 일반적 시사점을 낳는다. 즉, 대의민주주의를 선거직 정치인의 독점적 영역으로 보지 말고 비선거직 행위자들의 역할을 넓게 인정할 때 조화롭고 균형 잡힌 대의민주주의를 추구할 수 있다는 점, 특히 의회 의사운영의규칙과 절차를 의원들에게만 맡기지 말고 입법관료가 중립적으로 해석, 적용하도록 할 필요가 있다는 점을 시사 받을 수 있다

참고문헌 (Reference)

• 1 임성호, "대변동의 미국정치, 한국정치: 비유와 투영" 명인출판사 179-196, 2022
• 2 Bolton, Alexander, "Who Is the Senate Parliamentarian and Why Is She Important?"
• 3 Sinclair, Barbara, "Unorthodox Lawmaking: New Legislative Processes in the U.S. Congress" CQ Press 2007
• 4 Gluck, Abbe R., "Unorthodox Lawmaking, Unorthodox Rulemaking" 115 (115): 1789-1865, 2015
• 5 Vibert, Frank, "The Rise of the Unelected: Democracy and the New Separation of Powers" Cambridge University Press 2007
• 6 Saward, Michael, "The Representative Claim" Oxford University Press 2010
• 7 Eulau, Heinz, "The Puzzle of Representation: Specifying Components of Responsiveness" 2 (2): 233-254, 1977
• 8 Vogler, David J, "The Politics of Congress" Allyn and Bacon 1983
• 9 Heitshusen, Valerie, "The Office of the Parliamentarian in the House and Senate" Congressional Research Service 2018
• 10 Tiefer, Charles, "The Obscure, Unelected Senate Official Whose Rulings Can Help—or Kill—a Bill’s Chance to Pass"
• 11 Urbitani, Nadia, "The Future of Representative Democracy" Cambridge University Press 23-49, 2011
• 12 Green, Jeffrey Edward, "The Eyes of the People: Democracy in an Age of Spectatorship" Oxford University Press 2010
• 13 Pitkin, Hanna, "The Concept of Representation" University of California Press 1967
• 14 Lim, David, "Senate Parliamentarian Reviews Democratic Drug Pricing Plan"
• 15 Simon, Caroline, "Senate Parliamentarian Rejects ‘Plan C’Immigration Plan"
• 16 Hilmer, Jeffrey D, "Review Essay: Social Science, Political Science and Democracy Today" 33 (33): 239-248, 2011
• 17 Mansbridge, Jane, "Rethinking Representation" 97 (97): 515-528, 2003
• 18 Madonna, Anthony J., "Questions of Order in the U.S. Senate: Procedural Uncertainty and the Role of the Parliamentarian" 100 (100): 1343-1357, 2019
• 19 Held, David, "Prospects for Democracy" Stanford University Press 1993
• 20 Sartwell, Crispin, "Political Aesthetics" Cornell University Press 2011
• 21 Krawzak, Paul M., "Parliamentarian Guidance Deals Blow to Reconciliation Strategy"
• 22 Levitz, Eric, "Parliamentarian Erects New Obstacle to Biden’s Agenda"
• 23 Cox, Gary W, "On the Effects of Legislative Rules" 25 (25): 169-192, 2000
• 24 Gould, Jonathan S, "Law within Congress" 129 (129): 1946-2028, 2020
• 25 Fitzgerald, Sandey, "Is There a Role for Spectators in Democratic Politics? A Reflection on the Theater Metaphor in Green’s Ocular Democracy" 22 (22): 302-313, 2015
• 26 Shepsle, Kenneth A, "Institutional Arrangements and Equilibrium in Multidimensional Voting Models" 23 (23): 27-59, 1979
• 27 Tolchin, Martin, "Glass Houses: Congressional Ethics and the Politics of Venom" Westview Press 2001
• 28 Thompson, Dennis F, "Ethics in Congress" The Brookings Institution 1995
• 29 Oleszek, Walter J, "Congressional Procedures and the Policy Process" CQ Press 2001
• 30 Krehbiel, Keith, "Congress:Structure and Policy" Cambridge University Press 376-402, 1987
• 31 Hibbing, John R., "Congress as Public Enemy" Cambridge University Press 1995
• 32 Felicetti, Andrea, "Casting a New Light on the Democratic Spectator" 2022
• 33 Schumpeter, Joseph A, "Capitalism, Socialism, and Democracy" George Allen & Unwin 1943
• 34 Kohn, Margaret, "Book Review: The Eyes of the People: Democracy in an Age of Spectatorship" 8 (8): 1211-1212, 2010